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

                                      IACT  f987

        TOWN OF BELHAVEN

       LAND USE PLAN UPDATE

                        1986

     I~~~~~~~~~~~~~~~~~~~~~~~~~~~~

                               COASTAL ZONE
                             INFORMATION CENTER

     HT   i
    168
    .B4
    N567
    1987
        IL)

                        U. S. DEPARTMENT OF COMMERCE NOAA
                        COASTAL SERVICES CENTER
                        2234 SOUTH HOBSON AVENUE
                        CHARLESTON, SC 29405-2413

                     r Propce-ty of C.C Libza-ry

                                  1986
                                  1 9 8 6

                 B E L H A V E N L A N D U S E P L A N

                                U P D A T E
                                UPDATE

             Adopted by the Belhaven Town Council April 6, 1987

         Certified by the Coastal,Resources Commission July 24, 1987

                                                  COASTAL ZONE

                                              INFORMATION CENTER

                               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.

                   1986 BELHAVEN LAND USE PLAN UPDATE

                             ACKNOWLEDGMENTS

    Prepared by:

    TOWN COUNCIL

    Charles 0. Boyette, Mayor             James B. Hodges

    W.P. O'Neal, Jr.                      Frank Ambrose, Jr.

    Rhonda M. Flowers                     Judy E. Allen

    PLANNING BOARD

    John Jones, Chairman                  George Baker

    Aubrey Hollowell                      Freddie Sawyer

    Wilber Logan                          Dr. Thomas Vicar

    MID-EAST COMMISSION PLANNING AND DEVELOPMENT STAFF

    Lynn Roche Phillips, Technical Advisor

    Libby Anderson, Technical Advisor

    Robert Paciocco, Planner-In-Charge

    BELHAVEN IN-KIND ASSISTANCE

    Tim Johnson, Town Manager

    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 Coastal Resource Management, National
    Oceanic and Atmospheric Administration, is also responsible for
    funding for this document.

                                            TABLE OF CONTENTS

                 DATA COLLECTION AND ANALYSIS I
                      Introduction I
     U              PR~~~~Estbihent   of the Data Base                            2
                       PEETCONDITIONS
                      Present Population and Economy
                      Summary                                                   1
                 EXISTING LAND USE                                              11
     I               ~ ~~~~Introduction                                          11
                      Land Use Summary                                         1.1
                   CURRENT PLANS, POLICIES AND REGULATIONS                      17
     *                ~~~~~Plans                                                 17
                      Pol icies                                                 18
                      Regulations                                              20

    I             ~~~~CONSTRAINTS:  LAND SUITABILITY                             22
                      Introduction                                             22
                    PHYSICAL LIMITATIONS FOR DEVELOPMENT                        22
                      Hazards                                                  22
                      Sails                                                    24
                      Water Supplies                                           26
                      Excessive Ground Slope Areas                             27
     I               ~ ~~~~Fragile Areas                                         28
                      Areas With Resource Potential                            37

                 CONSTRAINTS:  CAPACITY OF COMMUNITY FACILITIES                 41
                      Introduction                                             41
                      Water and Sewer                                          41
                      Solid Waste Collection and Police and Fire Protection 42
     U                 ~~~~~Schools                                              43
                      Roads 4
     *                 ~~~~~Medical Facilities 4

                 ESTIMATED DEMAND                                               47
                      Population and Economy                                   47
                      Summary                                                  49
                 REVIEW OF 19181 POLICY STATEMENTS AND ACTIONS                  50
                      Resource Protection                                      51.
                      Resource Production and Management                       53
                      Economic and Community Development                       54

    I             ~~~~ISSUES AND POLICY STATEMENTS                               56
                      RESOURCE PROTECTION                                      57
                           Development in Areas with Constraints               58
      I                   ~ ~~~~~~AEC Development                                61
                           Other Fragile Areas and AECs                        63
                           Hurricane and Evacuation Needs                      66
                           Protection of Potable Water                         66
      I                     ~~~~~~~Use of Septic Tanks                           67
                           Storm Water Runoff 6

                            Marina and Floating Home Development                71
      I                   ~ ~~~~~~Industrial Impacts around Fragile Areas        72.

                       RESOURCE PROTECTION AND MANAGEMENT                       74
      I                   ~ ~~~~~~Productive Agricultural Land                   74
                            Existing and Potential Mineral Production Areas  76
                            Commercial and Recreational Fisheries               78
                            Off-Road Vehicles                                   79
                             Impact of Development Types on Resources            80
                       ECONOMIC AND COMMUNITY DEVELOPMENT                       81
      I                   ~ ~~~~~~Location and Types of Industries Desired       81
                            Commitment to Providing Services                    84
                            Desired Urban Growth Patterns                       85
                            Redevelopment of Developed Areas                    86
                            Commitment to State and Federal Programs            88
                            Channel Maintenance and Waterfront Improvement   89
                            Energy Facility Siting and Development              91
      I                   ~ ~~~~~~Tourism and Beach/Water Access                 91
                            Types, Densities, and Location of Anticipated
                                            Development                         93

                  HURRICANE AND STORM HAZARD MIT16ATION                          95
                       Introduction                                             95
                       Hazards Map                                              96
                       Effects of Storm Components on Hazard Zones              101
                       Summary                                                 104
                  Post-Disaster Reconstruction                                  106
     I               ~ ~~~~~Introduction                                        106
                       Immediate Clean-Up                                      107
                       Recovery Task Force                                     109
     *                ~~~~~Schedule for Repair and Reconstruction Over Longer
                                             Period                            110
                       Evacuation Routes and Times               i       ll
                       Summary                                                 114
    I             ~~~~Intergovernmental Coordination                            115
                  Storm Hazard Mitigation and Post-Disaster Reconstruction
      *                     ~~~~~~~Policies                                    116

                  PUBLIC PARTICIPATION                                          118

                  LAND CLASSIFICATION SYSTEM                                    121

                  RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION              128

    I             ~~~~INTERGOVERNMENTAL COORDINATION                            130

                  APPENDIX A                                                    132

                  APPENDIX B                                                    136

                  APPENDIX C                                                    140

                  APPENDIX D,                                                   145

                                               LIST OF FIGURES

                 FIGURE NUMER                    NAME                       PAGE NUMBER

                      I Belhaven Planning Area                                    4

                      2               Population Change from 1960 to              5
                                       19B4 - Belhaven and Beaufort

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

                      4               Manufacturing Firms in Belhaven             9

                      5               Existing Land Use  1986                    12

    I                 ~~~~~6 Area Inundated by Category 1                        25
                                      Hurricane

                      7               Areas of Environmental Concern             30
                                      and Other Fragile Natural Areas

                          8          ~~~Properties Identified as Historic        36
        I                           ~ ~~~~~~~~Structures in the Belhaven Area

                      9               Location of Prime Agricultural             39
        I                           ~ ~~~~~~~Sailis

                      10              Belhaven Area Public School               45
        *                             ~~~~~~~~~Facilities

                      11              Population Projections - Belhaven         48
                                      and Beaufort County

                      12              Areas Inundated by Category               97
        *~~~~~~~~~ land 2 Hurricane

                      13              Inventory of Structures in the            99
                                      Hazard Area

    I                 ~~~~~14          Land Classification Map                   123

                          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 generations, a land use plan is developed,

    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 resources, sound economic development, the

    protection of public health and safety, and enhancement of the commu-

    nity's quality of life.

         The Town of Belhaven 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 Ocean and Coastal Resource

    Management of the' National Oceanic and Atmospheric Administration

    through the North Carolina Department of Natural Resources and Commun-

    ity Development (DNRCD), Division of Coastal Management.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~2

                              ESTABLISHMENT OF THE DATA~ BASE

                    One purpose of the 1986 Land Use Plan is to update information

               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 counter-

               part, the original 1976 Land Development Plan, sernve 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 North Carolina Census of Porulation provided updated popula-

    I           ~~~tion figures, 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 Fisher-

                ies, provided data on the fishing industry in the Belhaven area.

               A~dditional statistics were gathered from The 1985-1986 Directory of

    I.         ~~ManufacturinQi Firms and the Beaufort County School Superintendent.  The

               DNRCD Divisions of Environmental Management and Soil and Water Conser-

               vation were very helpful in providing information. Various other

               sources were consulted, including the Town Manager and local residents.

                     Information on land use within the Town's jurisdiction was

    I           ~~~acquired from  a variety of sources.  United States Geological Survey 7

                1/2 minute quadrangles, the Beaufort County Soil Survey, zoning maps,

               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 experts, such as the District Soil Conservation-

    I          ~~~ist, supplemented information on land development trends in the area.

