1986 Windsor land use plan update

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

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I LAND USE PLAN UPDATE
1 1986
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1 1987
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W I N D S 0 R L A N D U S E P L A N

U P D A T E

Adopted by the Windsor Town Council June 25, 1987

Certified by the Coastal Resources Commission July 24, 1987

PREPARED BY:

MID-EAST COMMISSION
P.O. DRAWER 1787
WASHINGTON, NC

The preparation of the plan was financed in part by a grant
provided by the North Carolina Coastal Management Program@
through finds provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the Office of
Ocean and Coastal Resource "Management, National Oceanic and
Atmospheric Administration.

19B6 WINDSOR LAND USE PLAN UPDATE

ACKNOWLEDGMENTS

Prepared by:

TOWN COUNCIL

L.T. Livermon, Mayor 0. Wint Hale

T.R. "Buddy" Shaw J.F. "Jimmy" Hoggard, III

Charles W.D. Fulk Mary Willoughby

PLANNING BOARD

Lawrence Carter, Chairman Alice Pittman

E.A. Moore John W. Phelps

Wesley Gray Jack Curlings

Russell Spivey, Jr.

MID-EAST COMMISSION PLANNING AND DEVELOPMENT STAFF

Lynn Roche Phillips, Technical Advisor

Robert Paciocco, Planner-In-Charge

David Overton, Town Administrator

Diane Dunlow, Town Bookkeeper

The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through the Coastal Zone Management Act of 1972, as amended.
The Office of Ocean and Coas,tal Resource Managementq National
Oceanic and Atmospheric Administrationg is also responsible for
funding for this document.

TABLE OF CONTENTS

DATA COLLECTION AND ANALYSIS I
Introduction I
Establishment of the Data Base 2
PRESENT CONDITIONS 3
Present Population and Economy 3
Summary 11

EXISTING LAND USE 12
Introduction 12
Land Use Summary 12
CURRENT PLANS, POLICIES AND REGULATIONS 18
Plans 18
Policies 18
Regulations 20

CONSTRAINTS: LAND SUITABILITY 22
Introduction 22
PHYSICAL LIMITATIONS FOR DEVELOPMENT 22
Hazards 22
Soils 25
Water Supplies 26
Excessive Ground Slope Areas 28
Fragile Areas 28
Areas With Resource Potential 32

CONSTRAINT: CAPACITY OF COMMUNITY FACILITIES 35
Introduction 35
Water and Sewer 35
Solid Waste Collection and Police and Fire
Protection 36
Schools 36
Roads 38

ESTIMATED DEMAND 40
Population and Economy 40
Summary 40

REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS 43
Resource Protection 44
Resource Production and Management 45
Economic and Community Development 47

ISSUES AND POLICY STATEMENTS 49
RESOURCE PROTECTION 50
Development in Areas with Constraints 51
AEC Development 54
Other Fragile Areas and AECs 55
Hurricane and Evacuation Needs 5B'
Protection of Potable Water 58

Use of Septic Tanks 59
Storm Water Runoff 60
Marina and Floating Home Development 62
Industrial Impacts around Fragile Areas 63

RESOURCE PROTECTION AND MANAGEMENT 65
Productive Agricultural Land 65
Existing and Potential Mineral Production Areas 67
Commercial and Recreational Fisheries 68
Commercial Forestry 69
Off-Road Vehicles 70
Impact of Development Types of Resources 70

ECONOMIC AND COMMUNITY DEVELOPMENT 72
Location and Types of Industries Desired 72
Commitment to Providing Services 75
Desired Urban Growth Patterns 76
Redevelopment of Developed Areas 77
Commitment to State and Federal Programs 78
Assistance to Channel Maintenance 80
Energy Facility Siting and Development 80
Tourism and Beach/Water Access 81
Types, Densities, and Location of Anticipated
Development 83

HURRICANE AND STORM HAZARD MITIGATION 84
Introduction B4
Hazards Map e6
Effects of Storm Components an Hazard Zones 90
Summary 92
Post-Disaster Reconstruction 93
Introduction 93
Immediate Clean-Up 94
Recovery Task Force 97
Schedule for Repair and Reconstruction Over
Longer Period 98
Evacuation Routes and Times 101
Summary 103
Intergovernmental Coordination 104
Storm Hazard Mitigation and Post-Disaster
Reconstruction Policies 106

PUBLIC PARTICIPATION 108

LAND CLASSIFICATION III
RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION 120'

INTERGOVERNMENTAL COORDINATION 122

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APPENDIX A 124
1 APPENDIX B 128
1 APPENDIX C 132
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LIST OF FIGURES

FIGURE NUMBER NAME PAGE

I Windsor Planning Area 4

2 Population Change from 1960 to 5
1984 - Windsor and Bertie County

3 Employment by Persons 16 Years 7
and Over by Industry - Windsor

4 Windsor Area Manufacturing Firms 9

5 Existing Land Use 1986-A 13

6 Existing Land Use ige6-B 14

7 Flood Prone Area 23

8 Soils Suitable for Septic Tanks 24
and Urban Pprposes

9 Windsor Area AEC: The Cashie River 29

10 Register of Historic Places in 31
Windsor Area

11 Prime Agricultural Soils in the 33
Windsor Planning Area

12 Public School Facilities in Windsor 37

13 Population Projections - Windsor 41
and Bertie County 1984-1995

14 Inundation Levels for Hurricanes 87
of Specified Intensity

15 Inventory of Structures in.the 89
Hazard Area

16 Land Classification Map 113

DATA COLLECTION AND ANALYSIS

Introduction

Land development generally takes place as the result of a

series of decisions by private individuals and government. if

left entirely to chance, the resulting pattern of development may

not be in the best overall interest of the community. To promote

this community interest for both present and future ge nerations,

a land use plan is to be devel'bped, adopted and kept current by

the local governments in the coastal area.

The land use plan is a framework to guide local leaders as

they make decisions affecting development. Private individuals

and other levels of government will also use the plan to guide

their land use decisions. Effective use of the plan by these

groups will lead to the more efficient and economical provision

of public services, the protection of natural resourcess sound

economic developments the protection of public health and

safety, and enhancement of the community's quality of life.

The Town of Windsor has responded to these needs by electing

to complete and update its land use plan. The preparation of

this plan represents an effort by the Town to guide development

in a way which will maximize public benefits. This plan was

financed in part through a grant provided by the Coastal Zone

Management Act of 1972. These funds are administered by the

Office of Coastal Resource Management of the National Oceanic and

.Atmospheric Administration through the North Carolina Department

of Natural Resources and Development (DNRCD) Division of Coastal

Management.-

ESTABLISHMENT OF THE DATA BASE

One purpose of the 1986 land use plan is to update informa-

tion given in the 1981 plan and to outline development that has

taken place since the completion of the last@plan. The 1981 plan

and its counterpartg the original 1976 land development plan,

serve as the primary sources of information for this effort.

Various other sources were used to update and expand the data

base.

Socioeconomic data were gathered from a variety of sources.

The 1980 U.S. Census of Population provided updated population

figuresq which were then made current with data provided by the

N.C. Department of Administration. The North Carolina Department

of Natural Resources and Community Development Division of Marine
Fisheries provided data on the fishing industry"in the Windsor

area. Additional statistics were gathered from The Directory of

Manufacturing Firms, 1984, and the Bertie County School Superin-

tendent. The DNRCD Divisions of Environmental Management and

Soil and Water Conservation were very helpful in providing

information. Various other sources were consulted, including the

Town Administrator and Bookkeeper.

Information an land use within the Town's jurisdiction was

acquired from a variety of sources. United States Geological

Survey 7 1/2 minute quadrangles, the Bertie County soil survey,

zoning mapso building permit records and on-site inspections

were used to assess the development that has occurred since the

1981 plan. Personal interviews with various technical expe rtsq

such as the District Soil Conservationist, supplemented informa-

tion an land development trends in the area.

The accuracy of this plan was checked throughout its

development period. The Planning Board, Town Administrators and

Town Council proofread the text to ensure its accuracy and

direction. These combined sources aimed to provide the most

concise picture of the development trends within the community.

PRESENT CONDITIONS

Present Population and Economy

The Town of Windsor is situated in central Bertie County an

the Cashie River, which drains into the Albemarle Sound (Figure

1). It serves as the county seat. Windsor is a Town which,

until the 1960s, existed primarily to serve the farming and

logging community. The population of the Town has risen and

fallen during the past 25 years (Figure 2). In the 1960s,

Windsor grew by more than 20 percent and in contrastj Bertie

County had a net loss of population. Since 1970, the population

of Windsor has steadily been declining at a very low rate.

During the past 25 years, most of Windsor's growth occurred in

the decade from 1960 to 1970. This coincides with the change in

the economy from traditional rural industries like farming and

logging to manufacturing. Several manufacturing firms located in

Windsor during this time. The Town developed residential areas

as well as service industries to accommodate the growth brought

4
Figure 1

WINDSOR PLANNING AREA
The preparation of this map was financed in-part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

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Swampforest SANOMU

Figure 2

POPULATION CHANGE FROM 1960 TO 1985:

WINDSOR AND BERTIE COUNTY

1960-1985 1980-1985
PERCENT PERCENT
1960 1970 1980 1985* POPULATION POPULATION
POPULATION POPULATION POPULATION POPULATION CHANGE CHANGE

Windsor 1,813 2,199 2,126 2,091 15.3% -1.6%

Bertie 24,350 20,528 21,024 21,341 -12.4% 1.5%

SOURCE: US Census of Population,.1980

1985 estimates provided by N. C. Department of Administration

on by industry. Since 1970, however, the population has shown a

slight decrease. This loss can probably be attributed to

the out-migration of workers to larger cities in the region.

A seasonal population flux does not play an important role

in the public service demands placed on Town facilities.

Recreational activities such as hunting and fishing attract a

small number of tourists and summer residents to the area.

This limited number of visitors, however, does not tax the

adequate provision of water and wastewater services nor any

other Town services.

Additional statistics may shed light on the composition and

lifestyle of the residents of Windsor. The population is

composed of approximately 36.5 percentminorities and the median

age is 33.3 years. This implies that one half of the population

is older than 33.3 years and the other half is younger. Wind-

sor's $ 6,050 per capita income is higher than $ 4,376 for

Bertie County (NC Census of Populationp 1980).

The economy of Windsor is mixed, but dominated by manufac-

turing. Figure 3 shows employment of persons 16 years and older

by industry in Windsor. A large proportion of the work force is

engaged in the manufacturing, retail trade or education fields.

Unemployment in Bertie County is high (5.9 percent) compared to

the 4.56 percent average for Region Q (Employment Security

Commission).

Although not reflected in the employment statistics,

agriculture is still an important component of the Windsor

economy. Agriculture, forestry, fishing and mining employ less

Figure 3

EMPLOYMENT BY PERSONS 16 YEARS AND OVER BY INDUSTRY, 1984

WINDSOR

Industry Total Persons Percent

Agriculture, Forestry, Fishing 34 4.0
and Mining

Construction 39 4.6

Manufacturing 244 28.9

Transportation 10 1.2

Communications and other Public 6 0.7
Utilities

Wholesale Trade 47 5.6

Retail Trade 127 15.0

Finance, Insurance and Real 28 3.3
Estate

Business and Repair Services 17 2.0

Personal, Entertainment and 44 5.2
Recreation Services

Health Services 56 6.6

Education Services 108 12.8

Other Professional and 33 3.9
Related Services

Public Administration 50 5.9

TOTAL 843

UNEMPLOYMENT 61 7.2

SOURCE: North Carolina Statistical Abstract, 1985

than four percent of the labor force. There continues to be an

overall decrease in agricultural employment triggered by the

widespread use of heavy machinery and the introduction of farming

methodologies which require less labor. Agricultural land use

constitutes approximately 30 percent of the total land area

within the Town's one mile jurisdictional area. Similarly,

Bertie County is heavily agricultural with approximately 22

percent of the total land area in agricultural uses. The crops

most widely grown are peanutst corn, soybeans, tobacco and

cotton. Agricultural employment typically experiences peaks

during the harvest season in late summer/early fall.

Manufacturing dominates the regional economy. It employs

nearly one-third of the local work force. Thirteen manufacturing

firms are located in the Windsor planning area (Figure 4).

Almost three-fifths of these firms rely on the timber industry

for their existence. Forestry-related industries employ almost

70 percent of the manufacturing work force,.representing a large

pro portion of the regional payroll. In the future, the Town

should strive for diversifying the local industrial economy away

from a dependence on forestry. As it is, Windsor is susceptible

to the'unpredictable nature of the timber business. Forested

areas constitute approximately 60 percent of the undeveloped land

in Windsor's extraterritorial areay compared to approximately

70 percent of the total land area for Bertie County. In the

Windsor planning area, about 70 percent of the ti mber is owned

by commercial interests.

Figure 4

MANUFACTURING FIRMS IN WINDSOR AREA

Name Address Product of Emps.-

Bema Manuf. Co., Inc. Windsor Ind. Park Ladies and 2U-49
P. 0. Box 698 children's
bathing suits

Blue Bell, Inc. P. 0. Box 39 Female jeans 100-249

Byrum, Robert Sherlock Route 3 Logging 5-9

Coulbourn Lumber Co. US 17 Bypass Pine products 1.00-249

Gillam Bros. Peanut Spring St. Ext. Peanuts 50-99
Shelter, Inc.

Lea Lumber & Route 3, Box 57 Hardwood veneer 250-499
Plywood Co. (off Hwy 13) and plywood

Lea Lumber & P. 0. Box 489 Cut to size 100-249
Plywood Co. plywood

Pierce Market Route 3 Meat processing n/a
Aulander Hwy

Windsor Wood P. 0. Box 302 Furniture 10-19
Products, Inc. Components

Thompson & Co. Hwy 13 North Lumber Cypress 20-49
Pine

Williford Lumber Co, Route 2 Furniture 20-49
Squares

Worker's Owned Granville St. Contract Sewing 50-99
Sewing Co.

Stephenson Crab Co. Windsor Ind. Park Seafood 20-49
Processing

SOURCE: Town Administrator and 1984 Bertie County Land Use Plan Update.

Bertie County is consistently among the top 13 counties for

commercial catcheso poundage and monetary value. Even so, the

fishing and seafood business is not a major industrial employer

in the Windsor area. A small number of persons are employed by

the crab processing plant and several independent commercial

fishermen operate from Windsor. Finfish, including herring, are

the common catch among local commercial boatmen. Recreational

fishing and boating are very popular along the Cashie. Supplies

such as fuel, food, beverages, bait and marine supplies are

commonly purchased in Windsor by these seasonal recreators.

These activities are suspected to provide a significant seasonal

boost to the regional economy.,@',

Other industries in the area are textile and food processing

plants. The Bertie County Economic and Industrial Development

Commission is actively recruiting new and diversified industry to

the area. Several sites are presently available for potential

industrial developers. The Bertie County Industrial Parki

located south of Town on Highway 179 houses several of the

manufacturing firms discussed above and has the space to accom-

modate several others. Other existing industrial sites and

areas zoned for industry are located throughout the planning

area.

Seasonal variations in employment are generally not a

significant problem in the Windsor area. Small amounts of

unemployment among agricultural workers during the winter months

is the major concern for the area.

Summary

The analysis of the demographic and economic conditions

reveals that Windsor supports a stable economy, but also has a

slowly declining population. It is expected that this population

trend will continue over the next ten years. The majority of the

industries in Town are dependent upon the forestry businesso

which is currently experiencing prosperous times. However,

manufacturing linked to forestry is extremely vulnerable due to

these fluctuations in the timber industry. It is recommended

that the Town diversify its economy by promoting other kinds of

industry to the area. Additional growth in the economy or

population is not likely to have a significant impact on the

natural resources of the area. Industrial sites area available

throughout Town, and specifically in the industrial park.

3.2

EXISTING LAND USE

Introduction

Before intelligent decisions can be made directing future

land use in a community, there must be an inventory of the

present land uses. This inventory should take note of the

types of land uses, their amounts and their distribution. The

following section details the existing land uses within the

Windsor planning area.

Land Use Summary

The Windsor planning area includes the land within the Town

limits and the land outside Town to a distance of approxi-

mately one mile (Figure 1). The total area encompasses slightly

more than 11 square miles. About 30 percent (3.3 square miles)

of the planning area is within the corporate limits and the

remaining 7.7 square miles is in the extraterritorial area.

Land developed for urban purposes accounts for about 15 percent

of the total land a rea. The majority of the undeveloped land is

in forests, agriculture, or swamp forests and is located outside

of the Town limits.

Land uses have remained relatively unchanged since the 1981

plan (Figures 5 and 6). The majority of land in Town is in

residential uses. Residential development is concentrated in the

Thompson Development in the north, Spruill Park and Hillcrest in

the west and sout h9 and the Peterson Road area in the eastern

section of Town. Since 19B1, 17 residential bui Iding permits

have been grantedp most of which were for construction in

existing residential developments. Other sites for housing

13
Figure 5

EXISTING LAND USE 1986 - A

The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended$ which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

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Residentia

Commercial
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Industrial

Agricultural

Forested

Swampforest

Figure 6 14
EXISTING LAND USE 1986-B

The preparation of this map was financed in part through a
2 grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

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Swampforest SAWN
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1 Edgewood Church
2 Edgewood Cemeter
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3 Charles Street
4 Hospital
5 Granville Street
6 Industrial Park
7 Elm Street

.15

permits have been for sites located off Highway 17 North and near

Edgewood Church. Existing residential uses occur along traffic

arteries in the southeastern quadrant of the planning area along

US 17 South in the vicinity of the Industrial Park, off of NC

1100, and off of Highway 13 Business. Other homes are located

sporadically throughout the planning area.

