Executive summary, Coastal Area Management Land Use Plan update, Windsor, North Carolina

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

EXECUTIVE SUMMARY

COASTAL AREA MANAGEMENT

LAND USE PLAN UPDATE

WINDSOR, NOR7hi CAROLINA

THE PREPARATICA OF THIS REPORT WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROL INA COASTAL MANAGEIVENT PFrGRAN!,
THROUGH FL.NDS PROVIDED BY THE CCASTAL ZONE
MANAGEMENT ACT OF 1972, AS AMENDED, WHICH IS
ADMINISTERED BY THE OFFICE OF COASTAL ZONE
MANAGEMENT, NATIONAL OCEANIC AND ATMOSPHERIC
ADMINISTRATION.

11D 1981
268
.W56
E94
1981

The following is s summary of the Tnwn of Windsor's CAMA Land Develop-

ment update. The update is consistent with the requirements of the Coastal

Area Management Act. It was written in accordance with the amended Land

Use Planning Guidelines effective as of Septernber'l, 1979, Thus, the

update and the original 1976 Plan will serve as a "blueprint" for future

development in the Town of Windsor.

The CAMA Guidelines state that the major purpose of periodic updating
@f local land use plans is to identify and analyze emerging community

issues and problems.

The guidelines further give the following objectives the update

should meet:

1) to further define and refine local policies and issues;

2) to further examine and refine the land classification system

and the land classification map;

3) to assess the effectiveness of the existing land use plan and

its implementation;

4) to further explore implementation procedures; and;

5) to promote a better understanding of the land use planning process.

What follows are the issues that were defined in the update, possible

policy alternatives, the community's chosen policies, and a description

of how the adopted policies will be implemented.

A. ISSUE - RESOURCE PROTECTION

Certain natural resources within the coastal area contain unique features

that give them particular*environmental value. The Coastal Resources

commission has designated these unique features as areas of environmental

concern. The only Area of Environmental Concern within the town is the

Public Trust Waters - These waters are defined as all navigable waters
US Department of Commerce
NOAA Coaaa Services Center Library
2234 South Hobson Avenue
Charleston, SC' 29405-2413

within the town and its planning area. A full description of these waters

can be found in the original CAMA Plan (p. 87.) Local officials feel that

recreational uses are appropriate for this AEC. Officials stress activities

such as fishing, boating and wading for this area. Activities the town

will prohibit in these waters include use as a drinking water supply and

for culinary or food-processing purposes.

Turning from Windsor's only AEC an examination of the town's other

resources must be made including a description of their constraints. The

constriants: land suitability section of this plan indicated that Windsor

had two types of physical constraints to development. The first

constraint is a man-made hazard involving the town's storage areas for

oil and petroleum. Development surrounding these storage areas is

directed by the Windsor Zoning Ordinance. The use of this ordinance to

direct future development close to these areas will assure compatible land

uses. The second constraint is a natural hazard.in the form of a flood

hazard area. This area is located within the Cashie Flood Plain. Develop-

.ment is directed by use of the town's floodway ordinance. Windsor is

also under the Emergency Flood Insurance Program.

Windsor's elevation and frequent flooding have caused a problem for

some soil associations within the planning area. Therefore, the soils

in the planning area-can also present a constraint to development. Refer_

to the constraints- and land suitability section in the update for a full

description of the problem concerning the soils. Local officials have

indicated that they will use the completed soils survey report to help

local residents make better land use decisions.

Other natural resources found within.the Windsor Planning Area

include the agricultural and forest lands. These lands are dominate in

land use and also have a significant impact on the,town's economic base,

as the economy and population section of the update denotes. Therefore,

the proper management and protection of these resources is important

concerning the economic well-being and social stability of the Town

of Windsor.

Windsor contains approximately twenty-three (23) historic structures

of significance. These historically significant structures have helped

the town realize the need for establishing a district for the protection

of the town's only historic resources. The establishment of such a

district indicates concern regarding the town's past history.

Presently, the County prepares hurricane and flood evacuation

plans for all municipalities within the County. Therefore, Windsor

officials do not have to prepare such documents for the town. The needs

for such plans are obvious and continued participation with the County

in such plans will assure adequate protection for the town.

Policy Alternatives

(1) The Town could choose not to protect its natural resources.