                      I                                                                    ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~3

                     The accuracy of this Plan was checked throughout its development

                period.    The Planning Board, Town Manager and Town Board proofread the

                text to ensure its accuracy  and  direction.         These  combined sources

                aimed to provide the most concise picture of the development trends

    H           ~~~within the community.

                                          PRESENT CONDITIONS

                Present Ponulation and Economy

                     The Town  of  Belhaven  is ,.situated  in  eastern  Beaufort County

    I           ~~~at  the  confluence  of  the  Pungo  River  and  Pantego Creek, part of

                the Pamlico estuarine system (Figure 1). Belhaven is a Town which was

                formed mostly as a port for the nearby logging businesses. Today, it

                is primarily a farming, fishing and logging community. It lies on the

                Intracoastal Waterway, a major north-south route for the shipping

    I           ~~~industry and rec reational boaters.

     *               ~~~~The population  of  the  Town  has  risen  and  fallen  during the

                past  35  years  (Figure  2).    The  population  was undergoing steady

                decline until 1970 when the trend reversed itself. This coincides with

                the change in the economy from traditional rural industries, like

    I           ~~~fishing and logging, to  manufacturing.       Several  manufacturing firms

                located in Belhaven during this time. The Town developed residential

                areas as well as service industries to accommodate the growth brought

    *           ~~~on by industry.

                     A~ seasonal population flux does not play a significant role

                in the public service demands placed  on the  Town facilities.    Recre-

               ational activities like boating and fishing attract an estimated 300

                                                                                    4

                                            Figure 1

                                      BELIIAVEN PLANNING AREA

                                   a,~~~~~~~~~~~~~O $.S 26L

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                 I~~~~~~~~~~

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          'iS             T . . .. --._...., :.. '~ .,C ..... , ........: .%. ' "  . . .

                  *                                                          4,  Submerged Vessel

            The preparation of this map was financed in part                 Ei  Wetlands
            through a grant provided by the North Carolina                        Surface Water
            Coastal Management Program, through funds
            provided by the Coastal Zone Management A~ct of
              .972.    a,       which i  administered by the

              Office of Ocean and Coastal Resource Management,'

            National Oceanic and Atmospheric Administration.
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                       ~,.                     ....~
                           ar.�*~~~~~~~~~~~~�~ -�'.~  ,'~       ....

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                     15U~~~~~~~~~~~~~~LGND;=

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            Office of. Oen adCatlRsucaaeet
                           National Oceanic and ~tmospheric ~dministration.~~~~~~~~~~�

                                                     Figure 2

                                       POPULATION CHANGE FROM 1950 TO 1985:

                                           BELHAVEN AND BEAUFORT COUNTY

                                                                                   1950-1985    1980-1985
                                                                                    PERCENT      PERCENT
                        1950        1960        1970        1980         1985*    POPULATION    POPULATION
                     POPULATION  POPULATION  POPULATION  POPULATION  POPULATION    CHANGE          CHANGE

    BELHAVEN            2,528       2,386       2,259       2,430        2,494       - 1.3%         + 2.7%

    BEAUFORT
    COUNTY             36,431      36,014      35,980      40,355       43,260        18.7%           7.2%

    SOURCE: N. C. Census of Population, 1980.

    *1985 estimates provided by N. C. Department of Administration.

                                                                                                                   VI

                     1~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~

                additional summer residents to the area  (Town Manager).   This limited

                number of visitors does not tax the overall adequate provision of water

                and sewer services. One event, the annual Fourth of July celebration,

                attracts several thousand daily .visitors to the Town. Nearly all of

    I           ~~~these persons are day visitors; they do not  place the  same demands on

                the  community  facilities  as  full-time  residents.   Water and sewer

                facilities may be taxed during the day-long event, but this demand

    3           ~~~lasts for only several hours during the peak of the festivities.-

                     The majority of Belhaven's residents are under 30 years old

    I           ~~~and considered minorities.  The population is composed of approximately

    I           ~~~41.2 percent  whites and  the median age is 28.9 years compared to 28.3

                years for the state. Belhaven's $ 3,864 mean family income is somewhat

                lower than the $ 4,561 average for Beaufort County (N. C. Census of

                Population, 1980).

     U               ~~~~The economy  of  Belhaven  is  mixed,  but  dominated  by manufac-

                turing  (Figure  3).    Nearly  one-half  of  the work force is engaged

                in the  manufacturing, retail  trade or  education fields.   The health

    3           ~~~services industry employs nearly seven percent of the local work force.

                Unemployment in Belhaven is high (10.7 percent) compared to the 4.5

    3           ~~~percent average for Region 0 (Employment Security Commission).

                     Although not apparent from the employment statistics, agriculture

                is a very important component of the Belhaven economy. Agriculture,

    3           ~~~forestry, fishing and mining employ more than four percent of the total

                labor force. Agricultural land uses occupy approximately 30 percent of

    3           ~~~the total land area within the one mile jurisdictional area.  The crops

               most widely grown are tobacco, corn, soybeans and wheat. Employment in

                                    Figure 3

                         EMPLOYMENT BY PERSONS 16 YEARS
                           AND OVER BY INDUSTRY, 1984

                                     BELHAVEN

                                                 Total
              Industry                          Persons               Percent

    Agriculture, Forestry, Fishing                 59                    6.6
     and Mining

    Construction                                   41                    4.6

    Manufacturing                                 244                   26.7

    Transportation                                 25                    2.8

    Communications and other Public                28                    3.1
     Utilities

    Wholesade Trade                                 54                   6.0

    Retail Trade                                  186                   20.9

    Finance, Insurance and Real Estate             54                    3.2

    Business and Repair Services                   14                    1.5

    Personal, Entertainment and Recreation         40                    4.5
     Services

    Health Services                                63                    7.0

    Education Services                             55                    6.1

    Other Professional and Related                 23                    2.6
     Services

    Public Adminstration                           28                    3.1

                                        TOTAL    914
                                      UNEMPLOYED 107                   11.7

    SOURCE: N. C. Statistical Abstract, 1984

                this business typically experiences peaks during the harvest season

                in late summer/early fall.

                     In addition, Belhaven's economy is heavily dependent on the

                quality of the water in the surrounding rivers and creeks. This

    I           ~~~is because the fishing  and  seafood  business  is  the  major industry

    5           ~~~in  the  area  (Figure  4).   Four large seafood processing plants, who

                purchase the majority of their products directly from local fishermen

    3           ~~~working on  boats, are  located in Town.  Belhaven's catch is estimated

                to account for 90 percent of the commercial catch for Beaufort County,

    I           ~~~which is consistently in the top five counties for seafood poundage and

                landings (DMF). Fishermen from nearby counties truck in their catches,

                as well. Blue crabs traditionally account for nearly 50 percent of the

    5           ~~~commercial catch, but during periods of high salinity, brown shrimp are

                also brought in and processed in Town.

     *               ~~~~Recreational  fishing  and  boating  are  also  very popular local

                industries. Belhaven's location along the rivers and Intracoastal

                Waterway makes it a convenient boating area as well as a port for long

    3           ~~~distance voyagers.  Lodging and supplies such as fuel% food, beverages,

                bait and marine gear add a significant boost to the regional economy.

    3           ~~~Summer residents are also attracted to the area because of  the rivers.

                A~dditional dollars are spent at local businesses by these second home

    I           ~~~owners.  The importance of  water  quality  to  the  prosperity  of the

    3           ~~~economy is  based on the water-related industries.  Tourism and commer-

               cial fishing, both dependent upon water quality, are critical to

    3           ~~~Belhaven's economic well-being.

                                              Figure 4

                                   MANUFACTURING FIRMS IN BELHAVEN

                                                                                           Number
                     Name                      Address                Product             Employed

            Blue Channel Crab Company         Water St.       Canned and Pasteurized       100-249
                                                                Seafood

    I       ~~Baker Crab Company               Water St.       Crab meat, unprocessed        50-99
                                                                crabs

    U       ~~Belhaven Feed Mills, Inc.        W. Main St.    Livestock feed,                 5-9
                                                                fertilizer

            Belhaven Fish and Oyster          Front St.       Shrimp, crabs                100-249
             Co., Inc.

            Harris Furniture and              Pamlico St.    Upholstered furniture           5-9
    I      ~ ~Upholstery Co.                                    manufacturing, marine
                                                                canvas products

            Down East Garment CO.             Pamlico St.    Velour sweaters                50-99

            Gwinn Engineering Co., Inc.       Rt. 2, Box      Dredges, molded                1-4
                                                219            polyurethane boat
                                                                repair

            Sea Safari                        Water St.       Fresh and frozen             100-249
                I                                            ~ ~~~~~~~~~~~~~crabs, flounder

            Younce and Ralph Lumber           Hwy 264         Pine Lumber                   50-99

             Co.