Commercial land uses are those which support retail or

personal services. Within the planning area, several concentra-

tions of commercial uses exist'. These are the downTown business

district, the U.S. 17/13 Business arteries and the strip develop-

ment stretch extending along the highways leading into Town.

During the last five yearsq Granville Street has been the growth

area for commercial establishments. Since 1981, seven of the

nine commercial building permits granted have been for addresses

along Granville Road near downTown. This has helped to alleviate

depressed economic conditions in the downtown area.

Office and institutional uses are springing up in the

blocks near the hospital and Charles Street. Zoned for this use,

a medical clinic recently located across from the hospital. It

is expected that future commerciall institutional and office

space needs will be met in these existing zoned areas. Expansion

of the strip development in all directions along major traffic

arteries is also expected. Special attention should be given

monitoring this haphazard growth to avoid potential hazards and

conflict in land uses.

As previously stated, the industrial areas of Windsor are

situated in the industrial park located on Highway 17 Southq the

Highway 17 Bypass, U.S. 13 north to Ahoskie, off of Indian Woods

Road, and in two sites near Peterson Road. Most industries are

lumber processors and textile manufacturers. Any future indust-

rial uses should be confined to the industrial parkq existing

areas zoned industrials or the extraterritorial area because of

the undesirable effects of indt--istry an other land uses.

Nearly 60 percent of the planning area is forested, and

about 10 percent is located within the Town limits. About 70

percent of the woodlands are owned by industry for use in nearby

pulp mills. The wooded areas are concentrated in three locations

in the planning area. A westward band of forested area origin-

ates in the center of Towng and another cluster of trees exists

in the eastern most extreme of the planning area. The hardwood

swamp forests located in the floodplain of the river are another

forested area. Presentlyq there are no serious land use compati-

bility problems with these timber lands. However, should these

areas be logged or cleared for agricultural usel short-term

aesthetic problems might result unless wise harvesting/reforesta-

tion practices are used.

Most of the land within the extraterritorial area is

cleared for agricultural uses. Most agricultural land lies

along the boundary of the extraterritorial limits and is either

currently devoted to crop production or serves as pasture.

Tracts in the northwest and southwest sections of the planning

area are also in produc,tion. Within the Town's planning juris-

dictiong there are currently no apparent conflicts between

agriculture and other land uses. As the demand for industrial,

residential and commercial land increases, agricultural land

along Highway 17 Bypass may be exposed to development pressure.

The zoning ordinance allows for this by allowing residential and

other uses in areas that are primarily agricultural. No other

compatibility problems are expected to arise.

In summarys there are no significant land use compatibility

problems in the planning area. Any negative aspects of industry

(noise, smoke, traffic, congestion, etc.) should not have a

serious effect an land use patterns in Windsor. The zoning

ordinance regulates the amount and location of all land uses.

If additional commercial strip development occurs along the

major traffic arteries, a compatibility problem may arise between

the commercial and residential uses located there. Planning and

finances for additional traffic lights, curb cuts and turning

lanes may be necessary if strip development becomes a great

problem, There are no major problems anticipated or a result of

unplanned development or will have a bearing on future land use.

Future residential growth areas include the development near

Edgewood Cemetery as well as in existing subdivisions. Outside

the Town limits, additional construction along transportation

routes is possible. Selected sites along N.C. 1100 are currently

residential growth centers and will likely continue growing as

the need for dwellings increases. Commercial uses are likely to

expand in the highway corridors as well as in the downtown area.

Changes in land use along the highways should not cause any

significant infringement problems on agricultural land, as most

of this area is already considerably developed.

CURRENT PLANS, POLICIES AND REGULATIONS

Plans

Windsor presently has two planning documents that have a

direct impact on land development in the Windsor planning area.

In addition, numerous county and regional documents address

Windsor development issues. The following is a list and descrip-

tion of the plans related to Windsor's growth that have been put

into action since 1981.

Community Development Block Grant Program - The 1981

Land Use Plan update outlines a community development

and housing element plan completed in 1977. Since the

completion of this plan, the Town has applied for

additional community development block grants.

Land Use Plans - Since the passing of the Coastal Area

Management Act, two land use plans have been completed.

The land classification map which accompanies each plan

is useful in determining land use changes in the

planning area.

Policies

Policies are defined as statements of intent and courses of

action which are followed to reach a desired goal. The following

lists the policies related to development that W indsor currently

has in place.

Utilities Extension Policies - Only approximately one

percent of the residents in Town are not connected to

the wastewater treatment facility. The sewer hook-up

policy is applicable to all potential customers who

discharge at an equivalent amount and quality as

domestic customers. Mandatory hook-up is enforced for

every customer located within 200 feet of the sewer and

water lines. Requests for extensions of pipes are

examined on a case-by-case basis. All in-Town res-

idents are tied into the municipal water system. Water

fees are set higher for customers outside the Town

limits. The Town is currently working at installing

more piping through Town. The capacity of community

facilities is discussed in the section on Constraints:

Capacity of Community Facilities.

Open Space and Recreation Policy - There is no compre-

hensive recreation plan for Windsor. The Town provides

a recreation area on South York Street which includes a

small playground area and a petting zoo. Located next

to the park is a privately-owned baseball field. The

Town recently purchased and relocated a nationally re-

cognized historic structure, the Freeman Hotelo

to a lot across from the park facilities. The hotel

will be used as a guest house for visiting dignitaries

or will house the Chamber of Commerce. In additiono

the Town plans some minor capital improvements to the

area to make it a focal point for tourism and recrea-

tional activities. -7 A public access site to the

Cashie River is also being constructed in this area.

Recently, the Wildlife Resource Commission announced

that funds have been approved for the construction of a

public boat ramp at-the end of Elm Street. Con5truc-

tion began in early 1987 and is expected to be com-

pleted by summer 1988.

Regulations

The Town of Windsor enforces several regulations which

have an impact on development. The building inspector and

County Health Department are responsible for their enforcement.

Regulations currently in place are:

Zoning Ordinance

Building and Housing Regulations

Mobile Home and Trailer Park Ordinance

Subdivision Ordinance

Floodway Regulations

Flood Zone Insurance Requirements

Septic Tank Regulations

Historic District Regulations

Nuisance Ordinance

As stated aboveg the County Health Department regulates the safe

placement of septic tanks. A minimum lot size of 20,000 feet is

required for septic tanks. Most households with septic tanks

are located within the extraterritorial area. Within the Town

limitsp practically all structures are hooked up to the municipal

water and wastewater systems.

The historic district was established in 1981 and its

regulations are outlined in the historic district ordinance. In

brief, the historic district ordinance requires that land uses

in the identified district must remain consistent with the

historic theme. The designation of the historic district allows

the Town to apply for special funds to upgrade the area.

According to Chapter 113A of the General Statutes, the North

Carolina Environmental Policy Act, the Town can request develop-

ers to submit detailed statements outlining the potential

impacts of major developments. Windsor has no additional

requirements. Sedimentation Control regulations are in accord-

ance with the NC Sediment Pollution Control Act. All land

disturbing activities affecting one acre or more must file an

erosion and sedimentation control plan to be prepared and sent to

the Division of Land Resources. The lack of sand dunes in the

planning area precludes the need for a Dune Protection Ordinance.

Additional federal and state regulations,enforced in the planning

area are outlined in Appendix A.

CONSTRAINTS: LAND SUITABILITY

Introduction

The fundamental premise of land use planning is that

distinctions exist between land masses which make them suitable

for various uses. Planning is also required because not all

lands are suitable for the same types of development. For

example, the physical characteristics of the soil may permit

compression, making development unsuitable. The following

section identifies and discusses areas with development constra-

ints to guide future land use decisions.

Physical Limitations for Development

Hazards

Two types of hazards may impede growth: man-made and

natural hazards. There are three man-made hazard zones in the

planning area which should be excluded from development. These

include the sand pits, the Industrial Park and the fuel oil

storage sites.

The mined sand pits located south of the Town limits near

the wastewater treatment plant present a hazard to development.

Also, the industrial park could present a hazardous development

situation for other types of land uses. Flammable liquids, such

as fuel oil, are stored in three locations in Town. Windsor Oil

Company storage tanks, on S. King Street, are located within a

residential development. Davenport Oil Company an d Spruill Oil

Company are situated on major thoroughfares. Land uses Which are

likely to develop around these sites would probably be commer-

Figure 7 23

FLOOD PRONE AREA

The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

-00.

PASK

J
WINDSO

Flood Prone Area

Source: U-S-G.S. Flood Prone Area Map, 1982.

24
Figure 8

SOILS SUITABLE FOR SEPTIC TANKS AND URBAN
PURPOSES

The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

. .. ... ......... ..... ....

.... ......
...... . .. .......
..........
..... ..... ... ..... ...................

.............. ......

Swampfore
st

A Suitable Soils

Source: 1984. Bertie County Soil Survey.

cially-oriented. All development should be limited to low

density commercial establishm--ents that would not be endanger

lives in the event of a possible leak or explosion. Nuclear

power and peat-fired energy-generating facilities would have an

impact on future planning decisions if located in the Windsor

area.

The flood prone area in Town is a natural hazard zone

where development is strictly regulated. The United States

Geological Survey flood prone area maps show that approxi-

mately 15 percent of the Town is located in the 100 year flood

plain (Figure 7). This means that areas within the 100 year

floodplain have at least a one in 100 chance of being inundated

in any given year. Davis Park and a most of the Bertie residen-

tial area are in the floodplain. In accordance with the Flood

Insurance Rate program, development is prohibited in the floodway

and limited within the floodplain.

Sails

Soils in the planning area were mapped by the Soil Conserva-

tion Service. The sail sur veys were used to determine which

soils present development limitations due to wetness or high

shrink-swell potential. Approximately 21 different soil associa-

tions can be found in the planning area. Most are sandy loams

and loamy sands. While many soils in the area can support

development, including septic tanks, nearly 50 percent of the

planning area is covered by soils that are poorly drained and

have severe limitations for the placement of septic tanks (Figure

8). Most problems associated with these soils are their slow

2 6

permeabilityq poor filtering ability and wetness. Many local

soil types would also present a problem for building foundationsq

as subsidence is likely. The soils located in the river flood-

plain deserve special merit. They are too wet for septic tanks

and also unable to serve as a filter for the foreign matter

washed from the streets.

Soil shallowness is not a constraint for most types of

development in the planning area. The shallowest surface layer

found is seven inches deep. This may be too shallow for certain

types of construction such as large-scale industry.

In summaryo about 50 percent of the soils found in the

planning area have limitations for the efficient placement of

septic tanks and possible stability of building foundations.

As Windsor provides water and sewer se rvice within the Town

limits, soil constraints are only a "real" problem within the

extraterritorial area. The implications for development tran-

slate into higher overall costs per unit for. placement of fill

material to overcome these constraints. Large scale development

should be directed to areas where the soil has limited physical

constraints.

Water Supplies

The extensive groundwater reservoirs of the Coastal Plain

were considered a relatively unlimited source of water supply

until recent years. Development in this region and adjacent

states has had an effect on the reservoir capacities and recharge

rates. The NRCD Division of Environmental Management Ground-

water Section has been collecting data and monitoring water

levels in the region to determine groundwater conditions and

to evaluate the effects of large withdrawals. The following is

a brief synopsis of DEM's research findings titled Interim

Report of Groundwater Conditions in Northeaster n North Carolina

(1977).

The Windsor area gets nearly all of its groundwater from

two hydrogeologic units: the Cretaceous aquifer systemf and the

surficial system. The Cretaceous is the principal aquifer

from which Windsor withdraws its drinking water. Underlain by

granite bedrockg it is found roughly 250 feet to 600 feet

from the surface. The surficial wells topping the Cretaceous

are generally less than 500 fe9t deep.

Recharge of this aquifer is principally from precipitation

in the region. About 20 percent of the area's annual precipita-

tion enters the surficial aquifer. The water table aquifer

serves as the reservoir for recharge to the underlying Cretaceous

system. The site for recharge is generally to the west. of

Windsor at the highest point to the land surface found near the

Piedmont.

The natural chemical and physical quality of groundwater in

the Cretaceous aquifer system varies areally and vertically.

The water is generally low in mineral content and suitable for

any purpose.

Relatively large withdrawals mainly in Virginiag have

caused a substantial decline in the potentiometric surface in

most of northeastern North Carolina. A groundwater management

program has been instituted which will protect the greater

supply of water. Although being lowered gradually, there is no

immediate danger of limited supply of groundwater for the

region within the next ten years. This may be a concern for

future planning endeavors, however.

Excessive Ground Slope Areas

Excessive slopes are defined as areas where the predominant

slope exceeds 12 percentq i.e. where the change in elevation is

12 feet or more per one hundred feet of horizontal run. Most of

the land in Windsor is near the 20 foot contour line. Although

the area has some relief, there are no locations in the planning

area which have a slope of 12 percent or more (Bertie County Soil

Survey).

Fragile Areas

Fragile areas are the water and land environments whose

physical and biological nature make them especially vulnerable to

damage or destruction by inappropriate or poorly planned develop-

ment. The fragile areas in Windsor are defined by the North

Carolina Administrative Code (NCAC) and are called Areas of

Environmental Concern (AECs). Other fragile areasq such as

swamp forests, are excluded from the NCAC list can be found in

the Windsor area (Figure 9). These swamp forests are regulated

by the U. S. Army Corps of Engineers "404" regula tory process.

Windsor has only one officially designated AEC, plus other

Figure 9 29

WINDSOR AREA AEC: THE
CASHIE RIVER

The preparation of this map was financed in part through
grant provided by the North Carolina Coastal Managemen
Program, through funds provided by the Coastal Zone Manage
ment Act of 1972. as amended, which is administered by th
Office of Ocean and Coastal Resource Management, Nationa
Oceanic and Atmospheric Administration.

DAVIS.
PARK

WNDSO

Hardwood,Swampforest

areas considered fragile. The following discusses the location

and nature of the local AEC and suggestions for its management.

Public trust areas are those waters to which the public has

a right of access. They include all natural bodies of water

and lands thereunder to the mean high water mark (if applicable)

and all areas to which the public has rights of navigations

access and recreation. All surface waters in the area, including

the Cashie River, are in the public trust.

These areas are significant in that the public has rights

including navigation and recreation. In addition, they support

valuable commercial and sports fisheries, have aesthetic value

and are important resources for economic development. These

areas should be managed so as to protect the public's rights for

navigation and recreation.

Acceptable uses should be consistent with the aforementioned

management objectives. The NCAC prohibits any uses that would

negatively impact the public trust area. These include projects

that would directly or indirectly block or impair existing

navigation channels, increase shoreline erosion, deposit spoils

below mean high tidep cause adverse water circulation patterns,

violate water quality standards or cause degradation of shellfish

waters.

Although not a natural system, the historical integrity of

the Town also deserves special attention. Several structures in

Town, plus the entire historic district, sho uld be protected

for their historical value. Windsor strongly supports the

preservation of historic structures, as evidenced by the designa-

Figure 10
RFrTSTFRFn HTSTORTC PTACES IN WTNUSOR AREA 31

NATIONAL REGISTER

Elmwood, Windsor vic.
Freeman Hotel, Windsor
Historic Hope, Windsor
Jordan House, Windsor
King House, Windsor vic.
Rosefield, Windsor
Bertie County Courthouse (thematic nomination)

STATE REGISTER

Earley House, 402 S. Queen Sto;@
Freeman Hotel, E Side York St.
Gatling House, 106 Queen St.
1. B. Gillam House, 401 King St.
Gillam House, 103 Pitt St.
Gray-Gillam House, King St.
Mardre House, 208 King St.
Mizelle House, SW Corner King and Pitt Sts.
Mizelle House. 101 W Granville St.
Pierce House. 304 N King St.
Rosefield, 212 W Gray St.
St. Thomas Episcopal Church, 207 W Geay St.
Spellings-Bond-Sutton House, 402 King St.
Sutton-Hoggard House. 302 King St.
Windsor Castle, W End of Winston Lane
House, 206 King St.
Webb-Askew House, King St.
Matthews House, 204 King St.
Jeremiah Bunch House, S Side SR 1225 .75 mi N Jet. SR 1257, .6 mi Dirt Ln.
Dr. Henry Vaughan Dunstan's Office, King St.
Bertie!County Courthouseq King St & Dundee Sts.
Bertie County Courthouse Annex, Dundee St.
Gillam House, N Side NC 308, .7 mi W Jet. SR 1225
Gillam -Mardre House, S Side NC 308, 1 mi W JCT SR 1225
Bond-Haste House. N Side NC 308, .4 mi N Bypass 13
Tessie Mizelle House. N Side SR 1100 at Jet. SR 1102
Gray House. E Side NC Bypass 13 .2 mi;N Jet. Bypass 17
Heckstall House, W Side Jet. SR 1100 & SR 1101
Watson-Hadre House (Elmwood). W Side SR 1101 . 5 mi S of Jet w/nc 308
Wolfenden-Hoggard House, SE Corner JCT SR 1300 & SR 1*301
Carter-Hitchell-Cobb House. N King St.
Cherry House, York St.
Dai'l House, 313 King St.
Bowen House, 102 Queen St.
King House, SR 1116 .9.mi off NC 308
Jordan House. SR Side SR 1522 S of let. w/SR 1521
Hope Plantation, 4 mi. NW Windsor off ST HWY 308
Windsor Historic District

Source: DNRCD Division of Cultural Resources, 1985.

tion of an historic district. The area is prime for historic

preservation because of the amount of properties listed on the

National and State Registers of Historic Places (Figure 10). The

Freeman Hotel, recently relocated from Queen Street to the Davis

Park area, is currently under restoration by the Town. Historic

redevelopment is encouraged in Town to preserve these sites for

future enjoyment.