This alternative should be unacceptable because of the important

role natural resources play in the overall economy of the

Town.

(2) The Town could plan facilities so that they will not impact

historically significant properties. As mentioned earlier, the

town is establishing a historic district which will contain the

majority of the town's historic sites. Preserving and

protecting this area could bring tourist dollars into the

town.

(3) The Town could allow no development in AEC. It is not clear

under this alternative whether the Town has the statutory

authority to allow no development at all in AEC.

(4) The Town could allow limited development in its designation

AEC such as: piers and wharfs. This alternative is consistent

with the CAMA Guidelines and is considered to be more

feasible than the preceding alternative.

(5) The Town could support all federal and state programs aimed

at protecting fragile environmental areas.

(6) The Town could or could not develop its own hurricane and

flood evacuation plans or continue to be a part of the

County's plan.

PoliSy Choices

1) The Town will discourage development that is found to be

non-compatible to the local soil characteristics.

(2) The Town will not support development that negatively

affects -hazardous or fragile land areas such as AEC and

historical andarcheo logical properties.

(3) The Town will allow limited development in its designated

AEC's consistent with 15 NCAC 7H, 7J, 7K, and 7M.

(4) The Town will continue to be included in the County's

Hurricane and Flood Evacuation Plan.

Description of the Proposed Implementation Procedures

(1) The town council and town administrator will make the recently

completed Soil Survey an important part to the town

development process by 1982.

(2) The Town will not provide services to projects that could

have a negative impact on fragile or hazardous environmental

areas. These services include water and sewer services,

solid waste disposal, and recreational facilities.

(3) The town administrator (permit letting officer) will continue

to enforce the CAMA minor permit letting system in

designated AEC's.

B. ISSUE - RESOURCE PRDDUCTION AND MANAGEMENT

As mentioned earlier, natural resources in and within close proximity

to the town include the productive agricultural and forest lands. Windsor

also has one designated AEC. All of these resources impact on the local

community in some way, thus, they should be properly managed to assure

continued benefit to the town. What-follows here is a discussion of

these resources and their impact on the Town of Windsor.

Productive agricultural lands encompass approximately 1,858 acres

and are located throughout the town's one-mile area. All agricultural

lands are currently devoted to crop production or have crop production

as their primary function. Presently, twelve percent (12%) of the local

firms are involved in agricultural activities.

Forest production also has a positive impact on the local economy.

These land uses are also located throughout the tiDwn's one-mile area.

Presently, sixty-three percent (63%) of Bertie County's manu facturing

firms are located in Windsor*and are related to forestry activities.

When we combine forestry,with agriculture the economic impact is very.

significant. Together they comprise seventy-five percent (75%) of

the local firms involved in forestry and agriculture. However, the

adverse affects of the operations of both activities should be weigh,@@d.

Operations such as draining and ditching should be watched because

of the possible effects it,could have on another industry or resource,

namely fishing. However, Windsor has no vast amount of commercial

or recreational fishing. TMis, improved agricultural and forest

programs and proper management could increase the yielding production

of these resources-.

As aforementioned, Windsor has no commercial fisheries. The

7bum does have an AEC, Public Trust Waters. Public trust areas are all

waters in the coastal zone in which the public has acquired rights by

prescription, custom, usage, dedication or any other means. In

Windsor's.case these waters are used for recreational fishing and other

uses.as prescribed by the CAMA Guidelines. Proper management should

continue to be given to this area because of the aesthetic value and

potential for economic development.

off-road vehicles have not caused any problems in Windsor, there-

fore the Town has no policy regarding this issue.

Policy Alternatives

(1) The Town could not be involved in any-resource productioii or

management activities. This alternative should be unacceptable

because of the economic impact those resources have on the

Thwn.

(2) The Town could support all federal and sta-.:e programs dealing

with the management of commercial and recreational fisheries.

There is no commercial fishing occurring within the town,

however, there is a need to protect the little recreational

fishing that currently exist.

(3) The Town could support all federal and state programs that

deal with the management of commercial forest. Of the

fifteen (15) firms located in Windsor, sixty-three percent

(63%) of the firms have activities that involve forest

related projects. This denotes the importance of forestry

to the Town.

(4) The Town could support all federal and state and programs

that deal with the management of agricultural lands in

its planning area.