    I       ~~SOURCE:  1985-1986 Directory of North Carolina Manufacturing Firms

                     1                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~10

     I               ri~~~~ost of  the remaining manufacturing firms in Town, not related to

                water, are involved in textiles or lumber. Younce and Ralph Lumber and

                Down East Garment Company employ an average of 150 persons together.

                Nearly all of the industries in Town provide low skilled, low wage

    I           ~~~jobs.   Women are  mos.t frequently  employed as crab pickers and sewing

    *           ~~~machine operators.

                     Seasonal variations in employment are a concern for Belhaven

                residents.   Unemployment among  agricultural workers  and crab pickers

                during the winter months is the major problem in the area. Economic

    I           ~~~development  activities  should  be  directed  toward  diversifying the

                economy to alleviate this problem.

    *           ~~~Summary

                     The analysis of the demographic and economic conditions reveals

    I           ~~~that Belhaven  supports a stable economy and population. It is expected

    3           ~~~that the population will continue to experience slight  growth over the

                next ten  years.   The major  industry in Town is the seafood business,

    3           ~~~which is highly dependent  upon the  purity of  the water.   Tourism is

                also  important  to  the  regional  economy.   Additional growth in the

    I           ~~~economy and/or population may have an  impact on  the natural resources

    *           ~~~of the area.

                                      EXISTING LAND USE

                  Introduction

                       Sound decisions on directing future land use in a community are

                  made based on an inventory of  the present  land uses.   This inventory

                  should take note of the types of land uses, their amount and their

                  distribution. The following section details the existing land uses

    3             ~~~~within the Belhaven planning area.

    U             ~~~~Land Use Summary

     3                 ~~~~The  Belhaven  planning  area  includes  the  land within the Town

                  limits and the land outside Town to a distance of approximately one

    *             ~~~~mile (Figure  1).   The total area encompasses slightly more than eight

                  square miles, but only about 30 percent of the planning area is within

                  the corporate  limits.   Within the  planning area, about 20 percent of

    3             ~~~~the land is developed for urban purposes.  Most of  this developed land

                  is within the Town lim~its. The majority of the undeveloped land is in

    3             ~~~~forests, agriculture, wetlandsor surface water.

                       There has been little change in the layout of the land since the

                  1981 plan  (Figure 5).   The existing land use map shows that most land

                  uses within the Town limits are  residential.   Residential development

                  is concentrated in the eastern section of Town near Tooley's Creek,

    3             ~~~west of Hwy 99 north of  the  bridges  and  in  the  blocks surrounding

                  Belhaven  Elementary  School.    Since  1981,  few residential building

    I             ~~~permits have been granted  as  a  moratorium  an  sewer  extensions was

    3             ~~~passed  due  to  the  inadequacy  of the wastewater treatment facility.

                          I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~

                                                   Fi~gure 5

                                              EXISTING LAND USE

               I~~~~~~~~~~~~~~~~I

                       I                                                                  - ~~~~~~~~~~~~~~~~~~~~~~~~~~~APPiROXIMqATE SCALE

                                                                                   1000 ~ ~ M 0o- 3C.  200   oa

                      I  a   ~ ~ ~ ~ ~ ~ ~~~~~~~~~~   ~~Submerged Vessel

                 Theprearaionofthi's map was financed in part                             Wtad
            through a grant provided by the North Carolina                                 Surface Water
           Coastal Management Programs through funds
           provided by the Coastal Zone Management Act of                                 Commercial
            1972, as amended, which is administered by the
    I      ~Office of Ocean and Coastal Resource Management,                                Residential
           National Oceanic and Atmospheric A~dministration.                           1

                                                                                     Dindustrial
                                                                                      Institutional
                     I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~11:P  Forested

                                                                                     DAgricultural

                                                                                                                             12

                I                                             ~~~~~~~~~~Figure 5

                                                        EXISTING LAND USE

                                          .4                                                         C   ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~*   - r~~~~~~~~~~~~~~~~~~~~~~'.

                                        a ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~~~00    soo-

                                   =   *.   N , .~~~. % j                                 ( ~ ~ ~ ' N .     '.LEGEN
                                                                                             '*.*--'Subme-ged   V s s e l   -
                                     The preparation of this map was financed in part PI Wetlands

    I~trog a rn�rvde yteNrt aoiaSufc ae

                                Coastal Management Programo                                          through fnds -

             poiebythe CoeastaltioneMngmtAc of  C       o        m       m        e       r       c i tlad
              C7o asta   Maagmendedora,  whicuh  funs                                                                    Wadisteredb h
             pOfficed of Oceaan Coastal Reoure Management, Resdet oomrial
             Natonl7ceni     andAmsphic Administeredbytion

                                                                                                           Indstrittnal

                         I                                                                          ~~~~~~~~~~~~Li

                     I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ 13

                Mobile home permits have been the only building applications within the

                past five years. All building applications for development were sites

                in the northern section of Town. This has been the trend for resident-

                ial growth.   The Town should consider the development of a mobile home

    I           ~~~ordinance if this development trend should continue.

                     Commercial land uses are those which support retail or personal

                services.   Within the planning area, several concentrations of commer-

                cial uses exist. They are located in the downtown business district,

                along the Hwy 264 By-Pass and Business arteries and the small pockets

    I           ~~~located in the eastern section of  Town.   During the  past five years,

                the By-pass has been the growth area for commercial establishments. It

                is expected that future commercial, institutional and office space

                needs will be met in these existing zoned areas. Expanding strip

                development in along major traffic arteries is also expected.

     I               ~~~~~s before mentioned, the industrial area  of Belhaven  is situated

                along  the  waterfront.    Currently, most operations are water-related

                (seafood processors), but Cargill,  a   grain dealer,  has also located

                here.   The area  was designated,,industrial due to its proximity to the

                river, highway and railroad  tracks.   Currently only  a limited amount

    I           ~~~of land  remains available to accommodate industrial expansion; however

    *           ~~~the Town  does  wish to accommodate  new industrial  development an the

                remaining available land.

                     A~t the same time, local officials recognize that non-water

                related uses  are better  located at   non-shoreline  locations.  Thus,

    I           ~~~the Town  intends to  encourage most  new industrial projects to locate

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~14

                in commercial areas along the Route 264 Bypass or other industrial

                areas, reserving the waterfront for water-related uses such as tourist

               enterprises and seafood processing operations.

                    Forested areas constitute about 25 percent of the land in the

    I           ~~~extraterritorial  limits.    No  forested  areas  exist within the Town

                limits.   Instead,  there  areas  are  concentrated  along  the eastern

               portion of Hwy. 99 south of the bridge to the edge of the planning area

    *           ~~~and in a band running from  northwest  to  southeast  near  Lower Dowry

               Creek. Presently, there are no serious land use compatibility problems

    I           ~~~with these forested lands.  However,  should these  areas be  logged or

                cleared for agricultural use, short-term aesthetic problems might

                result unless wise harvesting/reforestation practices are used.

                     Much of the land within the extraterritorial limits has been

                cleared for  agricultural uses.   Most  agricultural land lies north of

    I           ~~~Town in a band  extending across  the extraterritorial  limits.   It is

                currently under production, but this land may be "squeezed" into other

                uses as the demand for developable land in the planning area increases

                and the availability of suitable land decreases. Growth is likely to

                occur at the expense of this  farmland.    Within  the  Town's planning

                jurisdiction, agricultural land has had an impact an other resources as

                well. Agricultural drainage and runoff from fields and ditches have

    I           ~~~become a  nutrient source  for algae  blooms in  the nutrient sensitive

                Pungo River. Dams and dikes, originally constructed to mitigate the

                impact of floodwaters in cropland, have helped to minimize the impact

                of agricultural runoff  in  the  adjacent  waters.    Additional policy

                     1                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~15

               statements should be made to reflect this pollution problem in the

               planning area.

                    Ai large portion of the planning area is in wetlands which extend

               along the north and south banks of Pantego Creek west of the bridge.

    I          ~~~Other wetlands can be found on the peninsulas  near Tooley's  Creek and

    I          ~~~along the  shoreline of  the Pungo River.  A potential land use compat-

               ibility problem exists with the wetlands as the Town at one time

               expressed an interest in altering several local wetland areas for

               development. Because of their Productivity, the Town should avoid

    I          ~~~growth at  the expense  of losing these wetlands.  The establishment of

    *          ~~~vegetative buffer zones between  the wetlands  and adjacent development

               would mitigate the effects of land use incompatibilities in these

    *          ~~~areas.