The area is also rich in archaeological heritage. The

NRCD Division of Cultural Resources (DCR) lists the area as an

ancient Indian habitat. Some of these sites are located within

the Town Limits. The DCR has mapped significant siteso but for

obvious reasons, is not able to publish this information.

DCR will ensure that new development in Town will not disturb

these sites. The Town acknowledges that these are an irreplace-

able resource that should be protected and preserved.

Areas which sustain remnant species are those places which

support endangered species of plants and animals. As of this

writing, none of these areas are I ocated within Windsor's

jurisdiction. If any are designated, all precautions should be

taken to ensure the safe reproduction of these species.

AREAS WITH RESOURCE POTENTIAL

Although much of the land within the planning district

is developed, there may be particular areas which should be

excluded from or encouraged for development because of a particu-

lar man-made or physical impediment. In Windsor, probably,the

33
Figure 11

PRIME AGRIcnTURAL SOILS IN THE WINDSOR PLANNING AREA

The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

---- ------
... .......

*:@ ........ ..

... ..........
A. .........
DAVIIJ.'
PARK . . .........

oo A
..... WINDSO

Swampforest

Prime Agricultural
Soils

Source: 1984 Bertie County Soil Survey.

most valuable resource areas are those sites whose overlying

soils are highly productive for agricultural uses.

Several sites covered by prime agricultural soils are found

within the jurisdictional limits (Figure 11). The NRCD Division

of Soil and Water Conservation and the U.S. Soil Conservation

Service assisted in gathering information necessary to map these

soils. Compared to the existing land use mapq most of the prime

soils are currently under agricultural production or are still

covered in forests. Also, these soils are some of the best in

the region for urban development because of their ability to

support septic tanksq buildings and roads, etc. As of yet, none

of these soils has been disturbed by development. The Governor's

Executive Order Number 96, which promotes interagency coordina-

tion toward prime farmland preservationg should be a useful tool

in protecting these soils from encroaching development.

Peat or phosphate mining in the Windsor area should not be

an issue. According to Dr. Lee Otte, an East Carolina Univer-

sity professor who is recognized as being the foremost expert on

the location and mining resource potential of peat and phosphate

deposits in the state, the deposits in the Windsor area are not

rich enough to be mined. This does not preclude, however, the

possibility of developing a energy-generating facility for the

peat resources., Policies an mining and siting energy-generating

facilities are included in the "Resource Production and Manage-

ment" and "Economic and Community Development" sec tions of this

plan.

CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES

Introduction

Development is often encouraged because of the increased

tax base it brings. Eventually, however, the local government

must spend some of its tax dollars to upgrade and expand the

existing facilities to accommodate such growth. The land use

planning process allows city officials to assess development

trends and analyze the requirements placed on the community

facilities. The following section discusses. the e xisting

conditions of the water and wastewater treatment facilities,

the schools and the roads.

Water and Sewer Systems

The Town of Windsor operates municipal water and wastewater

systems for customers within the city limits. Nearly all Windsor

residents are tied into the system. The South Windsor Water

Association, located two miles from Town, purchases all of its

water from Windsor.

The water system is designed for a usage capacity of 700,000

gallons per day. It consists of three wells. This system is

currently used at less than 30 percent of its capacity. Any peak

load brought on by a population surge could easily be accommo-

dated with the existing facilities. Additional residential,

commercial and industrial growth could occur without causing any

unacceptable demand on the system.

The Town sewer system is operating at less than 20 percent

of its intended capacity. It is designed for a treatment

capacity of 1.15 million gallons per day (mgd). The average use

is .2169 mgd, which represents an 18 percent usage rate. During

peak times, the flow rate rarely approaches 50 percent of the

design capacity. Development of any type could be accommodated

by the existing system, including water-intensive industry.

Solid Waste Collection and Police and Fire Protection

The Town Sanitation Department provides garbage collection

and trash disposal within the Town limits. It employs three

persons. Collection takes place once a week and is deposited at

the County landfill ten miles northwest of Town.

Police service is provided for all persons located within

the planning area. The police force consists of six persons and

two squad cars. Regular patrolling is limited to in-Town

locations only.

The Windsor Fire Department is manned by nearly 40 persons,

three of which are Town employees. Its service area extends

almost ten miles outside the corporate limits. Agreements with

nearby Towns are designed to increase the fire fighting manpower

in the event of a major disaster. The Town operates two pumpers,

one tanker truckg and a patrol car.

Schools

The school facilities are very important in any community.

Southwestern Elementary and Bertie High School se rve the area.

The elementary school, constructed in 19629 is operating at

approximately 95 percent of its capacity (Figure 12). The

Figure 12

PUBLIC SCHOOL FACILITIES

IN WINDSOR

Pupil/
Teacher Grade Year
School Capacity Enrollment Allotment Ratio laught Built

Bertie High School 1350 1180 83 1/14 9-12 1962

Southwestern School 1005 958 53 1/18 K-8 1962

SOURCE: Bertie County School Superintendent 1985

school's pupil/teacher ratio is somewhat high, reflecting the

crowded conditions. If the p opulation of school age persons

(6-17) should increase, contradictory to demographic predictionss

the Town would be forced to consider the need for another

facility. The, county school system would be responsible for

funding such a project.

The Bertie High School is currently operating at 87 percent

capacity. Since its construction in 1962, there have been

several improvements made to the school, including a new eating

area and athletic field. The pupil/teacher ratio is considered

high, indicating no problems with adequate attention being given

to each student. In making projections for future demand, the

county school system's model examines only birth rates and does

not ac count for in-migration of students. Using this model, the

county does not anticipate any additions to the existing facili-

ties. Should an influx of students occur, the county would

need to consider constructing new facilities.

Roads

The planning area is served by seven primary roads (1981

Windsor Land Use Plan). This system is currently sufficient for

any traffic peaks which may occur. The NC Department of Trans-

portation estimates that Highway 13, the most widely used road in

the system, is extremely underutilized. It is currently used at

less than 30 percent of its capacity. Any additional growth

could easily be accommodated by the present road system. The

Town of Windsor incrementally makes minor improvements to the

roads in Town. Major improvements will be minimal. Accor-

ding to the NC Department of Transportation, Transportation

Improvements Program 1986-1995, one project is planned for the

Windsor area. The intersection of U.S. 13/17 will be redesigned

and widened from that point into Windsor. Some secondary roads

will be resurfaced, but there will be no addi@tional improvements

made to the local roads.

ESTIMATED DEMAND

Population and Economy

Recent population trends in Bertie County have shown the

population to be modestly increasing since 1970. Despite recent

annexations, the population of Windsor has continued to slowly

decline. It is anticipated that this trend will continue in the

next ten years (Figure 13). The population is expected to be

2,078 by the year 1990. By 1995, it is projected that the Town

will lose 28 persons bringing the total to 2,050 persons. If

the latter trend should reverse itself, most existing facilities

could adequately accommodate growth. An immigrant population

increase in schoolage children would require the Town to ask

the County to add an to the schools. The water and wastewater

systems could adequately accommodate growth as neither system is

currently used to 50* percent of its intended capacity. The

existing road system would be able to service any foreseeable

potential population growth.

Strains on the land would be minimal. There is currently

an adequate amount of open space within the Town limits that

could be converted to residential uses. Residences could be

placed in areas zoned residential that are not completely

developed.

Summary

The Windsor population is expected to slowly decline through

the year 1995 unless annexations reverse the trend. If this

trend should reverse itself, the water, wastewater and road

41
Figure 13

POPULATION PROJECTIONS

WINDSOR AND BERTIE COUNTY*
1985 - 1995

1985X 1990@ 1995@

Windsor 2,091 2,384 2,356

Bertie 21,341 22,000 22,224

1984 Municipal and County estimates plus county
projections provided by the N. C. Department of
Administration.
@ Accounts for an additional 306 citizens resulting
from annexation effective as of June 7, 1987.

systems could adequately accommodate growth. Both the elementary

and high schools would probably require expansion. Land needed

for development would be available because zoning would ensure

that the land remain in its intended uses. Open spaces within

each zoning district could be developed to accommodate the

residential and accompanying service-oriented, non-residential

uses required.

REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS

During their October 19B5 meetingg the Coastal Resources

Commission reviewed a land use plan update which included a

systematic analysis of all its 1980 policies as an introduction

to their 1985 land use plan update. This analysis included an

assessment of the effectiveness of the 1980 goals and a discus-

sion of actions and activities used to implement these policies

and goals. This "scorecard" approach gave the local government

an opportunity to reflect on how it achieved its previous goals

as a beginning step to formulating new policies. It also

provided the opportunity to evaluate the strengths and weaknesses

of the previo us policies. It was recommended that all 1986 plan

updates adopt this "scorecard" approach to policy evaluation.

The following section includes an evaluation of the policies

addressed in the 1981 Windsor Land Use Plan Update. The planning

board critiqued the 1981 policies at one of its earliest meet-

ings. Each policy was analyzed for its contentp means of

enforcement, and implementation strategy effectiveness. In a

..checklist" format, each implementation procedure was reviewed to

see how well each goal had been carried out since its formation.

In addition to providing an outlet for evaluating accom-

plishments since 1981, this proved to be an effective method for

reflecting on the substance of each policy. The planning board

members were asked to provide a grade on the substance and

effectiveness of the 1981 policies. The board gave Windsor a

"B plus". Most planning board members felt that the policy

statements were well thought o ut, but a few of the implementation

methods had not been fully carried out. Howeverp only two of the

town's goals had not been attained.. The following section

outlines the policies for each major issue in the plan and

describes the deficiencies found by the planning board.

RESOURCE PROTECTION

Listed below are condensed versions of the policies and

implementation strategies regarding Resource Protection in the

19ei plan. The symbol ** indicates that the implementation

strategies were not completely carried out.

Policies and Implementation Strategies

1. Town will discourage development that is not

compatible to the sails.

a. Incorporate the Bertie County Soil Survey into

the development process.

2. Allow a limited amount of development in the AECs

consistent with the allowable uses outlined in NCAC Subchapter

7H.

a. Continue with the enforcement of CAMA reg-

ulations.

3. Town will not support development that has a

negative impact on an AEC or fragile area.
ulations. a. Continue with the enforcement of CAMA reg-

b. Town will not provide services to projects

that have a negative impact on fragile areas.

4. Continue to support the County's efforts in

hurricane and flood evac uation efforts.

a. Will participate in the County's hurricane

and flood evacuation plan for threatened areas.

Nearly all the above policies had been successfully followed

through by means of the implementation procedures decided upon.

One implementation strategy had not been carried out because

another agency was responsible for its implementation. The

Bertie County Soil Survey, completed by the Soil Conservation

Service in late 1984, was not available for public use in the

planning process. The survey has been recognized as an excellent

source of information for development decisions.

The Board felt that the resource protection policies were

strong and good, but all the issues listed in the CAMA guide-

lines were not adequately discussed. Issues such as the avail-

ability of safe drinking water and physical constraints to

development were not addressed. It was decided that the policies

formulated in the 1986 plan would address all issues and would be

enforced only with existing regulations and policies. Additional

efforts are often too much to expect without the assistance of a

full-time professional planning staff for the Town of Windsor.

RESOURCE PRODUCTION AND MANAGEMENT

Policies and Implementation Strategies

1. Support the preservation of prime agricultural

lands.

a. Use the completed Bertie County Soil Survey in

making land use decisions by 1982.

b. Utilize zoning ordinances sub division regula-

tions and CAMA permitting system to help manage resources.

2. Support all federal and state programs that

address the management of commercial forests and agricultural

lands.

a. The Town Administrator and Town Clerk will

provide information for proper forest and agricultural management

by 1982.

b. Utilize zoning ordinances subdivision regula-

tions and CAMA permitting syst em to help manage resources.

c. Use the completed Bertie County Soil Survey in

making land use decisions by 1982.

3. Support (when feasible) all federal and state

programs that deal with the management of commercial and re.crea-

tional fishing.

a. Utilize zoning ordinances subdivision regula-

tions and CAMA permitting system to help manage resources.

4. Mineral areas will be developed in a manner such

that it will be consistent with the aforementioned policies.

a. Use the completed Bertie County Soil Survey in

making land use decisions by 1982.

b. Utilize zoning ordinance, subdivision regula-

tions and CAMA permitting system to help manage reso urces.

The planning board felt that the above policies were

very thorough and their means for implementation were quite

good. Tools currently in place were used to carry out each

policy. All issues were adequately addressed.

ECONOMIC AND COMMUNITY DEVELOPMENT

Policies and Implementation Strategies

1. The Town feels a commitment to state and federal

programs that address economic and community development.

Windsor would like to become further educated about the programs

available.

a. Will continue to participate in state and

federal programs by applying for Community Development Block

Grant funds by 1982.

2. Encourage development and redevelopment-in and

around the town corporate limits.

a. Will continue to participate in state and

federal programs by applying for Community Development Block

Grant funds by 1982,

b. Continue to use zoning and subdivision regula-

tions to direct development and redevelopment efforts.

3. Town will permit energy-generating facilities only

in areas away from population centers.

a. Town will use the provision of services as a

means of implementing a cluster development pattern by 1992.

b. Continue to use zoning and subdivision regula-

tions to direct development and redevelopment efforts.

4. Support tourism in the Windsor area.

a. Investigate methods of educating the general

public about the historic district.

5. Support limited access to Cashie River for recrea-

tional purposes.

a. Construct a public boat ramp in Windsor area by

late 1987.

6. Support downtown revitalization efforts for the

downtown business district.

a. Town will work with local merchants in develop-

ing proposals for downtown redevelopments.

Of the policies listed above, the only implementation

strategy not carried out was related to tourism. While the Town

of Windsor has%actively recruited actions to promote the tourism

industry in Bertie County, there is no concrete -evidence of a

document or similar effort to promote public awareness of the

historic district. The Town has also demonstrated active

support of the restoration of the historic integrity of the

Town by having purchased the Freeman Hotel for p'reservation.

The Board felt that the 1981 update was an excellent

effort. Due largely to the extra five years of experience, they

agreed that the 1986 plan would show continued improvement.

ISSUES AND POLICY STATEMENTS

The formulation of specific policy statements regarding

growth and growth management objectives is probably the most

important contribution of this land use plan update. The

updated evaluation of-the present population, the land and water

resources in the Windsor planning area, and the existing methods

of policy enforcement sometimes suggest the need to modify policy

to accommodate changes in the living conditions.

The Coastal Resources Commission requires that policies are

addressed in five categories:

Resource Protection

Resource Production and Management

Economic and Community Development

Citizen Participation

Storm Hazard Mitigation

Each policy category is intended to cover all issues associ-

ated with growth for the Town in the coming years. The guide-

lines were prepared for a wide range of communities in coastal

North Carolina. The diversity within this area causes some of

the issues not to be applicable to an inland Town like Windsor.

The policy statements in this section represent the result

of recommendations, input from citizens, and experience from the

Planning Board in judging what is best for the future of Windsor.

These statements define the problem or issue, possible alterna-

tives for action, the selected alternative (s), and the means of

implementing and enforcing the chosen alternative. It must be

noted that some issues are of such great importance that only one

policy alternative exists. In other cases, several courses of

action are possible. The following section represents the Town's

best effort on policies to guide development in the planning

area.

RESOURCE PROTECTION

Windsor recognizes the need to protect its natural and

cultural resources. It is understood that these are an irre-

placeable asset which require protection. Ofteng these resources

represent an economic return to the area's residents through

exploitation. It is in the best interest of all citizens

of eastern North Carolina that these resources be protected and

managed to their highest potential.

The Town of Windsor is intimately familiar with the water

quality problems associated with the Roanoke and Cashie.Rivers.

As an upstream user, Windsor realizes it contribution to the

pollution problems of the Albemarle system. As a result of this,

the Town will work to mitigate any problem which contributes to

the degradation of water quality in the Roanoke watershed.

The natural and cultural resources of the Windsor area have

been identified in the Constraints to Development: Land Suit-

ability section of this plan. It was decided that development

should not occur at the expense of the natural system. Convers-

ely, the Town feels developm ent should not be impaired by the

characteristics of the natural system. For these reasonst

future growth should be targetted to areas where it is not likely

to jeopardize or be jeopardized by the natural system. The

following section details the issues concerned with development

and its relationship with the ecosystem.

DEVELOPMENT IN AREAS WITH CONSTRAINTS

The development constraints in Windsor were discussed

in the "Existing Conditions" section and relate to physical con-

straints brought on by the natural surroundings and the designed

capacities of the community facilities. Physical constraints

include man-made fuel storage areas, the sand pits, the indus-

trial park, high hazard flood zones, areas with soil limita-

tions for the safe placement of septic tanks, and natural fragile

areas. The Town recognizes the importance of safe septic tank

placement to prevent groundwater and well contamination and also

realizes its inability to change or correct the characteristics

of the soil.

Industrial land uses should be isolated from other types of

development because of possible dangers associated with industry.

A relict sandpit is located near the industrial park. Land uses

adjacent to these pits sholuld be industrial because of the

inherent hazards associated with them. Fuel storage facilities

are located along S. King Street and on thoroughfares outside

of Town. Windsor acknowledges that any adjacent development

would be subject to well contamination from tank seepage and risk

from fire.