(5) The Town could choose not to utilize the soil survey reports.

7his should be unacceptable because the purpose of the

on-going soil survey is to help landowners make better

land decisions, thus bringing about better management of

one of the town's valuable resources (its soils.)

Policy Choices

(1) The Town will use the soil survey because of the importance

in maintaining productive agricultural lands and providing

information for land use decisions.

(2) The Town will support all federal and state.programs that

deal with the management of commercial forest and agricultural

lands.

:7,

(3) The Town will support when feasible, all federal and state

programs dealing with the management of commercial

fisheries and recreational fishing.

(4) The Town does not have any known mineral production areas

at the present time. However, if any are found, they will

be developed in a manner such that their production will

be consistent with all other resources protection and

production policies.

(5) The Town does not have a policy on off-road vehicles because

the issue does not concern Windsor.

Description of the Pro22sed_Implementation Procedures

(1) The town administrator and clerk will utilize the completed

Soil Survey Report as a base for-providing information

concerning land use decisions by 1982.

(2) The town administrator and clerk with the aid of county,

state, and federal agencies will provide information for

proper forest and agricultural management to local residents

by 1982.

(3) The Town will continue to utilize its adopted Zoning Ordinance,

Subdivision Regulations and CAMA permit issuing powers to

help manage its land resources.

C, ISSUE - ECONOMIC AND COMMUNITY DEVELOPMENT

The economic and community development issues of the 1976 Plan are

still significant today. -Local residents re@alize the importance of both

issues as related to job opportunities and improved housing-conditions.

Town officials realize that economic development can assure the maintenance

of a strong local tax base and help provide an upgrade in services. 7,,-, e y

also know that new community development suggest the need for more

public services in areas experiencing growth. What follows here is a

discussion on the economic and community development issues that face

Windsor.

All types of development are encouraged within the Windsor Planning

Area. The 1976 Plan suggest (p. 58) that the Town wishes to continue

the existing developmental patterns occurring in town excluding

incompatible land uses.

Patterns of economic development, commercial and industrial have

not changed since the original CAMA Plan. Concentrations of commercial

establishments are still centered in the Central Business District (CBD.)

However, physical deterioration is still a problem for the CBD coupled

with the competition of neighboring plazas and shopping centers. To

help this situation the town had the East Carolina University - Regional

Development Institute prepare a redevelopment plan for the CBD. This

plan included architectural designs for all of the establishments in

the downtown business area. The town officials &-id local merchants hope

that the renewed interest in this area will help generate more-economic

activity. The development of the Historic District should also aid in

the CBD revitalization.

Industrial growth has been steady in the Windsor Planning Area.

As mentioned earlier, state and local officials have suggested future

industrial development occur in the industrial park site. The proximity

to major northeastern routes and a twelve (12") inch water line serving

the area add to the attraction of industrial prospects. The most

recent of these prospectstis the June Day Manufacturing Company,

a bathing suit manufacturer. The Town will continue to provide public

services when feasible to help expand the commercial and industrial

development near the town. Turning from Windsor's economic development

issues we look ar the community development issues that exist in the

town.

As the existing land use section of the update suggest Windsor has

been characterized by steady residential development. Presently, steady

growth patterns are occurring in several communities and subdivisions

within the town. Communities experiencing residential growth include

Spruill Park Development, Hillcrest Development, Powell Stokes

Community, the Thompson Development and the Windsor Oaks Community.

A previous problem concerning residential development involved land

use compatibility. This issue concerned conflicting land uses of

residential and industrial properties near the Windsor Oaks Community.

The strict enforcement of the Windsor Zoning Ordinance resolved this

issue and has been important in directing development in Windsor.

Town officials and area residents are also concerned with preserving

the local housing stock. The Town currently administers a federal

housing program. The program is funded through the Department of Housing

and Urban Development (HUD) under their.Small -Cities Community Development

Block Grant Program. In addiiion to housing improvements, local officials

also understand that some public improvements can be made under this

grant program. Thus, we see the redevelopment of older or distressed

residential neighborhoods is an issue the town is working to resolve.

Local officials have encouraged development in and within close

proximity to the town's corporate boundaries. The officials feel that

clustering developmental patterns will lessen service extension cost

i. e., water and sewer lines. The constraints-capacity of community

facilities section of the update suggest that the present facilities

will be capable of any additional demand anticipated by an increased

population.