                    A~s the demand for industrial land increases, it may be necessary

    I           ~~~to  transfer  some  of  the  least  productive  agricultural lands into

               industrial uses. Also, as the need for residential and commercial uses

               increases, the cleared agricultural land may need to be developed.

               Several cropland areas  with  underlying  soils  prime  for agriculture

               could be at risk.

     *               ~~~~There  is  a  very  limited  amount  of  ope n  space available for

               development within the  Town  limits.    The  area  on  the  north side

               of Town near the intersection of Hwy 264 By-Pass and Business 264 is

               one of the only areas  left  for  expansion.    The  Town  may  need to

               acquire more land through annexation to accommodate future development.

                    In summary, there are no significant land use compatibility

               problems that currently exist in the planning district. The negative

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~16

               aspects of industry should not directly affect the land use patterns in

               Town because its location will be confined to the waterfront area and

               other areas zoned for  industry.,  The  Town  recognizes  the negative

                environmental impact of industry adjacent to the rivers. Sites in the

    I           ~~~extraterritorial area should be  investigated  for  industrial develop-

                ment.   The wetland  areas in Town should not be eyed for future growth

                because of the value  of  these  natural  areas.    Should  any further

               commercial strip development occur along the major traffic arteries, a

                compatibility problem may arise between the commercial and residential

    I           ~~~uses located  there.   There are  no major  problems that have resulted

                from unplanned development, nor any which will have a bearing on future

                land use.

                     The areas most likely to experience change in the planning

                region can  be  pinpointed  to  several  locations.    Within  the Town

    I           ~~~limits, additional  residential development is expected in the existing

                residential subdivisions in the northern section of Town.   Outside the

                Town limits, additional construction along transportation routes is

                possible.   Encroaching development  may impact  the agricultural areas

                north  of  Town.    The  Town  should acknowledge the location of prime

                agricultural sails before granting permits for development.

                     I                                                                ~~~~~~~~~~~~~~~~~~~~~~~~17

                               CURRENT PLANS, POLICIES AND REGULATIONS

                Introduction

                     Before policy can be formulated to guide future development

               decisions, it is useful to know what tools are already available

    I          ~~~to enforce each policy chosen.  The following  is a  description of the

               plans, policies and regulations the Town currently has in place to

               support its 1966 policy statements.

               Plans

     I              ~~~~Belhaven has several planning documents that  directly impact land

               development in the area. In addition, numerous other documents at the

               county and regional levels address development  issues.   The following

                is a list and description of the plans related to Belhaven's growth.

                    Communitv Development' Block Grant Plans - Since 1981, two housing

    I          ~~~revitalization plans  have been  funded, one  of which  was granted the

               maximum allowable amount of $750,000. Target areas for both projects

               have been in the northern section of Town. Revitalization of substan-

               dard housing is an on-going goal of the Town.

                    Land Use Plans - Since the passing of the Coastal Area Management

               Act in 1974, two land use plans have been completed. The land classi-

               fication maps that accompanied each plan have been used as a reference

    I          ~~~for land use decisions  in the  planning area.   The  policy statements

                included in each plan have been a reference for planning decisions.

                    201 Facilities Plan - The Town of Belhaven has had a moratorium on

               additional sewage  piping  installations  toa the  wastewater treatment

               facilities since  1978.   This moratorium was instituted because of the

    I           ~~~Town's failure to  meet  effluent  requirements  for  an  extended time

               period.   The Town  was recently  funded for  the first stages of a 201

               Facilities Plan to upgrade the system.   The  improvements project will

               consist of developing a series of pump stations in the sewage collec-

    I           ~~~tion system and a flow equalization basin that  will retain  peak flows

               until a time of lower demand and intensity. As of this writing,

               project directors are unsure if additional treatment units or extra

               flow requirements will be a part of the project. The Town's treatment

               system should be back in compliance with Federal regulations compliance

    I           ~~~by July  1, 1988.   The Environmental Protection Agency has stated that

               all municipal wastewater treatment facilities come into compliance by

               this date.

                    Capital Improvements Plan - In 1979, the Mid-East Commission

               prepared a 20 year list of capital improvements needed for the Town.

    I           gg~~A a  result of one of the recommended improvements stated in the plan,

               the Town is currently revamping its electrical system by installing new

               transformers, poles  and lines.   The  old system had become antiquated

               and was badly in need of  revitalization.   Electrical lines  are being

               run an the back side of Main Street to bring on a more aesthetically

               pleasing downtown section.    The  expected  completion  date  for this

               undertaking is 1987.

    *          ~~~Policies

                    Policies are defined as Retatements of intent and courses of

               action which are followed  to  reach  a  desired  goal.    In Belhaven,

               many  policies  are  unwritten,  but  have been carried out for several

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~~19

    1          ~~~years.  The following lists all  the policies  associated with develop-

               ment that Belhaven currently has in place.

                    Utilities Extension Policies - Both in-town and out-of-town

               residents are  eligible  for  water  and  sewer  services.    Nearly 93

               percent of all residents are tied into the water system and approxi-

               mately 95 percent of the Town's residents are tied into the wastewater

                treatment system.   The 1976 Land Development Plan discusses the Town's

               policy on utility extensions.   In  brief, an  applicant must  submit a

               request application to the Town Manager who then determines if the

    I          ~~~application meets compliance requirements.   The  Town Council examines

               each request individually based upon the cost and subsequent availabil-

                ity of funds for each application. In Town, those applicants reques-

               ting the extension must advance 75 percent of the costs to the Town

               prior  to  construction.    Out-of-town  applicants  must  provide  100

    1          ~~~percent  of  the  funds  for  the  extension.    Possible extensions to

    *          ~~~proposed developments  or  subdivisions  are  described  more  fully in

               A~ppendix A, which is Article V of the Town Ordinance. The capacity of

    *          ~~~these community  facilities is  discussed in  the section "Constraints:

               Capacity of Community Facilities"

     I              ~~~~The  Town  purchases  wholesale  electricity  from  North Carolina

               Eastern Municipal Power Agency (NiCEMPA) and sells it to area residents.

               A~s the North Carolina Utility Commission requires electrical companies

                to provide service only within designated districts, Belhaven does not

               have a formal policy on the extension of electrical facilities.

    I          ~~~Electrical lines have already been installed in a large portion  of the

                     *                                                                ~~~~~~~~~~~~~~~~~~~~~~~~20

             * extraterritorial area.  As of this writing, there have not been any

                requests for extensions.

                     Open Space and Recreation Policv - Although Belhaven has no

               comprehensive recreation plan or open space policy, there is an

    I          ~~~extremely  active  year  around  recreation  program consisting of such

                activities as softball leagues, volleyball leagues, little leage

                football and baseball, youth dances, swimming and tennis lessons.

                Belhaven has two publically-owned parks, an active Recreation Center

                administered by the Recreation Department, plus a public boat ramp

    I          ~~~which provides access to  Pantego  Creek.    Two  private  marinas also

                provide access to the river. The Town has had no need for a policy on

                recreation facilities or the acquisition of open space.

                Regulat ions

     I              ~~~~The Town of Belhaven  enforces several  regulations which  have an

                impact on development. The Building Inspector is responsible for their

                enforcement. Regulations currently in place are:

       *                      ~~~~~~~Zoning Ordinance

                               Building and Housing Regulations

                               Subdivision Ordinance

                               Flood Prevention Ordinance

       I                      ~~~~~~~Septic Tank Regulations

       3                      ~~~~~~~Nuisance Ordinance

                The Beaufort County Health Department governs the permitting system for

                septic  tank  and  well  placements.    The Flood Prevention ordinance,

                adopted by the Town Board in early January, 1926, is very complex.   it

                     1                                                                   ~~~~~~~~~~~~~~~~~~~~~~~~21

                divides the Town into two flood prone areas. In one area, the ordin-

                ance requires that all development must be situated at least nine feet

                above sea level and in the other flood area, structures must be

                situated at least eight feet above sea level. The Town is working to

    3           ~~~make all  new structures  conform to  this ordinance.  Other aspects of

    3           ~~~this regulation involve  bulkheading  of  certain  waterfront  areas in

                Town.

     3               ~~~~According to  Chapter 113A  Article I of the General Statutes, the

                North Carolina Environmental Policy Act, the Town can request develop-

    I           ~~~ers to  submit detailed  statements outlining  the potential impacts of

    3           ~~~major developments.  Belhaven has  no  additional  requirements.   Dune

                protection ordinances are not applicable as there are no dunes within

    3           ~~~the planning area.  Sedimentation  regulations  are  determined  at the

                state level in accordance with the NC Sediment Pollution Control Act.