The floodway of the Cashie River is currently undeveloped.

It extends to areas located below the five foot contour line and

is covered by hardwood swampforest-type vegetation. Development

in this area is regulated by the Town's ordinances on the

floodway and floodplain. The Floodway Regulation states that no

development can occur within 100 feet of the waterline and the

Floodplain Regulation ensures that all development within the

floodplain must Pe elevated above the limit of the 100 year flood

(Figure 6).

Policy Alternatives

Possible policy alternatives for growth management and

development in areas with identified constraints include:

1. Amendment of subdivision regulations to include

stricter design standards.

2. Develop and adopt additional regulations in flood

damage prevention ordinance and zoning ordinance to regulate or

prohibit all development in areas with physical constraints.

3. Permit development in those areas, utilizing

current state, federal and local regulatory processes, i.e.,

CAMAf flood insurances subdivision regulations and Corps of

Engineers 404 permitting system.

Policy Choices

Windsor adopts the following policies regarding development

in areas with constraints:

1. The Town recognizes the importance of regulating

development in the high risk flood areas of the Cashie River.

Therefores the Town will continue to participate in Federal Flood

Insurance Program and promote enforcement through the Floodway

Ordinance and the Floodplain Regulation. The continued enforce-

ment of these regulations will also assist in the conservation

of the valuable hardwood swampforest in the floodway.

Major developments9 such as residential subdivisions, will

be discouraged from locating in the floodplain. Disincentivesq

such as denial for water and sewer service, will be applied to

regulate development in this hazard area.

2. The Town recog .. nizes that it is unable to change

the condition of the soil s to accomodate development. As an

optimal solution, the Town would like to develop a long-range

plan to extend sewer lines to all development within the one mile

extraterritorial limit located on soils unsuitable for septic

tanks. This proposition is expensive, and does not address'the

current needs of areas unable to utilize septic tanks.

The Town has decided to continue to support and enforce the

decisions of the County Healtti Department on septic tank place-

ment. A lot size of 20,000 feet is currently required for all

septic tank requests. Windsor will continue to support the Town

Building Regulations which legislate where construction can occur

based on soil characteristics.

3. Since industry can present hazards to other forms

of development, only similar land uses will be encouraged

around the industrial park and sandpits. Residential development

will be limited near the fuel storage tanks. The zoning ordin-

ance, which takes these factors into effect and consequently

promotes compatible usesp will be the enforcement me thod.

AEC DEVELOPMENT

Windsor recognizes that the primary concern of the Coastal

Resources Commission is to protect coastal resources, especi-

ally Areas of Environmental Concern. The Town also shares this

concern for the protection and sound management of these environ-

mentally sensitive land and waters. Windsor is not a coastal

community, but it is an upstream contributor to the estuarine

system of the Albemarle. The Cashie River, which flows into the

Albemarle system, is considered a public trust waters AEC.

Windsor shares the state's policy and management objective

for the AECs in the estuarine system. The state policy is "to

give the highest priority to the protection and coordinated

management of these areas so as to safeguard and perpetuate their

biologicalq socialq economic and aesthetic values and to ensure

that development occurring within these AECs is compatible with

natural characteristics so as to minimize the likelihood of

significant loss of private property and public resources" (15

NCAC 7H. 0203). In accordance with this overall objective,

Windsor will permit those land uses which conform to the general

use standards of the North Carolina Administrative Code (15 NCAC

7H) for development in public trust waters. The maintenance

and protection of the Cashie River was a top priority for the

Town.

Policy Alternatives

The Town's policy alternatives for development in AECs are:

1. Continue to utilize the NCAC guidelines for

permittable uses in AECs.

2. Prohibit all development in AECs.

3. Enforce use of 75-foot conservation buffer zone

from the waterline. No development shall be permitted in this

zone.

4. Classify area 75 feet from waterline as "Conserva-

tion" on land classification map.

Policy Choices

1. The Town of Windsor has decided to continue to

utilize the current system for allowable uses in AECs as well as

Federal and State permit and review processes, i.e. CAMA and

Dredge and Fill.

2. The Town will encourage the establishment of a 75

foot conservation buffer zone from the river shore in which no

development shall be permitted.

Implementation Strategies

1. Current State and Federal permit and review

processes will be employed to determine viable development

types in AECs.

2. Classify the area 75 feet from waterline as

"Conservation" to restrict development within this zone.

3. The Town's Floodway and Floodplain Ordinances will

limit and regulate the amount and construction of structures

within 100 feet of the waterline and in the floodplain.

OTHER FRAGILE AREAS AND AECS

In addition to the AECs, other fragile areas in Windsor

warrant special consideration-, The fragile cultural resources

include the archaeological sites recognized by the North Carolina

Department of Cultural Resources, and the historic structures

listed on the state and national Registers of Historic Places.

The swampforests of the Cashie River floodplain, and other

wetlands areas subject to the Army Corps of Engineers 404

permitting systemq are significant natural areas. Additional

resources that merit special consideration include the homogen-

eous wooded areas that serve as habitat for several wildlife

species.

Several significant archaeological sites have been located

in the planning area. Exact locations are available from the

Town Administrator. The NC Department of Cultural Resources made

several recommendations for management of these prehistoric

sites: effective treatment of known or discovered archaeological

sites may be accomplished through survey, mitigative recovery of

significant data, avoidance or preservation in place. Efforts

will also be made to provide recognition and protection through

such means as the National Register of Historic Places, if

appropriate, and through adherence to regulatory programs

administered by the North Carolina Division of Archives and

History. The Town recognizes the historical and scientific

importance of archaeological site and is committed to preserving

the valuable information they may contain.

The Windsor Historic District is recognized by the NC

Department of Cultural Resources for its historic and architec-

tural value. The Town recognizes that the historical integrity

of Windsor is an important part of its heritage. All efforts

should be taken to preserve these structures which represent the

Town's history.

Several natural fragile areas, including the swampforests

and the floodplain of the Cashie Riverf plus other 404 wetlandss

should be protected. They serve as valuable wildlife habitat

and also serve to mitigate the impact of flooding. The conserva-

tion of these resources is of such importance that no real

alternatives exist except to offer protection for them.

Policy Choices

As with the AECs@ these fragile areas are of such

importance that no reasonable alternatives exist but to offer

protection for these sites. The amount of protection is reflec-

ted in these policy choices:

1. Prohibit development over archaeological sites

listed by NC Department of Cultural Resources prior to an

investigation and clearance by the DCR.

2. Support preservation of swamp forest through

strict enforcement of development standards in the floodplain.

3. Continued support of the Windsor Historic Preserva-

tion Committee to develop a program of "donating" historic

properties to the Town.

4. Discourage development i n all fragile areas.

Implementation Strategies

1. Work with building permits officer to require

thorough investigation of archaeological site bef ore permit is

granted.

2. Classify areas within 75 feet of water line as

"Conservation" on land classification map.

3. Continued support of Floodway and Floodplain

ardi nances.

HURRICANE AND FLOOD EVACUATION NEEDS

The policy statements regarding Hurricane and Flood Evacua-

tion Needs are addressed in the Storm Hazard Mitigation and

Post-Disaster Reconstruction section of this plan.

PROTECTION OF POTABLE WATER

The availability of potable water is a critical concern

because of the large drawdown resulting from operations upstream

of Windsor and in adjacent states. Relatively large withdrawals

of water have created a substantial decline in the potentiometric

surface. This gradual decline in the water table will cause

no immediate danger for the next ten yearss but should be a

strong concern for future planning endeavors. The Windsor

planning area is included in a Division of Environmental Manage-

ment groundwater management program which will protect the

greater supply for the region.

There are no alternatives other than protection of the

limited amount of groundwater. The Town recognizes the impor-

tance of the limited regional supply of groundwater and the need

for its protection.

Policy Choices

1. Support state efforts to manage groundwater

withdrawals in the region.

Implementation Strategies

1. Continue to support Division of Environmental

Management Groundwater Division efforts to protect water in

Capacity Use Area.

USE OF SEPTIC TANKS

Approximately one-half of the soils in the planning area are

unsatisfactory for the safe placement of septic tanks. Unless

care is exercised in the permitting of septic tanks, the health

and safety of area residents could be at risk. Unsatisfactory

performance of soils around septic tanks could contaminate

groundwater wells. The Town recognize5 that it has no power over

the soils: they cannot be altered in any way to improve their

efficiency. Because of these restrictions, little can be done

for policy. The optimal solution would be to have all develop-

ment situated on pockets of incompatible soils hooked into the

municipal wastewater treatment plant.

Policy Alternatives

1. Require a lot size of 20 000 feet for septic tank

placement.

2. Where use of septic tanks is unavoidable, the Town

supports implementation of techniques to improve the efficiency

of septic tanks, i.e. mound sy5tems and waterless systems.

3. As a minimumq any septic tank installation applica-

tions must meet State and County regulations.

4. Encourage everyone in Town to hook up to Town's

wastewater treatment facility.

5. Develop a long-term plan to tie in most development

pockets within the one-mile area to the wastewater treatment

system.

6. Encourage property owners to check with the

Sanitation Officer prior to purchasing or considering building

on a lot.

Implementation Strategies

1. Enforcement will remain the responsibilities of

the County Health Department, which grants permits for septic

tanks, and the Building Inspector.

STORM WATER RUNOFF

Non-point pollution is considered a high priority for the

Town of Windsor. The amount of fertilizers, pesticides, oil

contaminants and litter which eventually enter the river system

is increased significantly by a heavy rain. The swampforests

and other vegetation located along the river offer a water

filtering system that works naturally to sift out or uptake any

pollutants before they can enter the creek system. Storm water

runoff contributes to many of the water quality problems often

discussed by commercial fishermen and recreational boaters in the

area. Agricultural runoff typically contributes a significant

portion to the nutrient load of the riverg thereby adding to

conditions most likely to cause an algae bloom.

The Town has no real policy options except to work to

mitigate storm water runoff. Several effective techniques for

slowing down runoff are prohibitively expensive. The Town is

seeking inexpensive solutions to this problem because of the

limited amount of funds available. Windsor has decided to

work to solve this problem by utilizing the natural system for

passive control of non-point pollution.

Policy Choices

1. Development adjacent to the AEC must be designed

so that runoff will not violate water quality standards.

2. Encourage development and maintenance of vegeta-

tion around shoreline as well as other waterways in order to

preserve as much of the hydrological regime as possible.

3. Limit the amount of impervious surfaces in all

lots within 75 feet of the waterline and encourage their develop-

ment so that no more than 20 pprcent of the total land surface is

covered in materials with a hi gh runoff potential.

4. Target any development near the river to soils

where natural infiltration is not good.

Implementation Strategies

1. Continue to employ efforts of CAMA permitting

system and Corps of Engineers 404 permi tting in determining

development types which do not violate water quality within

their jurisdiction.

2. Reclassify land classification map to "Conserva-

tion" for areas 75 feet from waterline to regulate land uses near
the river. 3. Development in Conservation zone will be enforced

on a case-by-case basis by the Planning Board.

4. Regulate land uses within conservation buffer zone

(for description of land uses, see definition of "Conservation"

in Land Classification System section of this plan.

5. Continued enforcement of Floodway and Floodplain

ordinances.

MARINA AND FLOATING HOME DEVELOPMENT

Marinas are an important convenience for boaters. They

often generate revenue through-'2slip rental, repairs and gasoline

sales. But marinas are known to degrade the water in which

they are located. The Cashie River is not large enough to

accommodate a big marina facility. Windsor is currently con-

structing a small public boat ramp near York Street. The

policies stated below relate to a scaled-down boat ramp for use

with small boats.

Policy Alternatives

1. Encourage the development of marinas.

2.. Discourage the development of marinas and location

of floating homes in light of their contribution to water

quality degradation.

Policy Choices

1. Allow marinas, but encourage their design and

size to not violate water quality standards and the integrity of

coastal wetlands.

Implementation Strategies

1. Continue working with CAMA permitting system in

regulating siting of marinas.

2. The Planning Board will examine each marina

development request on a case-by-case basis.

INDUSTRIAL IMPACTS AROUND FRAGILE AREAS

The policies above address development of all types in and

around fragile areas. Industry@ another form of development,

should be exposed to no different standards than other types

of development. In any location decision, industry must comply

with the policy statements above.

It can be seen that the Town wants to mitigate the effects

of all development on the natural and cultural resources.

It wants to do what it can to protect these resources. There-

fore, in an effort to maintain consistency in the policies,

no real alternatives exist on this issue.

Policy Choices

1. Location of industries in and around fragile

areas shall be discouraged, except water-dependent industries,

such as commercial fishing.

2. All suitable industries should be targetted to

the industrial park.

3. Industry should be targetted away from prime

agricultural lands.

Implementation Strategies

1. Continued support of CAMA and 404 permitting

systems, Building Inspector and County Building Requirements.

2. Areas within 75 feet of water's edge will be

classified as "Conservation" on land classification map.

3. Continued work with the Bertie County Economic

and Industrial Development Commission.

4. Continue to enforce the Town's Zoning Ordinance.

RESOURCE PRODUCTION AND MANAGEMENT

Appropriate management of productive resources is very

important to any locality. In most casesq the productive re-

sources are intricately tied to the economic fabric of the

area. It isq thereforeq wise to manage these resources to the

best of their productivity and to ensure their existence for

future generations. The major productive resources in Windsor

are related to agriculture, forestry and commercial and recrea-

tional fisheries.

PRODUCTIVE AGRICULTURAL LAND

Agriculture, as discussed in the Existing Condition section

of this plan, is an important component of the local economy.

Farming brings in a large amount of income to the area through

the actual sale of farm commodities, farm supplies and equipment.

A large portion of the planning area is currently or has been

under cultivation. The Soil Conservation Service has identified

and mapped the soils in the planning area which are considered

to be some of the best in the county for agricultural producti-

vity (Figure 7). These soils occupy a large amount of land in

the planning area.

In policy, the Town could apt to conserve these farm soils

for future use by restricting any development from occurring on

them. Windsor realizes the importance of agriculture to the

economy, but feels that there is an excess of land under cultiva-

tion already. This glut in farmlandq and subsequently, farm

products9 has caused farm prices to fall and foster economic

hardships for the family farmer. Programs, such as the Payment-

In-Kind, encourage farmers to take their land out of production.

The Town feels that it should not contribute to an already bad

problem by requiring that certain agricultural soils be restrict-

ed from any other uses. Windsor is pro-development and will

not restrict, under the consent of the owners of tracts in

question, any land use from locating on agricultural soils. The

Town would like to encourage the owners of the tracts with

known prime soils to implement the wisest management practices

available to keep that land productive.

Policy Alternatives

1. Town wishes to protect agricultural lands identi-

fied as "prime" by the SCS and Division of Soil and Water

Conservation.

2. Prohibit any land use other than agriculture,

forestry or conservation on prime agricultural soils.

3. Promote conservation of these lands by encouraging

owners of these tracts to implement the Best Management Prac-

tices.

4. Classify agricultural lands as Conservation-A,

implying that they should be precluded from development.

Policy Choices

1. Town will not encourage preservation of "prime"

agricultural soils.

2. Encourage owners of these tracts and other areas

under cultivation to implement"-the Best Management Practices.

3. Allow development providing it is in concert with

the permitted land uses in the zoning ordinance.

Implementation Strategies

1. Continue to work with Agricultural Stabilization

and Conservation Service and Soil Conservation Service workers

in getting farmers to adopt Best Management Practices.

2. Continued enforcement of the zoning ordinance.

EXISTING AND POTENTIAL MINERAL PRODUCTION AREAS

Up until now, the Windsor planning area has never had a

problem with open-pit mining. Peat mining operations may soon

be underway in adjacent counties, and the spill-over effects

may negatively impact Windsor. The planning area has pockets of

peat and phosphate, but the peat soils are low BTU and would be

uneconomical to mine at this time. Sand has been mined in the

planning area for assistance in local highway construction

projects. Because of the possible negative impacts of all types

of mining in the planning area, any mining activities proposed

will be required to apply for a special use permit which will

be granted on a case-by-case basis.

Policy Choices

1. Town discourages any type of open-pit mining within

the one-mile jurisdictional li,,,lit of Town. Any mining activities

proposed must apply for a special use permit which will be

granted on a case-by-case basis.

Implementation Strategies

1. Review applications for mining special use permits

to Planning Board.

2. Rewrite zoning ordinance to include require-

ment for special use permit for all mining operations, including

sand mining.

COMMERCIAL AND RECREATIONAL FISHERIES

The commercial fishing industry is important to the local

economy. Several independent full-time commercial fishermen

live and work in the Windsor area and a crab processing plant

is located in the planning area. Concern has been raised by

commercial fishermen and Di,Vision of Marine Fisheries techni-

cians about the effect of runoff on the fisheries industries.

Runoff from drainage ditches and non-point pollution from urban

development have been detrimental to fishing waters through

salinity alteration and contamination to the estuarine system.

Concern has also been raised over incidences of fecal coliform,

largely from septic tank seepageo being identified in shellfish

beds in several coastal areas. In order to support the commer-

cial and recreational fishing industries, the Town needs to

implement techniques to maintain water quality@

To remain consistent with the aforementioned Resource

Protection policieso the Town has elected to take all measures

possible to protect the fisheries. The Town has chosen to

protect the commercial and recreational fishing areas within

the Town's jurisdiction.

Policy Choices

1. Town will protect the commercial and recreational

fisheries areas within the Town's jurisdiction.

2. Establishment of Conservation buffer zone of 75

feet between all development and waterline.