The Town of Windsor does not have a policy on energy facility

sitting. However, such facilities would have to adhere to the Windsor

Zoning Ordinance, if they are located within the Windsor Planning

Jurisdiction.

The Town does not have\policies on tourism, beach or waterfront

access. However, the town should create a policy concerning tourism

since it is in the process of establishing a historic district.

Creation of such a policy can add dollars to the local economy.

Another issue of local concern is annexation. As the population

and economy section of the update notes, Windsor's present growth can be

attributed to recent annexations. Presently, the town is considering

two (2) new areas near the town for possible annexation. These areas
include; (i) an area on U. S. 17 North beginning at the town limits

and running approximately 3,800 from U. S. 17 and (2) an area on U. S. 13

-beginning at the town limits and running to the Cashie River. The town

council has requested and received a grant commitment under the N. C.

Clean Water Bond Act to help in the extension of services to areas of

proposed annexation. Other grant funds are currently being pursued for

sei@vice provision. From the preceding paragraph it can be seen that the

Town of Windsor is pro-growth. Thus, it is the town's policy to annex

areas close proximity of the present town-limits according to

G. S. 16OA-36. This annexation policy is contingent upon the town

receiving funds to decrease the cost of the service provision.

Policy Alternatives

(1) Do not seek additional economic or community development

in the Town. This alternative would be impractical since

the town council has taken a pro-growth position concerning

this issue.

(2) To commit the Town to such programs as Community Develop-

ment Block Grants and Highway programs and other federal

and'state programs that could aid the town in its

economic and community development.

(3) TO encourage development and redevelopment in and within

close proximity of the town's corporate limits. This

policy would serve to lessen the cost of infra-structure

extensions (i. e., water and sewer.)

.(4) To investigate funding sources for the redevelopment of the

Central Business District (CBD.)

(5) The Town could or could not develop policies on energy

facilities scitting.

(6) The Town could or could not develop a policy on tourism and

waterfront access.

(7) To investigate state and federal agencies concerning funding

for annexations.

(8) The Town does not have a policy on channel maintenance since

it is the responsibility of the Corps of Engineers or beach

nourishment since there are,no beaches in the planning area-

Proposed Policy.Choices

The Town will be committed to state and federal Programs

mentioned in tlxe policy alternatives. This commitment

will be shown by inviting the appropriate state and

federal officials to educate the town about such programs.

(2) The Town will encourage development and redevelopment in

and within close proximity of the town's corporate limits.

(3) The Town will allow energy generating facilities-power

plants, both nuclear and conventional, electrical

switching substations and other energy related facilities

only in those areas away from population clusters.

(4) The Town will continue to apply for state and federal funds

for the town's community development needs.

(5) Me Town Council supports tourism in the Windsor area.

(6) The Town Council supports limited access to the Cashie

River for recreational purposes'.

.(7) The Town Council will support revitalization efforts for

Windsor Central Business District (CBD.)

.Description of the Proposed.Implementation Procedures

(1) The Town will continue to participate in state and federal

programs by applying for both state and federal community

development funds by 1982.

(2) The Zoning Ordinance and Subdivision Regulations will

continue to be used to direct development and redevelopment

in 'and within close proximity to the corporate -limits.

(3) The Town will utilize service provision as a means of

implementing a cluster development pattern by 1982.

(4) The Town Council will investi gate methods of educating the

general publicabout its historic district by 1982.

(5) The Town will investigate developing a feasibility study

on locating a public boat ramp within the Windsor Planning

Jurisdiction by 1983.

(6) The Town Council will work with local merchants in coming up

with proposals for downtown redevelopments.

D. ISSUE - CONTINUING PUBLIC PARTICIPATION

The present CAMA Guidelines encourage public involvement in the

planning process. Consistent with this belief, the governing body of

officials app ointed a planning board to serve as a vehicle for citizen

participation. 1his board being an extension of the town commissioners

is charged with the responsibility of researching, studying, surveying

and discussing planning matters of significance to the Town of Windsor.

All planning board meetings are open to the general public and provide

the opportunity for public involvement.

PoliEy Alternatives.

(1) The only alternative to one of public participation is one

of non-participation by the public. This alternative is

totally against the foundation of our Democratic idealogy.