    I           ~~~Other Federal and State regulations enforced  in the  planning area are

    3           ~~~outlined in Appendix B.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~22

                               C2ONSTRAINTS: LAND SUITABILITY

                Introduction

                     The fundamental premise of land use planning is that distinctions

                exist between land masses which make them suitable for various uses.

    I           ~~~Planning is  required because  not all  lands are suitable for the same

                types of development. For example, the physical characteristics of the

                sail  may  permit  subsidence,  making  development  unsuitable.    The

                following  section  identifies  and  discusses  areas  with development

                constraints to guide future land use decisions.

                Physical Limitations for Develooment

                Hazards

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

                hazards. There are four types of man-made hazard zones in the planning

    I           ~~~area where  development should be discouraged.  Buffers zones should be

    *           ~~~established around these  sites  to  mitigate  their  inherent dangers.

                These hazard zones include a sawdust pile in the waterfront industrial

                complex and the various fuel storage sites located in Town.

                     During the 1940s, a lumber yard was located in the vicinity

    3           ~~~of  Cargill,  Inc.  on  the  waterfront  area  upstream  from downtown.

                A massive sawdust pile is a  relic of  this industry.   In  1984, gases

    I           ~~~from the sawdust ignited and caused an underground fire that burned for

                several weeks. Since the fire burned below the ground surface, it

                produced hollow pockets unnoticeable from the ground level. This

    *           ~~~region is hazardous  because  of  the  inherent  fire  hazard  plus the

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~23

                instability of the ground surface. Development should be avoided here

               until this hazard is removed or mitigated in some other way.

                     Flammable substances, such'eas fuel oil, natural gas, and farm

               chemicals are stored in several different locations. Future develop-

               ment around these sites should be limited to low density land uses that

               would not be affected by a possible leak or explosion. Future tank

               farms should be situated away from existing development, possibly in

               areas designated as rural according to the land classification map.

               Nuclear power plants do not impact planning decisions because none

    I           ~~~are located in the Belhaven area.

                    The military has historically been an important asset to the

               economy and quality of life in  eastern    North  Carolina.   Recently,

               there has been debate over the expansion of the Military Operating

               Airspace (MOA) over Beaufort County. Land use patterns would need to

    I           ~~~reflect this hazard.

                    The flood prone area is a natural hazard zone where develop-

               ment should  be  carefully  monitored.    The  entire  Town  is located

                in  the  100  year  floodplain.    Nearly all Beaufort County residents

               are familiar   with  the  frequent  flooding  that  occurs  in downtown

    I           ~~~Belhaven  after  a  normally  heavy  rain.    Hurricane-level  wind and

               rains would cause a greater hazard  to the  planning area.   The United

               States Army Corps of Engineers SLOSH (Sea, Lake and Overland Surge from

    *           ~~~Hurricanes) model maps show that all of the  land in  the planning area

               is located in the Category I and 2 hurricane zone (Figure 6). This

    I           ~~~means that inundation may occur during  a hurricane  with winds between

               75 and  94 miles  per hour.   Flood Ievels would depend on the relative

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~24

               elevation of a site. The Town acknowledges the dangers inherent to the

               flood plain and certain building restrictions, in accordance with the

               Flood Prevention Program sponsored by the Federal Emergency Management

               Agency,  exist  in  these  areas.    Details on the floodway prevention

    I           ~~~ordinance are given in the section above entitled  "Plans, Policies and

    *           ~~~Regulations".

                Soils

                     Soils in the planning area were mapped in 1982 by the Soil

    I           ~~~Conservation Service  for the  Beaufort County  Soil Survey.   The Soil

                Survey was used to determine which soils present development limita-

                tions due to wetness or high potential for shrinking and swelling.

                Approximately 13 different soil associations can be found in the

                planning area.   All  soils have  a high  organic content.   Many local

    I           ~~~soils  are  considered  mucks  because  of  the persistently high water

                table, but some sandy loam series are available,  as well.   The entire

                planning area is covered by soils that are poorly drained and have

                severe limitations for the  placement of  -septic tanks.   Most problems

                associated with these soils are their slow permeability, poor filtering

    *           ~~~ability and wetness.

                     Subsidence is typically  a problem in the planning area.   Because

    I           ~~~the soils  are usually  wet, they  are likely to become compacted under

                stress.  This would present a problem for  foundation stability.   Soil

                fill, used in many instances to raise the relative elevation of a

                particular site, may mitigate subsidence problems in the planning area.

                Soil shallowness is typically not a problem in Belhaven.

                            ~~~~~~~~~~~~~~~~I       ~~~~~25

                                                    Figure 6

                                   AREA INUNDATED BY CATEGORY 1 HURRICANE

    I

      *   '�

                                                V                                              Al~~~~~~~~~
                                 N,~ ~ ~ ~ ~ ~ ~ ~ ~~~~~~~~~~~~~~1
                             I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~."I

                               -r~~~~~~~bl~~~~~~~~~~~~m~~~7--'

                                                                    :71~:
                         i~~~~i~~~~-�--��~~~~~~~~� .....~ -- -   ,,.
                                 ~~~~~~~~~~~~~~~~~~~~~~~~~-~~~~~~~~~~~~~~~~~~~~~~~.%.

                          I  _
                                       ....-1 . ~ ... ......                           .............APP.ROX.MATE SCALE.
                                                   :7~~~~~~~~~~~~~   1:7          ,~

                                                                                        It      '0  2000' . 3000
                                          '   . . . . .   ' -'    .,~    - ~~- -'-',-   - ' -~   A PROXLATE   CA

                                                                                  LEGEND
         Source:  U.S. Army Corps of Engineers S.L.O.S.H. model.
                                                                                  *  Submerged Vessel,

                                                                                     Wetlands
                                                                                   Surface Waters
                 The preparation of this map was financed in part                 Behaven Town Limits
                 through a grant provided by the North CarolinaBelhaven Town Limits
                 Coastal Management Program, through funds
       ~I       provided by the Coastal Zone Management Act of                   Flood Prone Area
                 1972, as amended, which is administered by the
                 Office of Ocean and Coastal Resource Management,
                 National Oceanic and Atmospheric Administration.

    I

                     1                                                                 ~~~~~~~~~~~~~~~~~~~~~~~26

                    In summary, all of the soils found in the area have limita-

               tions for the efficient placement of septic tanks and stability

               of building  foundations.   Shallow soils are not a widespread problem.

               The implications for development translate into higher overall costs

    I          ~~~per unit in order to overcome these constraints. Generally, large scale

    I          ~~~development, such as industry,  should be  targeted to  areas where the

               soil is not suited for residential development. Areas with "better"

               soils should be preserved for residential developments or projects

               which would require soils with fewer constraints.

                Water Suoplies

                     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

    I          ~~~effect an the reservoir capacities and recharge rates are limited.  The

                DNRCD Division of Environmental Management Groundwater Section has been

                collecting data  and monitoring  water levels  in the  Belhaven area to

                determine groundwater conditions and evaluate the effects of large

                withdrawals. The following is a brief synopsis of DEM's research

    *          ~~~findings.

                     The Town of Belhaven presently operates two deep wells which

                utilize subsurface water. A~ll of this groundwater is obtained from the

                Yorktown  formation  aquifer.    Since  the  onset  of phosphate mining

                operations across the river from Belhaven near Aurora, groundwater

                levels  have  been  lowered  drastically.    Belhaven was included in a

                program called the "Capacity Use Area" which includes  several counties

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~~27

                in eastern North Carolina. Groundwater usage in the Capacity Use Area

                has been carefully monitored since 1967 when excessive drawdowns were

                occurring as a result of the phosphate mining.

                     The chemical and physical quality of groundwater in the this

    I           ~~~aquifer varies areally and vertically.  The water  i s generally  low in

                mineral content and suitable for any purpose.

                     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

    U           ~~~the reservoir for recharge to the underlyin g Castle Hayne system.   The

                site for recharge is generally in an area northwest of Wilmar near the

                Pitt/Beaufort County boundary.   DEM  officials  have  stated  that the

                groundwater level has reached a.-state of equilibrium; that is, as much

                water is being extracted from  subsurface  sources  as  is  being added

    I           ~~~through recharge.   Obviously, this critical balance must be maintained

                in order to assure an adequate water supply for the futurei Expanded

                phosphate  mining  operations  or  any  other  additional  heavy  water

                uses may  upset  this  balance.    The  Capacity  Use  Area groundwater

                management program was developed to protect the greater supply of

                water. Over the next ten years, there is no immediate danger of a

                limited supply of groundwater, but water use should still be considered

    I           ~~~in determining what types of industry locate in the region.