Implementation Strategies

1. The CAMA and 404 permitting system, as well as the

Town's subdivision and floodway ordinances, will provide suffi-

cient enforcement for this policy.

2. The County Health Department, largely responsible

for the safe placement of septic tanksg will be responsible for

minimizing the likelihood of contamination of fishing waters from

the effluent of septic systems in unsuitable soils.

3. Classify areas within 75 feet of water as Conserva-

tion.

COMMERCIAL FORESTRY

As shown in the "Existing Conditions" section of this

plan, many of the Town's industries rely on the timber business

for their existence. As a result, Windsor feels the need to

protect the forestry industry locally.

Policy Choices

1. Town supports the forestry industry and its

related businesses.

2. Town encourages use of best deforestat ion/reforest-

ation techniques available.

Policy Alternatives

1. Classificatio n of "Rural" to all commercial

forestry tracts within the planning area.

2. Work with the Forestry Service to ensure best

management techniques are employed throughout the planning area.

OFF-ROAD VEHICLES

The mention of "off-road' vehicles in coastal North Caro-

lina .typically conjures ideas of four-wheel drive type vehicles

driving up and down the sandy beaches of the ocean front. In

Windsors there is no problem with these types of vehicles

operating on the beaches. Since this is not applicable to the

development process in Windsor, no policy was formed on this

issue.

IMPACTS OF DEVELOPMENT TYPES ON RESOURCES

Windsors as discussed in the "Existing Conditions" section

of this plan, is currently not undergoing large amounts of growth

like some other eastern North Carolina cities. It is, therefore,

not experiencing the same pressures for development as other

Towns.

The Town views itself as being in a positi on to accomodate

growth and development. Consistent with the aforementioned

policies, the Town is pro-growth as long as the develop ment is

not environmentally degrading. The limitations imposed by

the Town's policies on the protection of sensitive natural and

cultural resources must not be violated to accomodate any type

of growth. Residentialt commercial and industrial land uses must

meet these goals of the Town.

Policy Choice

1. Town is pro-development as long as it is not

environmentally degrading as determined by the NRCD Division

of Environmental Management.

Implementation Strategies

1. The Town will work with the Bertie County Industri-

al and Economic Development Commission in recruiting low-pollu-

tion industries that meet the Town's goals.

2. All industrial requests will be reviewed on a

case-by-case basis by the Planning Board and Town Council.

ECONOMIC AND COMMUNITY DEVELOPMENT

The analysis of the present conditions of the population and

economy of the Windsor planning area showed no major changes in

the general economic atmosphere of the area. The Town is

considered to be fairly industrialized, but it would like to grow

and prosper more. It is, therefore, very concerned about

developing policies setting the stage for economic and community

development.

The industries already located in Windsor are proof of its

amenities to a manufacturing firm. Windsor is situated on a

major north-south highway; has ample housing, recreation and

church facilities; a plen.tiful labor supply; and incentives for

industry. The industrial park is continually growing and the

potential exists for an explosion of industrial growth in the

Windsor area. Policies need to be in place to accommodate this

growth, when it occurs.

The following section outlines growth policies which

have an impact on land use decisions. These policies define the

goals Windsor has set for itself over the ensuing ten years.

Particular issues, related to growth and the Town's commitment to

economic development) are discussed below.

LOCATION AND TYPES OF INDUSTRIES DESIRED

Windsor, as discussed in the preceding section, is blessed

with several natural and cultural resources. It sits on the

banks of the Cashie River in an area dense with hardwood and

pulpwood forests. Most of the soils in the planning area are

productive well-drained, upland soils that are very well-suited

for agricultural purposes. Windsor has many cultural amenities,

including many homes listed on the national and state Registers

of Historic Places.

The economic activities in the area take advantage of these

resources. The majority of the area's industries are related to

lumber production and when combined, the timber industries employ

nearly 70 percent of Windsor's total manufacturing labor force in

the planning area. Farming is also an economic activity in the

region employi-ng dozens of persons through farm labor, proces-

sing and farm equipment sales. In addition, several fishermen

and seafood processing operations are located in the planning

area. The tourism industry is also very strong in the area with

the nearby Hope Plantation and the Windsor Historic District

attracting many visitors daily.

Windsor encourages the continued development or expansion of

resource-intensive industriesp but would also like to recruit

additional manufacturing types to help diversify the indus-

trial economy. Traditional industries, like furni-ture manufac-

turers, agricultural processor5, and timber companies will always

be welcome in the planning area. Newq high-skilled industries,

such as electronicsp automobile manufacturing, or plastics

construction firms@ would diversify and strengthen the local

economy. The Town encourages the consideration of industries to

the planning area.

All industries considering locating in the Windsor planning

area must be low-pollution, light manufacturing industries in

order to remain consistent with the aforementioned resource

policy st atements. All industries must be consistent with the

Town's policies to maintain water quality and the natural

resources. The Town Board will review each industrial request

to ensure consistency with the Town's objectives stated above.

Several industrial sites are available in the planning area.

Specific sites are available in the industrial park and other

areas zoned for industry. All of these sites have good access to

several transportation modes and are currently served by the

water and sewer system.

Policy Choices

1. Encourage high-skilled industries such as elec-

tronic5p automobile, or plastics firms which take advantage of

the abundant labor supply to try to diversify the industrial

economy.

2. Encourage low-pollutiong light manufacturing types

which are compatible with resource protection, production and

management goals and policies and discourage environmentally

degrading industry.

3. Encourage resource-dependent industries such as

plywood processors and furniture manufactures that utilize-the

natural resources in the planning area.

4. Encourage agricultural products processing plants

which take advantage of the local farming economy.

5. Industrial sites will be confined to t he industrial

park and other areas zoned for manufacturing in the planning

area.

Implementation Schedule

1. Town will inform the Bertie County Industrial and

Economic Development Director of its intentions for industrial

development and will work to recruit the industrial types listed

above.

2. Zoning ordinance, CAMA and 404 permitting systems

will regulate the development of industry in specific areas.

COM MITMENT TO PROVIDING SERVICES

As indicated in the discussion on the physical limitations

for development, many of the Town's soils are not conducive to

septic tank usage. Optimally, all developed areas with soil

limitations should be tied into the wastewater treatment plant.

Currently, nearly all of the Town's residents are tied into the

wastewater treatment plant, and sewage lines are available in all

parts of Town. By August of 1987, the Town intends to lay more

sewer pipes to the area north of Town. This area may be annexed

within the next five years.

As an incentive for industries considering locating in the

Windsor planning area, the Town has had a policy of providing

services to all new industries which choose to locate in the

area. Special discount rates for electricity are available to

new industries, as well. The amount of the discount is dependent

on the number of persons guaranteed employment when the plant

opens for business.

Windsor is committed to providing basic services to serve

increased development in the area. Each request for extension

of piping for water or wastewater service is.examined by the

Town Board at the time of the request.

Policy Choices

1. First priority in delivery of services is to areas

classified as "Developed" on land classification map. Second

priority is to "Transition" areas.

2. Residential customers will be served first.

3. Industrial uses will be examined on a case-by-case

basis.

DESIRED URBAN GROWTH PATTERNS

The trends in the population of Windsor has been slight

growth over the past 15 years. The extensive growth in Wind sor

is not a pr'iority issueg but the Town's municipal services are

able to accommodate significant growth if the trends reverse

themselves. Given the current theoretical usage rates for the

wastewater treatment systemo an additional 99000 persons can be

added if necessary. The water system can accommodate an

additional 7,000 persons. The population projections predict a

slight growth trend which can easily be accommodated by these

facilities.

In order to avoid possible overloading of its municipal

facilities, the Town would like to place a ceiling.on its

growth. The growth limits are defined by the design capacities

of the water and wastewater facilities. This is to avoid

excessive spending on upgrading the systems to serve more

customers. Windsor would like to encourage population growth up

to 9,000 persons. When that population goal is reached, the Town

would like to reserve the right to reevaluate this polity.

Policy Choices

1. Limit growth to 9,000 persons. Urban patterns will

be limited by zoning ordinance.

Implementation Schedule

1. Urban growth pat terns and densities will be limited

by the subdivision ordinance, the County Health Department and

the zoning ordinance.

REDEVELOPMENT OF DEVELOPED AREAS

The Town of Windsor's policy on. redevelopment of developed

land has been demonstrated over the past five years. The Town

has been awarded a Community Development Block Grant to improve

substandard housing within its jurisdiction. Windsor has also

demonstrated its commitment toward historic' preservation by

having purchased and relocated the historic Freeman Hotel.

Downtown revitalization has been encouraged for the past

several years, and a fair amount of progress has been made

toward this goal. The Town feels very committed to this effort

and will assist in any way to improve this asset.

The SLOSH model shows that in the event of a major hurri-

cane, the Cashie River would flood most of the Bertie residen-

tial area in Town. Non-conforming uses destroyed by flood or

fire would be reconstructed according to the zoning ordinance and

Floodway and Flood Plain ordinances. Standards for construction

and elevation levels are regulated by these ordinaries.

Policy Choices

1. Continued support of historic redevelopment in

Town. The Town will work to secure funds for rehabilitation

projects.

2. In the event of destruction by a fire or storm,

redevelopment will occur in accordance with the zoning ordinance.

Non-conforming uses will be reconstructed according to the

standards of the Floodway and Flood Plain ordinances.

3. The Town supports the redevelopment of substandard

housing within the Town limits.

Implementation Schedule

1. The Town will coordinate with private individuals

and organizations to secure financial support for downTown

beautification efforts.

2. Town will consider the feasibility of applying for

additional Small Cities Community Development Block Grant funds

to rehabilitate substandard housing located in Town limits.

COMMITMENT TO STATE AND FEDERAL PROGRAMS

The Town of Windsor is receptive to State and Federal

Programs which provide improvements to the Town. Windsor will

continue to fully support such programs that provide necessary

resources to meet identified community needs that compliment the

economic and community deve lopment goals of the Town. Of

particular significance is the N.C. Department of Transportation

Road and Bridge Improvements program. Highways 17 and 13 are

vital to the economic health of Windsor. Several improvement

projectsq including four-lan ing Highway 17 between Windsor and

Edenton and four-laning Highwa y 13 between Windsor and Ahoskie,

would greatly benefit the Town. Windsor will financially support

transportation improvement programs when able and when the

proposed project is demonstrated to be consistent with the

Town's goals for economic development.

The Erosion Control programg carried out by the Agricultur-

al Stabilization and Conservation Service and the Soil Conserva-

tion Serviceg are especially important to the farming community

in the planning area. The Town supports the efforts of these

agenciesl including the implementation of Best Management

Practices to mitigate soi I loss through erosion. To assist in

reaching this goal, the Town has established a policy to encour-

age the use of pervious surface materials and a natural vegeta-

tive buffer zone to reduce the sediment load from entering the

Cashie system (See Resource Protection policy statements). The

Floodway and Flood Plain Ordinances will be the tools to.imple-

ment this policy.

The National Guard has a training center located near the

industrial park. Windsor is pleased to host this facility in

their planning area. The expansion of the existing National

Guard facilities will be supported by the Town, but the construc-

tion of additional military facilities, like an Army or Air

Force baseq will be discouraged in Developed or Transition areas.

Windsor does not want to house any large milita ry facilities

because of the restrictions it would impose on the community.

All proposals for expansions of existing military facilities will

be examined by the Town Board at the time of the request.

ASSISTANCE TO CHANNEL MAINTENANCE

Proper channel maintenance is not a pressing issue in

Windsor. There is so little commercial boating traffic on the

Cashie River, the Town cannot jus tify spending a lot of money to

keep the waterways clear. Smaller, shallow water recreational

vessels most frequently use the river. Since there is little

need for channel maintenance, the Town does not feel a commitment

to provide assistance for such projects.

Windsor will not support financially channel maintenance

projects. Windsor feels that this should be the responsibility

of the State. The Town will assist, however, in locating borrow

and spoil sites within the planning area.

ENERGY FACILITY SITING AND DEVELOPMENT

In 1984, there was considerable debate over locating a

VEPCO owned, coal-fired energy-generating facility in rural

Bertie County. This proposed project attracted the concerns of

several hundred Bertie County residents at an informational

public hearing held in October of 1984. Residents of Bertie

County were divided on the issue of locating this plant in the

area. Several dozen jobs were planned for the siteg but the

environmental integrity and quality of life in the County were

at risk. The controversy came to rest in Janu ary 1985 when

several endangered red cockaded woodpeckers were located on the

proposed plant site. It is illegal to disrupt any endangered

species from their habitat.

In addition to plans by VEPCO, the proposed development of

peat mining operations in Hyde, Tyrrell and Washington Counties

has brought an the possibility of locating peat-burning facili-

ties near the raw material source. Because of Windsor's location

to major highways9 this may be a possibility in the near future.

The Town believes that the development of energy-generating

facilities should be discouraged within the one mile jurisdic-

tional area. These types of facilities will be subject to a

special use permit granted by the Planning Board. If approvedv

all facilities will be restricted to "Rural" areas as per the

land classification map. The provision of public services to the

proposed operation will be determined by the Town Board at the

time of the request.

TOURISM AND BEACH/WATER ACCESS

Windsor has demonstrated its commitment to public access on

the Cashie River within recent years. The Wildlife Resource

Commission allocated funds for a boat ramp on the river and

construction was underway as of spring 1987. Windsor is actively

involved in a public access site donation program. Recently, the

Thompson Company donated a tract of land to the Town under the

provision that a public boat ramp be constructed on site. The

Towng in turn, gave the land to the Wildlife Resources Commission

for ramp construction. There are other plans for the Town to

purchase additional waterfront property to develop more public

access ramps.

The Town is also committed to increasing tourism in the

area. Windsor's efforts to expound on the historic theme of the

area show the Town's sense of commitment for increasing tourism.

Windsor will continue to support the Historic Albemarle Tour

Highway program, as well as historic sites like the Hope Planta-

tion. The Town will continue to support the efforts of the state

tourism agencies increase the tourism industry.

Policy Alternatives

1. The Town could establish no additional policies or

courses of action for development of these industries assuming

that the existing facilities are sufficient.

2. The Town could encourage acquisition of undevelop-

able waterfront properties for public access sites.

3. Development of a program for "donations" of

waterfront property for public use.

4. Continued support for historic preservation,

downTown revitalizationg and other methods to increase tourism.

Policy Choices

1. The Town will continue to encourage acquisition of

undevelopable waterfront properties for public access sites.

2. The Town will continue to support its public

access site donation program.

3. Continued support for historic preservation9

downTown revitalization efforts and other methods and agencies

to promote tourism.

TYPES, DENSITIES AND LOCATION OF ANTICIPATED DEVELOPMENT

Overly dense development is not a problem in Windsor, nor

is it anticipated to become a problem during the next ten years.

Within the past five years, the land use trends have shown

residential growth to occur in areas on the nor.thern fringes of

Town and in established neighborhoods within the city limits.

Commercial growth has expanded along Granville Street and the

industrial park has been able to house several new industries

within recent years. Windsor would like to see continued

development on sites which are best able to accommodate growth

and where support services, like sewer and water, are feasible

and practical to provide. Much of the growth in recent years has

been outside the flood and hurricane hazard areas identified in

Figure 11. Industrial growth will be targett6d to the industrial

park and other areas zoned for industry within the planning area.

Policy Choices

1. To control densities, the Town will continue to

enforce the subdivision ordinance with minimum specified*lot

sizes for lots without public water and sewer.

2. Windsor will continue with efforts to extend sewer

lines to accommodate additional customers.

3. The Town will ensure that future growth is consis-

tent with the above policies in Resource Protection, Resource

Production and Management. Also, the growth must be consistent

with the zoning ordinance and additional goals of the community.

HURRICANE AND STORM HAZARD MITIGATION

INTRODUCTION

Hurricanes and severe coastal storms represent serious

threats to people and property on the North Carolina coast.

North Carolina has the second highest incidence of hurricanes

(Neumann et al., 197B). To date, North Carolina has experienced

23 major hurricanes since 1890. This averages to one major

hurricane every four years. In addition to hurricanes, tropical

storms and "northeasters" present serious threats to eastern
North Carolina.' Recently a maJor hurricane originally classified

as a Category 5 storm, skated past inland North Carolina and

brushed a small stretch of Hatteras Island as it moved northward.

If the storm had made landfall near the mouth of the Pamlico

River, as had been predicted by the National Weather Service at

one period during the storm threat, much of eastern North

Carolina could have been destroyed in its aftermath.

In order to effectively prepare for the hazards of storms,

experts recommend adoption of a plan which encompasses all

aspects of the storm period. ThAs plan should delineate areas

most likely to sustain damage, methods to keep areas affected to

a minimumq and guidelines for reconstruction after the storm.

Bertie County was in the process of adopting a storm hazard

mitigation plan as this Plan is being written. Prior to this, a

Disaster Relief and Assistance Plan had been adopted. One annex

of this plan briefly addressed several components of the storm

hazard mitigation effort, the evacuation and post-hurricane

strategiesq but no comprehensive hurricane mitigation plan

existed.

During the preparation of,", the 1986 Bertie County Land Use

Plan Update, the consulting planner and County Emergency Manage-

ment Officer spent several hours discussing possible post-disa-

ster reconstruction policies for the county. Excerpts.from their

discussion and policies from the Disaster Relief and Assistance

Plan are used as a reference in this plan.