(2) The Town could continue to expand public participation

mechanisms to educate and inform its residents. This

alternative would be the ideal choice. It calls for the

development of mechanisms to get more.people involved in the

planning process. By doing this'a broadek perspective can be

obtained and translated into Policy by the governing body.

Policy..Choice

The Windsor Planning Board has recommended to the Town

Commissioners to implement, improve and expand its

public participation efforts in reference to land use

issues.

Description of Proposed Implementation Methods

(1) The Planning Board will develop a questionnaire that will

be administered every five (5) years to gauge citizen

opinions about land use issues.

(2) Announcements of all planning board meetings will be

placed on radio as a public service announcement.

(3) The Clerk to the planning board-will work with local

news media personnel in developing nzes ita_as

concerning planning board meetings as a means of public

education.

E. OTHER SPECIFIED ISSUES

The Coastal Resources.(7.ommission has specified that certain issues

be addressed in the Windsor Land Use Update. These issues include,

(1) Downtown Revitalization and (2) Water and Sewer problems. The

following summarizes the town's efforts under each issue:

(1) Downtown Revitalization

The Town of Windsor has embarked upon a program for the revitalization

of the Central Business District (CED). This revitalization project is

aimed at halting the physical deterioration that has plagued the CBD

and to make the downtown area more attractive. A few years ago the

East Carolina Carolina University - Regional Development Institute

assisted in preparing a Fascade Plan for the downtown. Some merchants

have made suggestions for improving the ECU proposal. Currently, the

town is taking the following steps to continue-the CBD revitalization

efforts:

(A) Putting brick sidewalks in the Central Business District

(CBD)

(B) Planting holly trees in the CBD

(C), Development of a downtown park and petting zoo

(D) Establishing a Historical District which encompasses the CBD

(E) Moving a structure of historic significance located within

the CBD to a new location for rehabilitation purposes. This

structure will be used by the Chamber of Commerce.

Thus, there is still a conunitment on the town's part to help

revitalize the Central Business District (CBD.) The town council will continue

its efforts to revitalize the CBD by any means possible.

(2) Water and Sewer

The capacity of community facilities section of the update

identified no current or future water and sewer problems for the

Windsor area. The only problems foreseen with the provision of

these services is related to extending them to possible areas of

annexation. The town realizes that due to the rising cost of

construction the town may have to delay some of its planned annexation.

Since the town has taken a pro-growth stand those areas proposed for

annexation will only be annexed when funds are available for the

provision of water and sewer services.

F. PROPOSED FIVE-YEAR WORK PROGRAM

This proposed work program has been developed and incorporated

into the planning process to monitor and update the progress being

made toward achieving the goals and objectives outlined in

the update. This evaluation procedure should measure progress toward

achieving a proposed five-year work program. It is recommended that

the planning board make progress assessments at the end of each fiscal

year; and forward all recommendations to the town council. The

major evaluation goal is to accomplish those stated objectives within

a five-year time period. In some instances, it may be necessary to

reprioritize objectives; and, in other instances, implementation of

the stated objectives may be ahead or behind schedule. The

following is a proposed five-year work program for Windsor's CAMA

Land Use Update.

FY 1981 82

1) Begin utilizing the completed soil survey to make land use decisions

2) Make needed revisions to Windsor's Subdivision Regulations

3) Continue to apply for State and Federal Community Development Funds

4) Develop detail enforcement and evaluation criteria for the Historic

Properties Commission

5) -Educate general public about Windsor's Historic District

FY 1982 - 83

1) The Town Administrator and clerk will seek the aid of State and

Federal agencies on proper forest management practice when called

to do so by town citizens.

2) Develop a brochure for the adopted H.istoric District

3) The Town will develop a feasi-bility study on locating a public

boat ramp within the Windsor Planning Jurisdiction.

FY 1983 - 84

1) The Town will continue to apply for Community Development Funds

2) The town's Historic Commission will institute a slide

presentation program concerning Windsor's Historic District

The Town will conduct a electrical consumption study (on

residential.usage.)

FY 1984 - 85

1) Continue to apply for Community Development Funds

2) The Town will conduct a water system study

3) The Town will develop a Community Facilities Plan.

FY 1985 - 86

1) Update the Land Use Plan

2) Develop a Citizen Opinion Survey and distribute to general public.

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