                Excessive Ground Slope Areas

     *               ~~~~Excessive  slopes  are  defined  as  areas  where  the predominant

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

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~~28

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

                the  land  in  and  around  Belhaven  is  very  low with little relief.

                There are no sites which have a slope of 12 percent or more (Beaufort

                County Soil Survey).

               Fraoile Areas

                    Fragile areas are the water and land environments whose physical

                and biological nature make them especially vulnerable to damage or

                construction resulting from inappropriate or poorly planned develop-

                ment. Federal regulations, like the Section 404 Dredge and Fill Act,

                have beenf enacted to preserve sensitive wetland areas. State regula-

                tions, such as those promulgated under the Coastal Area Management A~ct

                (CAMA~), protect valuable coastal resources and are of particular

                importance for land use  planning in  Belhaven.   The Coastal Resources

                Commission (CRC) established by CAMA, was directed by Section 113 of

                the Act to identify and designate "areas of environmental concern".

    I           ~~~Those  areas,  known  as  AEC's,  contain  resources  -  natural and/or

               cultural - which are of statewide concern.   Unregulated development in

               AEC's has a high probability of causing irreversible damage to public

               health, property, and  the  natural  environment.    Therefore  the CRC

               has  issued  guidelines  for  development  proposals  in  AEC's.   Most

    I           ~~~projects in AEC's require a CAMA  permit.   .'Minor" development permits

    *           ~~~(generally projects altering less than 20 acres or involving structures

                less than 60,000 square feet) are issued by a local permit officer.

                "Major" development permits are issued by the Division of Coastal

               Management.

                                                                                         30

                                               Figure 7

                              AREAS OF ENVIRONMENTAL CONCERN AND OTHER

                                          FRAGILE AREAS

      -*�  I.~  .�-  �'~��                                       .~u,       ~   ~    O   0

                                  S..LC~~~~AW                                       I -,�b . SCALE

                                                                          LEGEND

                                                                             Submerged Vessel

          The preparation of this map was financed in part               D  Coastal Wetlands AEC
          through a grant provided by the North Carolina         E
          Coastal Management Program, through funds
          provided by the Coastal Zone Management Act of         P
          1972, as amended, which is administered by the                     Public Trust Waters AEC
          Office of Ocean and Coastal Resource Management,
          National Oceanic and Atmospheric Administration.                  Nursery Areas

                                                                               Estuarine Shoreline AEC
    I~~~~"~

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~29

                     Four categories of  A~EC's  have  been  developed:      the estuarine

                system, the ocean hazard system, public water supplies and natural and

                cultural resource areas.

                     A~ good portion of land in Belhaven has  been   identified as being

    I           ~~~part of  the Estuarine  System AEC.   Estuarine AEC's have been defined

                as having four  components:    public  trust  areas,  estuarine waters,

                estuarine shorelines, and coastal wetlands. Figure 7 depicts the

                estuarine system AEC in  Belhaven.   It should  be noted  however, that

                the AEC's have been depicted here for planning purposes only. The

    I           ~~~influence of  tides and  wind makes  the coastal  estuarine system dyn-

    3           ~~~amic.  Since  coastal  areas  are  subject to change, maps are used for

                reference only; actual permitting decisions are determined an a

    U           ~~~case-by-case basis  through field inspection.  A discussion of specific

                areas of environmental concern in Belhaven follows.

     I               ~~~~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 navigation, access and recreation. All

                surface waters in the area, including tributaries of the Pungo River

    3           ~~~and Pantego  Creek, are  in the  public trust.  The tributaries include

                Battalina Greek, Tooley's Creek, Wynn's Gut and Shoemaker Creek.

     U               ~~~~Public trust areas are  significant because  they support valuable

    3           ~~~commercial and sports fisheries, have aesthetic value and are important

                resources for economic development. These areas should be managed so

    3 ~~~as to protect the public's rights for navigation, recreation and a

                1livelihood.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~31

                Acceptable uses should be consistent with the management objectives

                listed  above.    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,

    I           ~~~increase shoreline erosion, deposit spoils below mean high  tide, cause

                adverse water circulation patterns, violate water quality standards or

                cause degradation of shellfish waters.

     3               ~~~~The  estuarine  water  A~EC  occupies  all  surface  waters  in the

                Pungo River. Estuarine waters are defined as "all the water of the

    I           ~~~~tlantic Ocean within the boundary of North Carolina and all the waters

    3           ~~~of  the  bays,  sounds,  rivers  and tributaries thereto seaward of the

                dividing line  between  coastal  fishing    waters  and  inland fishing

    3           ~~~waters, as  set forth in an agreement adopted by the Wildlife Resources

                Commission and the Department of Natural Resources and Community

    I           ~~~Development filed with the Secretary of State" (NCAC).

     *               ~~~~Estuaries  are  among  the  most  productive  natural environments

                of North  Carolina.   They support  the valuable  commercial and sports

    3           ~~~fisheries of  the coastal area.  Several species must spend all or some

                part of their life cycle in the estuarine waters to mature and repro-

    3           ~~~duce.   Of the ten leading species in the commercial catch, only one is

                not dependent upon the  estuary.   The estuarine  circulation system is

    I           ~~~also responsible  for the high productivity levels.  The circulation of

    3           ~~~estuarine waters transports nutrients,  propels plankton,  spreads seed

                and flushes wastes from animal and plant life. It also mixes the water

    *           ~~~to create a multitude of habitats.

                        *                                                                   ~~~~~~~~~~~~~~~~~~~~~~~~36

                                              Figure 8

                                  PROPERTIES IDENTIFIED AS HISTORIC

                                    STRUCTURES IN THE BELHAVEN AREA

    U       ~~Helen Boyd House                                 103 Magnolia Street

             Belhaven Railroad Depot                           Corner Main and Haslin Streets
    I      ~ ~(Future Chamber of Commerce Visitors Center)

             Belhaven City Hall                                NE Corner E. Main Street
             (Currently used as museum)                        and Allen Street

             Kirk-Bishop House                                 513 Front Street

    I       ~~W. C. Credle House                               310 West Main Street

             Bullock House                                     701 East Main Street

             Brooks House                                      304 West Main Street

             Trinity Methodist Church                          335 East Main Street
                I                                           ~ ~~~~~~~~~~~~~Intersection W/Edward Street

             Topping House                                     Lamont Street
                I                                           ~ ~~~~~~~~~~~~~Between Pungo and Latham Streets

    3       ~~Captain Terrill House                            512 Main Street

             St. James Episcopal Church                        405 Main Street

    3       ~~Oden-Boyd House                                  105 Magnolia Street

             Riddick House                                     409 Front Street

    I       ~~Midgett House                                    414 Main Street

    3       ~~Luckton House                                    325 Front Street

             Clark House                                       102 Front Street

    3       ~~Belhaven Baptist Church                          Edward Street near JCT W/Front Street

    3       ~~SOURCE.  NRCD Division of Cultural Resources, 1985.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~32

     3               ~~~~The management objective for this AEC is to safeguard and perpetu-

                ate its biological, socioeconomic and aesthetic values. Suitable

                land/water uses shall be consistent with the state guidelines.

                     The estuarine shoreline is another AEC type found in the planning

    I           ~~~area.   Although the  estuarine shoreline is characterized by dry land,

    3           ~~~it is included as a component  of the  estuarine system  because of the

                close association with adjacent estuarine waters. Estuarine waters are

                the non-ocean shorelines which are especially vulnerable to erosion,

                flooding or other adverse effects of wind and water and are intimately

    I           ~~~connected to the estuary.  This area extends  from the  mean high water

    *           ~~~level or normal water level along the estuary for a distance of 75 feet

                landward. A~ll the property adjacent to the Pungo River as far west as

    3           ~~~the breakwater  is included  in this AEC.  Present land uses within the

                Town limits along the estuarine shoreline include dispersed residences

    I           ~~~and a marina at the mouth of Battalina Creek.  Outside the Town limits,

                the estuarine shoreline is virtually undeveloped.

                     Because  of  the  well-defined  link  between  the  shoreline  and

    3           ~~~the  estuarine   water,  development  within  the  estuarine  shoreline

                has a direct influence on the quality of estuarine life.   This  AEC is

    *           ~~~also  subject  to  the  damaging  processes  of shore front erosion and

                flooding.