The CAMA Land Use Plan guidelines require that procedures

for pre-storm mitigation, recoveryl and immediate and long term

reconstruction are addressed in each plan. The purpose is to

assist Town and county officials in managing development in

potentially hazardous areas and to be able to expeditiously "snap

back" after a disaster. The first step taken to assess the

hurricane vulnerability of a site is to analyze the types and

locations of physical hazards within the planning area. An

estimate of the amount of people and property that would be

exposed to the hazard is also required. The following section is

a discussion of the storm hazard mitigation, post-disaster

reconstruction policies and evacuation plans for the Windsor

area. All policiesp unless otherwise referenced, are inCDrpor-

ated from the Disaster Relief and Assistance Plan and the

workshop between the County Emergency Management Coordinator and

the 1985 Bertie County Land Use Plan update consulti ng planner.

HAZARDS MAP

The areas most vulnerable., to the devastating effects of a

hurricane or other major coastal storm are ident'ified in Figure

13. This map is the product of a computer model called SLOSH

(Seas Lake and Overland Surge from Hurricanes)., The SLOSH model

was developed by the U.S. Army Corps of Engineers to simulate the

height of the storm surge from hurricanes of a predicted sever-

ity within a particular area. The National Weather Service ranks

hurricanes into Categories I through 5 based on their wind

speeds. The SLOSH model analyzes each hurricane category

scenario and provides areal boundaries where flooding is expected

to occur. For example, the Category I and 2 hurricanes, with

wind speeds up to 110 miles per hour, would produce a storm

surge that would flood a small stretch of land along the river

(Figure 14). The Category 3 storm, defined by winds up to 130

mph, Would inundate points further landward than the Category I

and 2 sto-rms. The Category 4 and 5 storms, the highest intensity

storms possible, would push the water to areas still farther

landward. In this scenario, water levels would be highest

during the threat of the Category 4 and 5 hurricanes. These

storms are the strongest, but are least frequent in the region.

Windsor is an inland community located approximately 45

miles directly from the ocean shoreline. Although Windsor is

considered to be an inland community, hurricanes pose a serious

threat to the Windsor residents. Winds from a storm are a

concern for the area residents, but flooding from the Cashie

River would significantly impact the planning area. Floodwaters

Figi'ire 14 87

INUNDATION LEVELS FOR HURRICANES OF SPECIFIED INTENSITY

1303
1301

The preparation of this map was financed in p,
through a grant proyided by the North Caroli
11111 Coastal Management Program, through funds provic
by the Coastal Zone Management Act of 19729
amended, which is administered by the Office
his Ocean and Coastal Resource Management, Natior
Oceanic and Atmospheric Administration.
Q . . . . . . . . . . . .

. . . . . . . .. . . . .
308
1300

BU
1101 13
SOR
BYP
13

BYP
1 00 17

1148
isj
0
1102

Windsor Town Limits
J Category 1 and 2 Hurricane . . . . . . . . . . . . . . . . . . . . . . .
Category 3 Hurricane

S6urce: U.S. Army Corps of Engineers
S.L.O.S.H. model, 1985.

from the Category 1, 29 and 3 storms would inundate parts of the

Windsor planning area. The following section details the effects

of these storm components on the planning area.

In Windsor, approximately 15 percent of the available land

within the planning area is located in the Category 1, 2 and 3

storm zones (Figure 14). The boundary of the flood prone area

coincides approximately with the limits of the 100 year flood-

plain. Most of the Bertie neighborhood is located in this hazard

zone, as well as Davis Park, several residential areas, and all

Town public utilities.

Development in the flood hazard zone includes about 130

residential units, five commercial establishments and five

public utilitiesq such as the wastewater treatment plant (Figure

15). There is also one institution, the Town Hall, and an

industry located in this risk area. This includes a total of

about 144 structures or $ 5,665,000 of the Town's tax value. In

the event of complete destruction of these structures by flood,

the Town would lose a significant portion of its tax value

through the destruction of these buildings.

The loss of homes and commercial establishments would have

a significant financial impact on the Town. More importantly,

however, all of the Town's major utilities structures are located

within this hazard zone. `.Of these public facilities, the

municipal wastewater treatment facility requires the greatest

amount of caution. In the event of a major hurri cane, contam-

ination from overflow from flood rains or undercutting could have

a disastrous impact on the Town's drinking water supply.

Fiqure 1.5

INVENTORY OF STRUCTURES IN THE HAZARD AREA

Conventional
Homes Institution Commercial Industry Utility TOTAL

WINDSOR TOTAL 850 20 210 8 5 1093

Median
Value $ 40,000 $-45,,000
$ 20,000 $ 40,000 $ 40,000

Total Estimated
Value $ 34,000,000 $ 400,000 $ 4,200,000 $ 320,000 $ 200,000 $ 39,120,000

FLOOD PRONE AREA
ONLY 132 1 5 1 5 144

Total Estimated
Value $ 5,280,000 $ 45,000 $.100,000 $ 40,000 $ 200,000 $ 5,665,000

Note: The total tax evaluation for the Town of Windsor was $ 40,000,000 in January of 1986.

Source: Town Administrator, 1936.

Very few relocation sites with higher elevations are available

should the Town decide to rebuild the wastewater treatment

facility at a different location than its present site in the

industrial park.

Although many structures would be at risk from a storm, the

areas which would be most seriously affected would be the AEC

and the hardwood swamp forests in the planning area. Flooding

would result from the large amount of rain associated with a

hurricanes and the high water levels associated with a storm

surge. The heightened levels of water brought on by a storm

surge would tend to "push" water from the lower portions of the

Cashie River and Albemarle Sound upstream to the Windsor planning

area. The floodwaters would inundate all of the Cashie River

floodplain. Development adja cent to the shoreline would ob-

viously be at a great risk.

EFFECTS OF STORM COMPONENTS ON HAZARD ZONES

Hurricanes are extremely powerful, destructive meteorolog-

ical events which are often u npredictable. Destruction is

typically the result of the combined energy of high winds,

flooding, erosion and wave action. Of these, the two most

damaging components of the hurricane are the high winds which

define its strength and flooding from rains and the subsequent

storm surge. In addition to these two forces, wave action and

erosion are two by-products of the wind and rain along the

land/water interface. The following section discusses the effect

of each of the storm components on the planning area and deline-

ates the sites which are most vulnerable to their forces.

HIGH WINDS

High winds are the greatest risk factor associated with

hurricanes. Hurricanes are, in fact, defined in severity by

their wind speeds. All parts of the planning area would be

subject to the winds brought an by a hurricane making landfall

nearbyq but the intensity of the winds will be mitigated by Wind-

sor's inland location. Communities located closer to the coast

would be more greatly impacted by hurricane winds than Windsor.

Hurricane winds will probably be somewhat diminished by the time

they reach Windsor.

Because of the diminished impact of winds in the planning

area, there is a limited need to impose building restrictions

concerning wind stress. Open field ditches or other sites that

experience significant backwash would be impacted by the flooding

resulting from high windsq but other areas would not be signifi-

cantly affected.

FLOODING

Unlike high windsq flood waters may not impact all areas

hit by a storm. In Windsor% approximately 15 percent of the

pla nning area would be impacted by floodwaters. This includes a

total of 144 comercial, residential, institutional and public

utilities structures, resulting in a net loss of $ 5,665,000

dollars in the event of complete destruction.

WAVE ACTION

Damage from wave action is very strongly correlated to wind

speed and direction. In the cbastal area, most damage caused by

waves will be in the immediate zone of the water along the

shoreline. Because of Windsor's inland status, wave action

would not be a significant problem in the event of a hurricane.

Waves on the Cashie River would probably not grow large enough

to create a significant hazard to development, but may impact

the swamp forest shoreline areas.

EROSION

The product of severe winds, high water and wave action is

erosion. Because of the limited importance of severe winds and

wave action in the planning areaq erosion will probably not be

of significance in a storm scenario. If any areas would be

impacted, the areas most likely to be experience erosion are the

shoreline areas within the planning jurisdiction. The damage

associated with shoreline erosion would be minimal because of

the limited amount of development located in the floodplain of

the river.

SUMMARY

In summary, a hurricane would not greatly impact the

Windsor planning area. Winds, erosion and wave action would be

minimal. Flooding associated with a Category 1, 2 or 3 hurricane

would affect about 15 percent of the land areaq totalling

$5,665YO00 of the Town's tax base. All of the public utilities

are located in this risk zone. Relocation of these facilities

should be a consideration for Town officials.

POST-DISASTER RECONSTRUCTION

INTRODUCTION

A post-disaster reconstruction plan allows Towns to deal

with the aftermath of a storm in an organized and efficient

manner. It provides for the mechanisms, procedures, and policies

that will enable the Town to learn from its storm experience and

to rebuild in a practical way.

A reconstruction plan typically has five purposes, according

to Before the Storm: Avoiding Harm's Way (McElyea, Brower and

Godschalk, 1982). It usually outlines procedures and require-

ments before damages occur, establishes procedures for putting

storm mitigation measures into effect after the disaster,

analyzes information about the location and nature of hurricane

damages, assesses the community's vulnerability an d guides

reconstruction to minimize the vulnerability.

In 1982, Bertie County adopted The Bertie County Disaster

Relief and Assistance Plan, a post-disaster rec overy and recon-

struction plan. As a municipality in Bertie County, Windsor is
covered by this plan. The disaster rel'ief plan, in concert with

the policies in the 1986 Bertie County Land Use Plan Updateq

provide the County with the tools necessary to serve all its

communities during the recovery phas e of a hurricane. Copies

of these plans are available at the Bertie County Emergency

Management office in Windsor.

It is important that local officials clearly understand the

joint federal/state/local procedures for providing assistance to

rebuild after a storm so that local damage assessment and

reconstruction efforts are carried out in an efficient manner

that qualifies the community for the different types of assis-

tance that are available. The requirements are generally

delineated in the Disaster Relief Act of 1974 (P.L. 93-288)

which authorizes a wide range of financial and direct assistance

to local communities and individuals.

During reconstruction after a disaster, two phases of action

are usually undertaken: immediate post-disaster clean-up and

clean-up and repair over a longer period. Although these

guidelines are directed for the county level, the Town of

Windsor may take additional steps.to complement this work. The

following section discusses guidelines set forth for reconstruc-

tion in the county plan.

IMMEDIATE CLEAN-UP

The Disaster Relief and Assistance Plan includes a program

for immediate clean-up and debris removal from roads, beaches and

other areas where public health and safety may be jeopardized.

The responsibility for completing these duties will be a combined

effort by several agencies from the public and private sectors.

The Department of Transportation will be responsible for clearing

debris from roads and the Forest Service will remove fallen

trees from the area, if necessary. in addition, the county

Emergency Management office will provide names of volunteers

to call upon for assistance in the immediate clean-up efforts.

While clean-up efforts are taking placeg a damage assessment

team will be sent out to evaluate the extent of damage in the

area. Damage assessment is defined as a rapid means of determin-

ing a realistic estimate of the amount of damage caused by a

natural or man-made disaster. For a storm disaster, it is

expressed in terms of: 1) the number of structures damagedg 2)

magnitude of damage by type of structure, 3) estimated total

dollar losso and 4) estimated total dollar loss covered by

insurance.

After a major storm event, members of the Damage Assessment

Team should conduct two types of surveys: one which roughly

estimates the ex tent and type of damage, and a more detailed

second phase assessment after the initial damage reports are

filed. The initial damage assessment should include an estimate

of the extent of damage incurred by each structure and identify

the cause of damage such as windq flooding or wave action.

Conducted by windshield survey, the initial damage assessment

should classify damaged structures according to whether repair

expenses would be cost-effective. The Damage Assessment Team

should be equipped with tax maps, aerial photographs and photo-

graphic equipment in order to record and document field observa-

tions.

The second phase of damage assessment operations should be

to estimate the value of the damages sustained. A team consis-

ting of tax assessment experts and other qualified personnel

should be organized by the Emergency Management Coordinator.

This team should have the following information rea dily avail-

able to properly estimate the value of loss after the disaster:

a) a set of property tax maps (including aerial

photographs) identical to those used by the Damage

Assessment Team.

b) county maps delineating areas assigned to each team.

c) copies of all county property tax records.

A methodology should be followed to attain values for the

damage after the disaster. Initially, the number Of Commercial

and residential structures damaged should be summarized by

damaged classification category. The value of each damaged

structure should be obtained from the marked set of tax maps and

multiplied by the following percentages for appropriate damage

classification:

a) Destroyed 100%

b) Major Damage 70%

c) Minor Damage (uninhabitable) 30%

d) Habitable 10%

After this is completedi the total value of damages for the

unincorporated areas of the county should be summarized. Damage

to public roads and utility systems should be estimated from

current linear foot costs for reconstruction. The estimated

value of the loss covered by hazard insurance should then be

determined. Data from damage assessment reports from each

municpality must be consolidated into a County-wide Damage

Assessment report which is forwarded to the appropriate state

authorities.

Rapid and general initial damage assessment reports are

to be submitted by radio within one hour. Within six hours,

private property summaries and more detailed reports should be

nearly complete. The format for damage assessments will be

conducted in accordance with Annex F of the Disaster Relief and

Assistance Program.

Under certain circumstancest interim development moratoria

can be used to give a local government the time to assess

damages, make sound decisions, and to learn from storm experi-

ences. The County's policy for establishing temporary develop-

ment moratoria leaves the decision to the Bertie County Emergency

Management Office. The Emerg ency Management Office is given one

week after all damage assessments are complete to determine the

need for a moratorium. Included in the report to institute a

moratorim, a justification, delineation of the specific uses

affected, and a schedule of activities and actions taken during

the moratorium period must be described. The specific length of

the moratorium must also be included.

RECOVERY TASK FORCE

Damage assessment operations are -oriented to take place

during the emergency period. After the emergency operations to

restore public health and safety and the initial damage assess-

ments are completed, the guidelines suggest that a recovery task

force is formed. This Task Force will guide restoration and

reconstruction activities during a post-emergency phase. The

county has formed a group with members from all areas of the

county to serve as a task force for recovery.

The responsibilities of this task force are to review

the nature of damages in the community, establish an overall

restoration schedule, identify and evaluate alternative ap-

proaches for repair and reconstruction, and make recommenda-

tions for community recovery. The Task Force will also work

to keep the public informed on the procedures to file for

financial assistance. In addition, they will work with State and

Federal representatives on the Interagency Regional Hazard

Mitigation Team and also t he Section 406 Hazard Mitigation

Survey and Planning Teams. Members of the Recovery Task Force

will include:

Chairman of Bertie County Commissioners

County Code Inspections Director

County Manager

Emergency Mangement Coordinator

County Finance Director

County Tax Appraiser

The Mayor of Windsor will be called upon to serve on this Task

Force. The Town Administrator will also serve. Although this

task force will review damagesq the authority to approve or deny

permits will remain the responsibility of the appropriate

authorities.

SCHEDULE FOR REPAIR AND RECONSTRUCTION OVER LONGER PERIOD

The procedures listed above deal directly wit h policies or

clean-up immediately after a storm or disaster. In conjunction

with the policies stated above on storm hazard mitigation,

consideration should be given to long-term reconstruction.

All reconstruction efforts mus t be in compliance with the Town's

Flood Plain Plan and Floodway Ordinance and other construc-

tion standards currently in place.

In the aftermath of a disaster, reconstruction efforts

will be rampant. A plan for the long-term reconstruction is

essential. In order to handle the rush, a priority system

has been designed to stage and permit repairs. Staging and

permitting repairs and construction for the county are as

follows:

1) Repair or replacement of roads, streets and

bridges;

2) Repair or replacement of water control facilities

(dikes, levees, irrigation works and drainage facilities);

3) Repair or replacement of public buildings and

related equipment;

4) Repair or replacement of public utilities;

5) Repair or restoration to predisaster condition of

public facilities damaged while under construction.

First Priority: Replacement of essential services

such as power, waterg telephone and

streets and bridges.

Second Priority: Minor repairs

Third Priority: Major repairs

Fourth Priority: New Development

In efforts to streamline the permitting process for the large

number of applications for building permits9 a policy has been

100

established by the county to repair and rebuild essential

service facilities first. Second priority is to repair other

public facilities as necessary for shelter. A triage (worst

damage) approach will be instituted for staging the reconstruct-

ion effort. Properties with little damage would be permitted

immediately if they were in compliance with permit regulations

before the storm. The schedule for permitting other properties

is as follows:

1. Moderate damage, meeting permit regulations

2. Moderate damagey requiring permit decisions

3. Extensive damage, requiring permits

This system was established to avoid interference with the

reconstruction of public utilities and facilities. The top

priority in post-disaster reconstruction is the replacement of

services.

The development standards for reconstruction will be in

accordance with the Storm Hazard Mitigation policies being set

forth by the 1986 Bertie County Land Use Plan Update. All

damaged water and sewer systems (both public and private) shall

be repaired so as to be elevated above the 100 year floodplain or

shall be floodproofedg with the methods and construction approved

by a registered professional engineer. All damaged roads used

as major evacuation routes in flood hazard areas shall be

repaired so as to be elveated at least one foot above the

100-year flood plain elevation. Other loal roads that require

reconstruction should be elevated above the 100 year floodplain,

as well. As a minimum, all construction must meet the require-

101

ments set forth by the Town's ordinances on construction, as well

as the State Building Code. The County Commissioners will be the

legislative body to enforce these policies.

EVACUATION ROUTES AND TIMES

Evacuation is often necessary in pre-hurricane conditions

when high winds and water are anticipated to endanger the

health and safety of local residents. There are no provisions

for evacuation in the Bertie County Disaster Relief and Assis-

tance Plan, because of the limited threat of hurricane danger

for an inland Town. The following section describes the proposed

evacuation routes and times for the Windsor area. The data for

shelters and evacuation routes were taken from various sources,

including the Disaster Relief and Assistance Plan and the Bertie

County Emergency Management Coordinator.