     I               ~~~~The management objective for this AEC is to  ensure that shoreline

    5           ~~~development  is  compatible  with  both  the high damage potential from

                storms and the values of the estuarine system.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~33

     3               ~~~~The NCAC states that, in terms of land  use, the  estuarine shore-

                line is the least restrictive of all AECs. All development in the AEC

                should not have a significant adverse impact an estuarine resources.

                The 1981 policy set by Belhaven regarding estuarine shoreline develop-

    I ~~~ment is to allow the types of development described in the NCA~C guide-

    3           ~~~lines.   This includes most forms of structures.  A~ll building applica-

                tions in this 75 foot jurisdictional zone must be submitted to the NRCD

                Division of Coastal Management. The zoning ordinance has been rewrit-

                ten to accommodate these development types.

     I               ~~~~Coastal  wetlands,  another  defined  A~EC,  are  found  along  the

                northern bank of Pantego Creek from the western edge of the planning

                area to the Haslin Street extension, and along the Pungo River on the

    3           ~~~two peninsulas  surrounding Tooley's  Creek and the estuarine shoreline

                area along Lower Dowry Creek. Wetlands are defined as "any salt marsh

    I           ~~~or  other  marsh  subject  to  regular or occasional flooding by tides,

                including wind tides". The tide waters can reach the marshland through

                natural dr  artificial water  courses.   The NCAC  sets forth a list of

             - indicator plants for the designation of a wetland.

                     The wetland environment is one of the most productive in the

    3           ~~~estuarine  system.  Detritus  (decayed  plant  material)  and nutrients

                exported from the marshland support  the  estuary's  food  chain.   The

                roots, rhizomes, stems and seeds in coastal wetlands act as the nursery

    3           ~~~area and food source for many fish and shellfish species.  In addition,

                wetlands act as the first line of defense in retarding estuarine

    3           ~~~shoreline erosion.  Marshlands also act as nutrient  and sediment traps

                     *                                                                  ~ ~~~~~~~~~~~~~~~~~~~~~~~3 4

                by slowing the water which flows over them and causing suspended

                organic and inorganic particles to settle out.   Pollutants and excess-

                ive nutrients are absorbed by the marsh plants, thus providing an

                inexpensive water treatment service.

     I               ~~~~The  NCAC  states  that  the  management  objective  for  this A-EC

    *           ~~~is  to  give  highest  priority  to  its  protection  and management so

                as to perpetuate its biological, socioeconomic and aesthetic values.

                It is also recommended to utilize wetlands as a natural resource which

                is essential to the functioning of the entire estuarine system.

     I               ~~~~In terms of land  use,  coastal  wetlands  are  the  most restric-

                tive of all AECs. As with other AECs, all applications for development

                must be permitted with the NRCD  Division of  Coastal Management.   The

                NCAC prohibits alteration of the marshes and other wetlands; fill

                material cannot be placed on the wetland to raise its elevation and

    3           ~~~artificial drainage  of the wetland is not allowed.  Any activity which

                may disturb the functioning of the wetland will not be permitted. The

                management objective of the NCA~C is to protect the overall functioning

                of the wetland.   Acceptable uses  would be  utility easements, fishing

                piers and docks.

                     Several other natural areas in the Belhaven planning area are

                significant, but are not protected by any State or Federal regulations.

    I           ~~~The  NRCD  Division  of  Marine  Fisheries (DMF), through many years of

    3           ~~~research, has  developed  a  list  of  wate r  bodies  in  coastal North

                Carolina which are known spawning areas for juvenile fish species.

                These waters are called  primary nursery  areas (PN~s).   They  are not

                                                                       35

    considered AECs  by the  NCAC. According to DMF technicians, Tooley's

    Creek is a PNA.    Pantego  Creek  and  its  tributaries  are secondary

    nursery areas which serve as a habitat for more mature juvenile fish

    species. Major estuarine species found in these creeks are spot,

    croaker, menhaden,  Southern  flounder,  blue  crabs  and brown shrimp

    (during periods of high salinity).  Fresh water species found  in these

    creeks are catfish, bullheads, white perch and pumpkinseed. Pantego

    Creek is not recognized by the DMF because of a jurisdictional discrep-

    ancy between DMF and the Wildlife Resources Commission. These nursery

    areas should be protected as potential resource areas  because of their

    unique biological  significance.   Land uses  adjacent to these nursery

    areas would directly impact the quality of the habitat for the fish

    species.

        Although not a natural system, the historical integrity of

    the Town also deserves special attention. A number of  structures have

    been recognized  for their  historical value by the State Department of

    Cultural Resources, Division of Archives and History (Figure 8). The

    Belhaven Town Hall, the only structure in Town listed on the National

    Register, is currently under restoration by the Town. To preserve the

    historical integrity  of these  structures, new development adjacent to

    these sites should be in the same theme as the historic properties.

         The area is also rich in archaeological heritage, dating from both

    prehistoric and  recent times.   The ancient Town of Aquasogoc is shown

    on the historical record as being located at the headwaters of the

    Pungo River.   This  location could  either be  Belhaven or present-day

                      I                                                                    ~~~~~~~~~~~~~~~~~~~~~~~~37

                Scranton, but thus far, little evidence confirms either location as

                being  the  site  of  Aquasogoc.    In  addition,  the NRCD Division of

                Cultural Resources (DCR) is currently investigating the historical

                significance of the submerged shipwrecks in Pantego Creek. Historical

                documents show that a Civil War era schooner was sunk by the northern

                gunboat, Delaware, in March of 1862 in Pantego Creek. A~ny CAMA~

                permit requests in the Pantego Creek area may be subject to a survey by

                the Underwater Blranch of DCR. The Town acknowledges that these are an

                irreplaceable resource that should  be  protected  and  preserved.   A~n

    I           ~~~underwater investigation  by DCR is encouraged to identify the relative

                importance of the wrecks offshore. A  survey  completed beforehand will

                prevent  permit  applicants  from  running  into  roadblocks during the

    *           ~~~permit process.

                     Areas  which  sustain  remnant  species  are  those  places  which

    I           ~~~support endangered  species of plants and animals. As of this writing,

                none of these areas are located w~ithin Belhaven's jurisdiction. Should

                any be  designated, the  Town will  take all  precautions to ensure the

    *           ~~~safe reproduction of these species.

    I           ~~~~REAS WITH RESOURCE POTENTIAL

                     Although much of the land within the planning district is devel-

                oped, there may be certain areas where development should be discour-

    *           ~~~aged because of  man-made  or  physical  hazards  or  because  the area

                contains or effects a -developable natural resource. In Belhaven, the

    *           ~~~most valuable resource areas  are the  soils which  produce the highest

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~38

                yield per acre and the surrounding surface waters that are critical for

                the fishing industry.

                     Several sites covered by prime agricultural soils are found

                within  the  jurisdictional  limits  (Figure  9).    The  NRCD Division

    I           ~~~of Soil and Water Conservation and  the U.S.  Soil Conservation Service

    I           ~~~assisted in  gathering information  necessary to  map these soils.  The

                existing land use map shows that the two easternmost sites are curren-

                tly  under  agricultural  production.    The  in-town site is currently

                developed as a residential area. The Town has weighed the importance

    I           ~~~of productive  farmland and  has developed  policy statements regarding

                its protection in the "Resource Production and Management Policies"

                section of this plan.

                     The estuarine system offers several very unique resources which

                require careful management and protection.   These include  the coastal

    I           ~~~wetlands, primary  and secondary  nursery areas and all surface waters.

    *           ~~~Descriptions of their  significance  and  locations  are  given  in the

                preceding "Fragile  Areas" section.   As described earlier, the commer-

                cial fishing business is very important to the local economy.   Preser-

                vation of. nursery areas and quality of the water is critical for the

                economic vitality of the Town. Land use decisions should reflect this

                high priority for managing development. to protect the estuarine

                system.

                     Peat and phosphate deposits are located in the Belhaven planning

                area.   Mining these  areas, however, should not become an issue within

    I         ~ ~~the next ten years.   According  to  Dr.  Lee  Otte,  an  East Carolina

                University professor who is recognized as being the foremost expert on

                                                                                39

                                          Figure 9

                              LOCATION OF PRIME AGRICULTURAL SOILS *

                                                          U. q.         2*,

    I,

            * As defined by the Soil Conservatioh Service
                                                                  .4 Submerged Vessel

                                                                  E Wetlands
         The preparation of this map was financed  in part                                  Surface Waters
         through a grant provided by the North Carolina                                    Prime Agricultural Soil
         Coastal Management Program, through funds
         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.
                I~~~~~~~~~~~~~~''�4 n~,r ~

                  I~~~~~~~~~~~~~~~~~~~4 1.i-

                                                                           40

       the location and mining resource potential of N.C. peat and phosphate

       deposits, the deposits within the planning area are not rich enough to

       justify their being  mined.    This  does  not  preclude,  however, the

       possibility of developing a energy-generating facility for the peat

       resources. Belhaven's proximity to current sites eyed for mining in

       Tyrrell and Washington counties would make it an attractive location

       for a peat-fired electrical plant. Peat and phosphate mining in other

       locations  could   significantly  impact  Belhaven's  water  resources,

       in  particular.    Policies  on  mining  and  siting electrical-genera-

       ting  facilities  in  the  planning  area are included in the "Resource

       Production and Management" and "Economic and Community Development"

       sections of this plan.