An estimated 3000 persons would be required to evacuate

the Windsor planning area. There are two principal evacuation

routes. Southeastern Elementary and West Bertie Elementary

Schools are the designated evacuation shelters. A full descrip-

tion of the capacity and adequacy of these shelters is in the

Bertie County Disaster Relief and Assistance Plan.

Highways 13/17 and 308 are the principal evacuation routes

for the Windsor planning area:@ The Roanoke River bridge at

Williamston is a probable inundation point where traffic may be

brought to a standstill.

Techniques for determining evacuation times are outlined in

Before the Storm: Avoiding Harm's Way. The total evacuation

102

time is the sum of the following components: cut-off time,

mobilization time, travel timep and queing delay time. At.a

maximum travel speed of 35 mile s per hour, the ideal capacity

for Highway 13/17 is 455 vehicles per hour. Highway 308 can

accomodate 298 vehicles per hour. Following the model given, the

total evacuation time to Williamston (Highway 13/17) or Lewiston-

Woodville (Highway 308) is:

TOTAL EVACUATION TIME

Highway 17/13 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time 0.5 hrs.
Queing delay time 2.69 hrs.

TOTAL 9.69 hrs.

Highway 308 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time 0.5 hrs.
Queing delay time 2.95 hrs.

TOTAL 9.95 hrs.

The actual evacuation times may actually be shorter than those

provided above. These evacuation times are calculated for a

population of 3,000 in the event of a worst-case scenario. The

projected evacuation. times for these routes are well within the

12 hour limit in which the National Weather Service can predict

to effectively mobilize an evacuation effort. A sensitivity

analysis is recommended to test the validity of the evacuation

times. This can be done by adjusting the number of persons

involved in the evacuation, the mobilization time, or by recal-

cu lating the queing delay time. By doing this, assumptions which

103

are closer to reality may be introduced in estimating evacuation

time for area residents.

This analysis provides the Town with the opportunity to

consider adopting policies which would improve the capacity of

the evacuation routes. This is, however, beyond the scope of

this land use plan. It is recognized, though, that many factors

which affect local evacuation are beyond the control of the local

unit of government, but awareness of this problem is a first step

in improving the evacuation times for Windsor area residents.

SUMMARY

A small proportion of the Windsor planning area is threat-

ened by the hazards associated with hurricanes. In the event of

a major disaster, fifteen percent of the planning area would be

subject to flooding. Wind, wave action and erosion would not

have a significant impact. In-Town reconstruction standards will

be enforced according to the Floodway and Floodplain Ordinances,

which attempt to mitigate disaster in the future. The calculated

evacuation times for Windsor are within the time constraints for

a safe evacuation. It is suggested that efforts be taken to

improve the capacity of the evacuation routes for the area.

104

INTERGOVERNMENTAL COORDINATION

The Town of Windsor is responsible for reporting all of its

activities concerning storm hazard mitigation and hurricane

preparedness with the following agencies:

N.C. Division of Coastal Management
State Office: Division of Coastal Management
Department of Natural Resources and Community
Development
P.O. Box 27687
Raleighq NC 27611-7687
(919) 733-2293

Field Office: Division of Coastal Management
Department of Natural Resources and Community
Development
P.O. Box 1507
Washington, NC 27889
(919) 946-6481

N.C. Division of Emergency Management
State Office: Division of Emergency Management
Department of Crime Control and Public Safety
116 West Jones Street
Raleigh, NC 27611
(919) 733-3867

Regional Office: Area Emergency Management Coordinator
N.C. Division of Emergency Coordinator
607 Bank Street
Washington, NC 27889
(919) 946-2773

National Flood Insurance Program Information
Flood Insurance Coordinator
Division of Community Assistance
Department of Community Assistance
P.O. Box 27687
Raleighq NC 27611-7687
(919) 733-2850

Federal Emergency Management Agency
National Office: Federal Emergency Management Agency
500 C StreL-t, S. W.
Washington, D.C. 20472
Public Information (202) 287-0300
Publications (202) 287-0689

105

Federal Emergency Management Agency
Regional Office: Federal Emergency Management Agency
Region IV
1375 Peachtree Street, N.E.
Atlanta, GA 30309
Public Information (404) 881-2000
Disaster Assistance Program (404) 881-3641
Flood Insurance Program (404) BOI-2391

106

STORM HAZARD MITIGATION AND POST-DISASTER RECONSTRUCTION

POLICIES

Policy Choices

1. Support county Storm Hazard Mitigation and Post

Disaster Reconstruction Policies.

2. Town will discourage redevelopment of destroyed

structures in same manner as prior to storm.

3. Develop a Recovery Task force for the Town.

4. Increase public awareness and preparedness.

5. Because of lack of land and the limited risk

associated with hurricane flooding, the Town will support

reconstruction of public facilities at same location. All

structures will be rebuilt according to the guidelines of the

Floodway and Floodplain ordinances in order to mitigate future

risk from hurricanes.

Implementation Schedule

1. Stay abreast of changes in Bertie County Disaster

Relief and Assistance Plan.

2. Discourage property owners from rebuilding des-

troyed structures without taking mitigative precautions during

the construction phase. Town will also work with the Federal

Flood Insurance Rate Program- in working to include all ar eas

flooded by storm into the FFIRP maps. If areas are included in

FFIRP maps, the regulations set forth in the Floodway and

floodplain ordinances will establish reconstruction standards.

3. Recovery Task Force members will include:

Mayor of Windsor

107

Planning Board Members

Rescue and Fire Squad Volunteers

Medical Board

Town Administrator

4. Educate Town employees and public about evacuation

procedures about their responsibilities in storm situation.

5. Use mitigative construction standards in recons-

tructing public facilities destroyed in a storm.

108

PUBLIC PARTICIPATION

Windsor realizes the importance of incorporating public

input into the planning process. During the development period

of the land use plan update, several techniques were employed to

encourage the involvement of Windsor area residents in the land

use plan's policies.

At the beginning of the planning periodv a citizen partici-

pation plan was developed. At the first meeting, the planning

board decided to schedule regular monthly meetings every third

Tuesday from November, 1985, until the completion of the plan.

It was decided that all planning board meetings concerning,the

CAMA Land Use Plan update should be made public. Citizen input

was to be strongly encouraged.

The board decided that initially, emphasis would be placed

on public education about the land use planning process. It was

felt that once the public understood the importance of the plan,

the public would feel a desire to be involved in it. An effort

was made to inform the public about the existence of the plan and

the importance of citizen's contribution on policy recommenda-

tions.

This was done in a variety of ways. First, news articles

appeared in the local newspapers which discussed the plan and its

purpose. Press releases were sent to three newspapers: the

Bertie Ledger-Advance, based in Windsor; the Williamston Enter-

prise, and the Martin Monitorl based in Williamston. The purpose

of the articles was to explain the role of the CAMA plan and the

the issues addressed in it. Other methods of public education

109

involved direct communication with Windsor residents by planning

board members.

In addition to the public education efforts, press releases

were sent to the local newspapers prior to each meeting.

Included in the press release was a description of the land use

plan and its purpose as well as the agenda items. Upon comple-

tion of meeting, another news article was sent out which des-

cribed the meeting's events. The combination of these newspaper

articles intended to promote the understanding of the land use

planning process as well as to encourage the public to provide

their opinion on various issues. An example of a newspaper

article is included as Appendix B.

Another measure was taken to attract citizen input.

Letters were mailed to various civic and industry leaders in the

community (Appendix C). Special attention was given to solici-

ting names from a wide cross-section of individuals. Economic,

social, ethnic and cultural view points were considered in

developing the list. The intent of the letter was to educate

the individuals about the plan and to provide an invitation to

attend the public meetings. This proved to be effective, as

citizen attendance increased markedly at subsequent meetings.

Draft sections of the plan were also made available for

public review. A current draft of the plan was kept in the Town

Hall and the public w as encouraged to make written comments on

it. The purpose was to have as much citizen input as possible.

It is the belief of the Windsor Planning Board and Town

Commissioners that all citizens should be provided adequate

110

opportunity to participate in the governmental and planning

decisions which affect them. In the future, citizen input will

continue to be solicited, primarily through the planning board.

All upcoming meetings will be advertised and adequately publi-

cized to help keep citizens informed about the land use changes

oc curring in their community.

lit

LAND CLASSIFICATION SYSTEM

The land classification system is a tool to identify the

anticipated land uses within a planning area. The land classifi-

cation map, the culmination of the land use planning efforto

designates specific areas for certain types of development

activities. It provides a uniform method of analyzing how the

planned use of land interacts with environmentally sensitive

areas during the development process of the Town. The land

classification system promotes an understanding of the relation-

ships between various land use categories and the need to develop

policies to accommodate these relationships. The focus is to

evaluate the intensity of land utilization and the level of

services required to support that intensity. According to the

CAMA guidelines:

"The land classification system provides a framework to be

used by local governments to identify the future use

of all lands. The designation of land classes allows the

local government to illustrate their policy statements as

to where and to what density they want growth to occurg

and where they want to conserve natural and cultural

resources by guiding growth." (7B.0204) (b)

The CAMA guidelines include five general land use classifi-

cations for the land classification map: Developed, Transitiong

Community, Rural and Conservation. Their definitions are ranked

according to the intended intensity of land uses within them.

Areas classified as "Developed" require the traditional level of

services associated with urban areas. "Transition" zones should

112

include areas developing or anticipating development which will

eventually require urban services. Lower density areas which

will not require services should be classified as "Community".

Areas classified as "Rural" should be reserved for low intensity

uses such as agriculture, forestry, mineral extraction and highly

dispersed housing. Public water and sewer will not be provided

in rural areas. The purpose of the Conservation class is "to

provide for the effective long-term management and protection

of significant, limited or irreplaceable areas" (NCAC 7B).

Public or private services should not be provided in this land

classification.

The five land classifications and land classification map

are intended to serve as a visual definition of the policies

stated in this plan (Figure 16). The five land use classifica-

tions, as they are applied in the Windsor planning area, are

discussed below.

DEVELOPED

The Developed land class -1fication is intended for continued

intensive development and redevelopment of urban areas. it

includes areas already developed as urban or those areas with a

density of approximately 500 dwellings per square mile. In

most cases, the Developed class includes all urban areas.

In the planning areaq most of the land within the Windsor

Town limits is classified as Developed. Exceptions include the

forested wetland area east of the downTown area. Nearly all of

the residents in the Developed area are served by sewer and

water service.

Figure 16 113

LAND CLASSIFICATION MAP

The preparation of this map was financed in part
through a grant provided by the North Carolina
1, 7. Coastal Management Program, through funds provided
by the Coastal Zone Management Act of 1972, as
amendedv which is administered by the Office of
Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

Developed
rr.
Transition

Community

Rural

Conservation

1.14

TRANSITION_

Transition land, is categorized as the lands providing for

intensive urban development within the ensuing ten years. These

areas will be scheduled for provision of water and sewer in the

future. They will also serve as the overflow sites for develop-

ment when additional lands are needed to accommodate growth.

They will eventually become a part of the urban area.

The Transition classification includes the areas located

adjacent to the transportatio'n' routes that run through Windsor.

An additional concentration of the transition class exists

between the Town limits and Highway 13 Business extending south

on both sides of Highway 17 south of Town. Other areas classi-

fied as transition are the currently undeveloped areas in

the vicinity of the industrial park. The existing land'use

analysis showed that these areas are undergoing a transition

from undeveloped agricultural and forested land to residential

and industrial land uses. Most of the transition areas do not

have physical constraints to limit these changes in land use;

many of the soils are generally suitable for septic tanks and

all of this area is outside the hurricane hazard zone.

The relationship between the Developed and Transition

classes is important in a predominantly rural area like Bertie

County. The area within these classes is where detailed local

land use and public investment planning will occur. Large

amounts of vacant land suitable for urban development. within the
Developed class should be taken into a ccount when ca'Iculating the

amount of additional lands needed to accommodate projected

1.15

growth. The local zoning ordinance recognizes this by speci-

fying allowable land uses and intensity of use in zones within

the Developed and Transition land classes. The Developed areas

are served by sewer and water and are zoned for commercial,

industrial and residential uses. The Transition areas are

zoned as having potential for future growth. The zoning ordin-

ance specifies some of these areas for rural uses, but areas

along traffic arteries are incrementally zoned for less intensive

commercial and residential uses. The zoning ordinance recognizes

that future development will likely occur in the se areas.

COMMUNITY

The "Community" classification is usually characterized by

a small cluster of mixed land uses in a rural area which do

not require municipal services. It usually serves to meet the

housing, light shopping, employment and public services needs of.

a rural area. The Community classification typifies crossroads

areas along primary and secondary roads.

In the Windsor planning area, the only area classified as

Community is in the vicinity of the Sandy Point Church. This

community includes a small cluster of homes and several churches.

It is anticipated that Windsor's municipal services will be

extended to this community. Wells and septic tanks currently

serve the basic needs of this community, and there is a limited

need to provide additional services to this area.

RURAL

The "Rural" classification is designed for agriculture,

forestryl mineral extraction and other low intensity uses.

116

Urban services are not required because of the great dispersion

of development in these areas. These are lands identified as

appropriate locations for resource management and related uses;

agricultural, mineral, or forest lands; or areas with enough

limitations to make development hazardous or economically

unfeasible.

Much of the land within the planning area is categorized as

Rural. Most of this land is under currently under agricultural

and/or forestry production, but other uses can be accommodated.

The Resource Production and Management policy statements empha-

size that development should not be precluded from the agricul-

tural lands located in this classification; this designation

merely implies that urban services will not be extended to

accommodate future development within the next five years. if

development seems probable, the Town Board can amend the land

classification map.

CONSERVATION

The "Conservation" class provides for the effective long

term management of significant, limited or irreplaceable re-

sources. This includes, as a minimum, all of the statutorily

defined AECs. In Windsorg the AEC includes the public trust

waters of the Cashie River. The hardwood swampforests located

in the Cashie floodplain are also included in the Conservation

class. They extend for a distance of 100 feet back from the

mean high water mark on both banks of the Cashie R iver. Swamp-

forests9 although recognized for their uniqueness, are not

1.17

considered AECs, and are therefore not protected by. the State

regulations.

The Conservation class does not imply "non-use". It is

intended to provide for careful and cautious management of the

uses allowed in it. Preservations on the other handq implies

total restriction of all uses in an effort to keep the natural

environment in tact. Thro ugh conscientious management, the

Conservation class requires all uses to be as unoffensive as

possible. The intention of the Conservation class is to strike a

balance between careful long-term management of sensitive natural

and cultural resources and the freedom of landowners to utilize

their property to its best use.

Within the public trust water AEC, development is regulated

by the State. All development permit applications must be made

to the Division of Coastal Management. The swampforestsp

although not recognized as AECs9 are considered wetlands by the

federal government. All non-coastal wetlands are under the

jurisdiction of the Army Corps of Engineers Section 404 Dredge

and Fill program. Any development projects that propose to fill

the wetlands with the intenti on of altering their characterg

must be permitted by the Corps. Additional wetland protection

measures have been set up by the Town. The Floodway Ordinance

prohibits any type of construction within 100 feet of the natural

floodway and the FloodpI ain Ordinance sets construction standards

for all development located in the floodplain. The Town has

opted to protect all areas classified as Conservation (See

Resource Protection policy statements).

118

In order to protect its natural integrityg various types

of land uses should be prohibited from the Conservation classifi-

cation. The Town has decided that the NCAC permitted uses for

statutorially-defined AECs are consistent with the Town's long

term goal of resource protection. The Town does not feel the

requirement to add specific uses to this already satisfactorily

list of restrictive uses. All uses permitted in AECs by the

state will be considered consistent with the Town's objectives.

Jn order to maintain consistency with the Resource Protec-

tion policy statements to protect water quality by encouraging

the maintenance of natural vegetation as a filtering device for

pollutants, severe deforestation activities will be discouraged

in the swampforests located in the Conservation areas. Each

logging request must be brought before the Town Board and

reviewed on a case-by-case basis. The Town realizes that this

is more restrictive than the state and federal government

guidelines for allowable uses. The removal of any vegetation

along the shoreline increases the potential for pollutants to

enter the Cashie. It is al so intended to protect the valuable

hardwood swampforest's role as a wildlife habitat.

For illustrative purposes, the Town will also allow the

following types of uses * in the Conservation class:

1. Water-oriented uses such as docks, piers and

marinas, if they are shown not to cause detriment to the public

trust waters or Conservation lands.

2. Necessary utility servic e lines, such as waters

sewer, electrical, natural gas, etc.l when demonstrated that the

119

environmental integrity of the Conservation area will not be

violated.

3. Roadways and improvements to existing roads when

construction of roadways can be conducted without significantly

altering the ecological system, and in compliance with existing

federalq state and local regulations.

4. Marinast provided that they are in compliance with

size and water quality requirements set by state.

* Note: This list is for illustration only. Specific uses

permitted in the wetlands and public trust waters will be

determined by the ap@ropriate state and federal authorities, and

the Town Board. For more detail on the permitted uses in the

Conservation classifications please refer to NCAC Subchapter 7H

for permittable uses in AECs.

In conjunction with the Policy Statements section of this

plan, each application for a "developed" use in the Conservation

classification shall be reviewed individually by the Town Board.

120

RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION

As required by the Coastal Resources Commissions this plan must

discuss the manner in which the policies developed in the

Policy Statements section will be applied to each of the land

classes. In addition, an identification must be made of the

types of land uses which are appropriate in each class.

DEVELOPED AND TRANSITION CLASSES

Recent trends have shown that most of the growth in the

Windsor planning area is occurring on the fringes of the Town

limits, as well as in previously developed areas in Town. This

is the area where basic services such as watert sewer and

community support services are available or might be feasible

within the planning period. These classes are designed to

accommodate all intensive land usest including residential,

commercial, industrial, transportation and community facilities.

Hazardous or offensive usest such as land application systemsv

electrical generating facilitiest airportso and noxious indus-

tries will not be permitted in the classes.

COMMUNITY CLASS

Intensive development will not be encouraged in this class

due to the lack of urban services and/or physical limitations.

The general range of acceptable uses are limited to residences,

isolated convenience stores and churches, And other public

facilities.

RURAL CLASS

The rural class is the broadest of the land classes and is

designated to provide for agriculture, forest management,

121

mineral extraction and other low intensity uses. Development

will be allowed in these areas. Residence may be located within

the rural class where urban services are not required and where

natural resources will not be permanently impaired. Energy-gen-

erating facilities and airports will be limited to this class.

CONSERVATION CLASS

The conservation class is designed to provide for the

effective, long-term management of significant limited or

irreplaceable areas including Areas of Environmental Concern and

the hardwood swamp forest located adjacent to the river.

Development in the riverine system should be limited to uses

described in the NCAC Subchapter 7H. In addition to development

restrictions in wetlands established by Section 404, the Town

has decided to limit other land use practices in order to

maintain consistency with ott'her policy statements to protect

water quality. Logging and other deforestation.activities will

not be permitted in the hardwood swampforests within 75 feet of

the mean high water mark in the Cashie River without the express

permission of the Windsor Town Board. This policy is an attempt

to mitigate the effects of storm water runoff on the river. -The

removal of any type, of vegetation from this area will increase

the potential for pollutants to enter the riverine system. The

previous section entitled "Land Classification System" addresses

Windsor's intentions for development in fragile areas.

122

INTERGOVERNMENTAL COORDINATION

The land use plan is a tool for coordinating numerous

policies, standardso regulations and other governmental activi-

ties. The plan provides the framework for budgeting, planning,

and the provision and expansion of community facilities such as

water, sewer, school and road systems. It is the principal

policy guide for governmental decisions and activities which

affect land use in the Windsor area. The implementation of

policies in the land use plan requires coordination between the

local government and the state and federal governments. Enforce-

ment of the policies and goals requires a consistency with the

higher levels of government, The formation of a policy without

means of enforcement defeats the intention of the land use plan

update.

Windsor has worked to ensure compatibility between the

Bertie County and Windsor Land Use Plans. There appeared to be.

no inconsistencies between the policies in each plan. A good

working relationship exists between the Town of Windsor and

Bertie County. During its development periodg the plan was

continuously evaluated for its consistencies between state and

federal regulation.

The Town of Windsor intends to foster i ntergovernmental

coordination by working with state and federal agencies to

implement policies to improve water quality, as well carry out

goals for the agriculture, forestry and commercial fishing

industries. In addition, Windsor will work with the N.C.

Department of Cultural Resources in protecting and enhancing its

1.23

heritage. Coordination between the Division of Coastal Manage-

ment and U.S. Army Corps of Engineers will be maintained in the

permitting process for development in areas classified as

wetlands. All additional efforts will be made to promote

cooperation between the state, federal, county and local govern-

ments.

APPENDIX A 1.24

FEDERAL DEVELOPMENT REGULATIONS

Agency Licenses and Permits

Army Corps of Engineers - Permits required under
(DEPARTMENT OF DEFENSE) Sections 9 and 10 of the
Rivers and Harbors Act of
1899; permits to construct
in navigable waters.

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

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

Coast Guard - Permits for bridgest cause-
(DEPARTMENT OF TRANSPORTATION) ways and 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-
Bureau of Land Management shore drilling.
(DEPARTMENT OF INTERIOR)
- Approval of OCS pipeline
corridor rights-of-ways.

Nuclear Regulatory Commission - Licenses for siting, con-
(DEPARTMENT OF ENERGY) struction and operation
of nuclear power plants
required under the Atomic
Energy Act of 1954 and
Title Il of the Energy
Reorganization Act of
1974.

3.25

Federal Energy Regulation Permits for construction,
Commission (DEPPARTMENT OF operation and maintenance
ENERGY) of interstate pipelines
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.

Permission required for
abandonment of natural
gas pipelines and associated
facilities under Section
X (b) of the Natural
Gas Act of 1938.

Source: CAMA Land Use Plan Updatev Hertford Countyp NC,
1980.

1.26

STATE DEVELOPMENT REGULATIONS

Agency Licenses and Permits

DEPARTMENT OF NATURAL RESOURCES Permits to discharge to sur-
AND COMMUNITY DEVELOPMENT face waters or operate waste-
water treatment plants or oil
discharge permits; NPDES Per-
mits, (G.S. 143-215).

D ivision of Environmental Permits for septic tanks that
Management serve industrial process
water flow or are community
owned. Such systems owned
by the State or Federal
government are under the
jurisdiction of the Health
Department, (G.S. 143-215.3).

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. 137-88).

Division of Coastal - Permits to dredge and/or fill
Management in estuarine waters, tide-
lands, etc. (G.S. 113-229).

- Permits to undertake develop-
ment in Areas of Environ-
mental Concern (G.S. 113A-
11B).

Note: Minor development
permits are issued by the
local government.

127

DEPARTMENT OF NATURAL RESOURCES - Permits to alter or construct
AND COMMUNITY DEVELOPMENT dams (G.S. 143-215.66).
Division of Land Resources
- Permits to mine (G.S. 74-51).

- Permits to drill exploratory
oil or gas wells (G.S. 113-
381).

- Permits to conduct geograph-
ical explorations (G.S.
113-391).

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

Secretary of NRCD - Permits to construct oil
refineries.

Department of Administration - Easements to fill where lands
are proposed to be raised
above the normal high water
mark or navigable waters
(G.S. 146.6).

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
r, esidences (G.S. 130-
160.1).

Permits for sep tic tank
systems of 3000 gallons/day
or less capacity (G.S.
130-160).

Source: CAMA Land Use Plan Updatep Hertford County, NC,
1980.

Bertie Ledger-Advance Appendix B .128

Thursday, November 28, 1985
Windsor begins land use plan
WINDSOR - The town of participation is encouraged. The East will be providing technical
Windsor took the first step next meeting is set for 7 p.m. assistance to the Town. The com-
Wednesday night of last week December 17 In the Wind r ponents include policy issues
toward setting the town's land 'Town Hall. such as resource protection, pro-
use goals and priorities for the The land use plan update is a duction, and management. plus
next five years. document used to assess and economic development.
The Windsor Planning Board guide development. Each of 2D Robert Paclocco from Mid-
met to discuss the organization counties covered by North East discussed techniques for in-
and development of the 1986 land Carolina's Coastal Area Manage- creasing public involvement.
use plan update.. The meeting ment Act must update their land Planning Board Chairman
was designed to Introduce the use plan every five years. Plans Laurence Carter presided at the
board to the planning process are optional for municipalities meeting.
and t6e.board's responsibilities such as Windsor.
in plan development. Lynn Phillips of the In addition to public meeting,
Washington, . N.C., based Mid- the Planning Board will explore
The Planning Board -will meet East Commission outlined com-' other methods of public educ -
monthly to discuss the plan. All ponents of the plan to be address. tlon, Including appearances on
meetings are'open. and public ed by the Planning Board. Mid-. local radio and television.'

Thursday, January 30, 1986
.Planning, board, goals. met
Use Plan every five years. checked over the,completed Part
WINDSOR Windsor got a Municipalities, like Windsor. of Its 1986 plan which'analYm
B.Plus, I on its report card which
shows how well goals are ac- have the option of updating their the existing socioeconomic and
plans as well.' land use trends. Planner Lynn
complished. In a checklist format, each Phillips of the Washington-based
The town's planning board met Commission presented
last week to discuss the Land Use policy - and implementation 'Mid-East
Plan which is being updated. The strategy was analyzed to assess the plan to the board. The safe
how the town has moved forward placement of septic tanks in the
meeting focused on the policies mlt of
and goals set in the 1981 plan and In reaching each goal. Out of the one-mile jurisdictional I
how well the implementation dozen implementation strategies town was also discussed.
procedures have been carried listed, 11, or 91 percent, had been.
out since that time. either partially or completely The next meeting of the Plapn:n
fulfilled. Each policy and im- Ing Board is scheduled at 7 p.m.
The ILand Use Plan update is a plementation strategy dealt with February 18 in the Windsor Town
document used to assess and the issue of resource protection, Hall. -The agenda will cover the
guide development. Each of 20 production and mangement, as. town's current policies '. on
counties covered by North well as economic and community resource protection. All peOPWOf
evelopment.- the community are invited.to at-
Carolina's Coastal Area Manage- The Planning. Board Also tend.
ment Act must update its Land

16 Thursday, April 3,1986 Bertie Ledger-Advance

Windsor Planning Board stressing water quality
WINDSOR - The Windsor planners decided that farmland Area Management Act Land Use assistance oh the plan. Resource
Planning Board,has decided to protection efforts will, for the Plan. The planning board met ecologists Melissa McCUIl0U9b
stress water quality and not to near future, take a. back seat to Monday night of last week with and Rich Shaw from the Division
emphasize the protection of other forms of economic develop- consulting planner Lynn Phillips of Coastal Management gave a
prime agricultural land. ment. of the Mid-East Commission,
In proposing policy for the Windsor is updating its Coastal., who provided technical (See BOARD, Page 16)
town's 1986 land use plan update
last week, the planning board in- i
cluded policies to protect water
quality and the recreational Board (From Pagel)
fishing Industry in the Cashie
I River.
The Board also elected not to presentation on the merits of McCullough noted. When a development.
Economic develop-
emphasize protection of prime water quality protection. farmer loses chemicals from his ment is a high'priority and the
-agricultural land. Citing the I McCullough told the board that fields after a big rain, he is Town should not prevent any
abundance of farmland in the "all our natural resources are in- washing away his investment other type of land use to locate on
area and the number of farmers terrelated. What happens with and subsequently, money, Shaw well-drained agricultural soils.
being paid not to grow crops, the the soils in one area will certain- added. "It makes good economic They proposect policies an
ly have an Impact on the water of sense to work toward protecting siting marinas and similar
another area." She cited the the water quality." facilities, and establishing a con-
paper mills upstream on the In discussing farmland in the servation buffer zone along the
Roanoke as an example. "Every area, the board agreed that there shoreline. They also voted to re-
toilet flush will impact some is not a shortage of profitable soil quire any proposed mining ac-
other resource at a later time." types. The U. S. Sol] Conserva- tivities to apply for a special use
The board discussed the im- tion Service has identified permit from the planning board.
portance of the recreational several aras in and around Wind- The land use plan Is not yet
fishing industry to Windsor. sor as "prime agricultural finalized, and public input is en-
Water quality mu;t be good to land". Preventing non- couraged. The board will meet
maintain the vitality of this in- agricultural development on this again at 7 p.m. April 15 In the
dustry, which provides a signifi- land should not be a short-term Town Hall to discuss the plan.
cant boost to the overall economy priority. Economic and community
of the area. The board felt that due to the development issues will be on the
Good water quality initiatives recent glut in farmland, it should agenda. All Windsor arae
also save money in the long-run, . not discourage any type of residents are invited to attend.

1.30

Thursday, April 24,1986 Bertie Ledger-Advance 3
Desirable industries identified

WINDSOR - Industries ditional cost cuts on utilities fees, The board also decided to
related to furniture manufactur- Overton said. The town is able to discourage elect rical-generating
Ing. electronics, automobiles and offer reduced electrical rates facilities, similar to the one pro-
plaslIcs would be well-suited to because of Its ability to produce posed by Vepco last year. Any
the Windsor planning area, the its own power by means of a energy-generating facilities in-
Planning Board decided. generator. The reduced electrici- terested in the town must apply
The board met Tuesday night ty costs often amount to a signifi- for a special use permit from the
of last week to discuss the policy cant savings to a potential In- Planning Board. The plant would
recommendations for the Land dustry, thereby providing an ad- be limited to area classified as
Use Plan update. Intergovern- ded incentive to locating In the "rural" on the land classification
mental coordination. citizen In- Windsor area. map. This eliminates the re-
volvement and economic and Although excessive growth is quirement for the town to
community development were currently not a problem for the automatically provide the
some of the issues discussed. town, a population ceiling of 7,ooo necessary urban services for a
persons should be set to avoid local industry.
The land use plan is a docu- problems in the future. This The plan is not yet finished,
ment used to guide and assess figure represents the maximum and public opinion Is still being
develop.aent. Windsor Is up- capacity of the municipal water encouraged. A rough draft of the
dating its 1981 plan. Lynn system. Any persons added on to completed sections of the plan is
Phillips of the Mid-East Commis- the system more than the limit of available for public inspection in
sion is providing technical 7,000 would ''unduly tax the the Town Administrator's office.
assistance on the plan. system, thereby creating the The next meeting of the Plann-
High-skilled, high-paying jobs. need for an addition to the ing Board is scheduled for May
are what the town needs and In- system. The town's population Is. 27 at 7 p.m. All interested per-
dustry which falls into this currently around 2,200 persons. sons are invited to attend.
category would be especially
welcome to the planning area.
However, any Industry must
meet the town's objectives for
resource protection, as well as
resource production and
management. The board felt that
all industry should be low pollu-
tion to remain consistent with
other goals for protection of
valuable natural resources.

The town- is also committed to
providing services to all poten-
tial industry. Town Ad-
ministrator David Overton
stated that special rates are
available to industries that
employ a certain number of
workers. Additional jobs made
available by that firm mean ad-

131

Thursday, June 26,1986 Bertie Ledger-Advance
Future growth areas talked

WINDSOR - The Windsor North were placed In this munity Development policies
Planning Board met Tuesday category. that had been formed at earlier
night of last week to discuss Significant natural areas, such meetings. Planner Lynn Phillips
areas of future growth in Wind- as the Cashie River and Its hard- of the Mid-East Commission
sor as identified on the Land wood swamp floodplain, were answered questions on these sec-
Classification map. placed in the Conservation class. tions of the Land Use Plan.
The Land Classification map is In order to protect the natural All parts of the plan have been
a visual summary of the town's resource, all land uses occurTing written and are in draft form.
Intentions for growth over the in these areas must be restricted The .public is able to pick up
next 10 years. It is a component in some manner. In addition to copies at the Town Hall for
of the 19M Land Use Plan update, the protection Imposed by this review. The final draft of the
a document used to guide growth classification, the Town's Flood- plan should be ready by mid-July
and existing develbpment in the way and Floodplain ordinances for submission to the Windsor
ndsor planning area. The restrict the amount and form of Town Council.
Board has been working on the development in the floodplain.
WPI'an since November. Only water-dependent uses
The Land Classification map which do not require the tradi- 01MAYMG
categorizes land into four tional water and sewer services
categories based on the amount provided by the Town are per
of development that currently mitted In the Conservation area- Sales & Service
exists or is planned to take place The Board also elected to restrict
through annexation or other the amount of logging in the Harrell's
types of development. The swampforest by requiring a
Developed classification iden- review of all logging proposals Auto & Sports
tifies areas that are currently by the Town Council.
served by water and sewer and The Board also reviewed writ- Store
other urban services. Most of the ten drafts of the Resource Pro-
land within the town limits was tection, Productio'n and Manage- Main Street
placed into this classification. rrfent and Economic and Com- Ahoskie, N. C.
The Transition classification
shows areas undergoing a slow - - - - - - - - - - --
change from undeveloped to an-
ticipated growth. Land situated
between the town limits and EX. Ferro, DeDeSe
Highway 13 Business and areas
adjacent to Highways 13 and 17
ILK regretfully announces that
r

Appendix C 132

MID-EAST COMMISSION

February 3, 1986

Mr. James Gilliam
Ghent Street
Windsor, North Carolina 27983

Dear Mr. Gilliam.:

The Town of Windsor and the Mid-East Commission are currently
engaged in updating the 1981 Windsor Land Use Plan. The land
use plan is a document used to assess and guide development.
It will be used by the county CAMA Permit Officerss developers
and other stated and federal agencies to make decisions about
deve'lopment and preservation activities in the town.

Thus far, our work has concentrated on establishing a data
base on the existing conditions, all plans and policies, and
physical constraints which might pose a development impediment
in the future* The next task of the planning board is to
formulate 'recommendations for policy on future development
issues.

Your input in this decision-making process is essential. You
have been listed as one of the more prominent residents in the
Windsor community who has an, interest in the future of the
town. We invite you to be heard in the community forum.
During the next meeting scheduled for February 18, we will
begin making policy statements on resource protection in the
area. Also, we will be discussing the most relevant issues
facing Windsor today. The incorporation of your opinion on
these issues is one of our goals.

The meeting is scheduled for February IS at 7:00 pm in the
Town Hall. Subsequent meetings will be held on the third
Tuesday of each month at the time given above. We encourage
you to attend to provide guidance and direction.

E. Peterson Building 0 310 West Main St 0 P0. Drawer 17874 Washington, North Carolina 27889 w (919) 946-8043 J

133

If you have any questions about the plan and its purpose or
the.meetingt please feel free to call me. We look forward to
working with you to guide the future of your town.

Sincerely,

Lynn Phillips
Consulting Planner

LP/Irw

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