    I,~?�          - ;�,

                     *                                                                    ~~~~~~~~~~~~~~~~~~~~~~~41

                           CONSTRAINTSi CAPACITY OF COMMUNITY FACILITIES

                 Introduction

     I                ~~~~~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 Town

                 officials to assess development trends and analyze the requirements

    I            ~~~~placed on the community  facilities.   The following  section discusses

                 the existing conditions of the water and wastewater systems, solid

                 waste collection and treatment facilities, schools and roads.

                 Water and Sewer Systems

                      The Town of Belhaven operates municipal water and wastewater

                 systems for  customers within  the Town  limits.   Nearly all residents

                 are tied into the systems. The water system serves about 93 percent of

                 the Town and the wastewater treatment facility serves 95 percent of the

                 area's residents.

                      The water system is designed for a capacity of 5049000 gallons per

                 day.   It consists of two wells.  This system is currently used at less

    I            ~~~than 73 percent of its capacity.   For  the purposes  of this  plan, an

                 estimate of the average usage rate is measured. This is calculated by

                 the total gallons being used daily based on the number of people living

                 in the area which use the system. Given these values, theoretically,

                 the current usage rate allocates 147 gallons per day per person. Given

    I            ~~~these  hypothetical  usage  rates,  an  additional 925 persons could be

                 added on to the system before it would reach its design capacity.   Any

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~~42

               peak load brought on by a population surge could easily be accommodated

               with the  existing facilities.   Additional residential, commercial and

               normal industrial growth could occur without causing any stress on the

               system, providing that no more than the equivalent of 925 persons are

    I          ~~~added.  Industry which uses an abnormally high volume of water, such as

               a mining operation or chicken processing plant, could create a supply

               problem for the town.

                    The Town sewer system is operating at less than 70 percent of its

               intended capacity. It is designed for a capacity of one half a million

    I          ~~~gallons per day (mgd).    During  peak  times,  the  flow  rate becomes

               955,000 gallons, or nearly two times the design capacity. In 1978, a

               moratorium was placed on additional sewer pipe hook-ups to the system

               which states that no additional sewage lines can be laid to accommodate

               development. This has had a tremendous impact an the amount of growth

    I          ~~~that has  been able  to occur in Town.  Industrial recruitment has been

               severely limited by this moratorium. As stated in the "Plans, Policies

               and Regulations" section of this plan, the Town is currently involved

               in a 201 Facilities program to  upgrade the  system.   Funding has been

               granted for the project in FY '86. The Town has not met effluent

               requirements for an extended period of time, but it is expected that

               the treatment facility will be in compliance by July 1, 1988. Until

    I          ~~~upgrading is completed, no additional pipe hook-ups can be made.

               Solid Waste Collection and Police and Fire Protection

                    The Belhaven Sanitation Department provides garbage collection

               within the  Town limits.   Collection takes place twice a week for both

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~~43

                 residential and  commercial customers.   The refuse is deposited at the

                 County landfill at Whitepost, near Bath. All in-town residents pay for

                 service and customers located'~an the fringes can be served at a higher

                 fee than in-town customers.

                      Police service is provided for all persons located within the

                 planning area. The police force consists of 14 persons and three squad

                 cars. Twenty-four hour patrolling is limited to in-town locations

    *            ~~~~only.

                      The Belhaven Volunteer Fire Department and Rescue Squad is manned

                 by 30 volunteers. Its Fire District area is bounded by the Walter B.

                 Jones Bridge in Hyde County, Smithton, and the Cuckold's Creek bridge

    I            ~~~near Pantego.  The rescue squad  service area  extends beyond  the Fire

                 District  area  by  several  miles.    Agreements with nearby towns are

                 designed to increase the fire fighting manpower in the event of a major

                 disaster.   The Town  operates a tanker, three pumpers and an equipment

                 van plus two ambulances.

    *            ~~~~Schools

                      The school facilities are very important in any community.

                 Belhaven Elementary School, Beaufort County Elementary School, Pantego

                 Junior High School and J.A. Wilkinson High School serve the area. Only

    I            ~~~Belhaven Elementary  School and  J.A. Wilkinson High School are located

                 in the Town. The Town also has a private school for grades Pre-Kinder-

                 garten  through  12.    The  Pungo  Christian Academy is located in the

    *            ~~~~western portion of the Town limits.

                     I                                                                    ~~~~~~~~~~~~~~~~~~~~~~~~~44

                       Belhaven Elementary School, originally constructed in 1937, is

    I             ~~~~operating at about  98  percent  of  its  capacity  (Figure  10).   The

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

                  conditions. If the school age population should increase, the children

                  from Belhaven Elementary School could be accommodated at Beaufort

                  County Elementary School. It is operating at only 67 percent of its

    I             ~~~~capacity.   The junior high school is operating at nearly 50 percent of

    *             ~~~~its capacity.

                       Because  of  the  demand  projections  and   current  overcrowding

                  situations tentative Beaufort County Schools plans call for the

                  reorganization of the local elementary, junior high and high schools.

    I             ~~~~The elementary  school's will  be responsible  for grades K-5 instead of

                  K-6 as they are  presently.    J.A.  Wilkinson  High  School, currently

                  operating at 95 percent capacity, will become a junior high facility

                  and will house sixth, seventh and eighth graders. As a result, Pantego

                  Junior High  School will  be closed.   A new high school constructed in

    I             ~~~~Yeatesville, will have a capacity of 800 students.  It will incorporate

                  students from Bath, Pinetown, Belhaven and Pantego. The County School

                  Superintendent's office anticipates growth in the demand for public

                  school  facilities.    According  to  Superintendent Clifton Toler$ the

                  growth will result from a spill-over from area private schools.

    I             ~~~~Some private  schools are  losing enrollment and the public schools are

                  taking in their former students. This is causing an overall growth in

                  the  population  attending  public  schools.   The reorganization plans

                  should be carried out by 1990.

                                                         Figure 10

                                                        BELHAVEN AREA

                                                  PUBLIC SCHOOL FACILITIES

                                                                                       PUPIL/
                                                  1985-1986      PERCENT      TEACHER  TEACHER   GRADE         YEAR BUILT
               SCHOOL               CAPACITY      ENROLLMENT   UTILIZATION  ALLOTMENT  RATIO    TAUGHT    PLUS ADDITIONS

    J. A. Wilkinson High School         475            452          95           30        1:15     9-12       1938, 1952

    Belhaven Elementary School          525            516           98          28        1:18     K-6        1937, 1953,
                                                                                                             1976

    Pantego Jr. High School             400            209           52          14        1:15     7-8        1926

    Beaufort County Elementary
      School                            350            236          67           15        1:15.7   K-6        1936, 1953,
                                                                                                             1954

    SOURCE: Beaufort County School Superintendent, 1985.

                                                   PRIVATE SCHOOL FACILITY

    Pungo Christian Academy             300            220           73          15        1:14.7   Pre-       1970, 1971,
                                                                                                   K-12      1975, 1977

    Source: Pungo Christian Academy Staff

                                                                                                                          UP

                     *                                                                    ~~~~~~~~~~~~~~~~~~~~~~~~46

                  Roads

     U                 ~~~~~The road  system in  Town is  currently sufficient for any traffic

                  peaks which may occur. The N. C. Department of Transportation District

                  Engineer estimates that no road in the planning area is used at more

                  than 50 percent of its capacity. A~ny additional growth could easily be

                  accommodated  by  the  present  road  system.   The Town of Belhaven is

    I             ~~~~responsible for minor improvements to the roads in Town.   There are no

                  major improvements planned for this area according to the NC Department

                  of Transportation Transportation Improvements Proqram 1986-1995.   Some

                  secondary roads will be resurfaced under the DOT priority system, but

                  there will be no additional improvements made to the local roads.

    *             ~~~~Medical Facilities

                       The Town has a full service 47 bed hospital equipped with emer-

                  gency room  facilities.   The Pungo District Hospital is served by four

                  doctors and two dentists with local medical practices, as well as

    I             ~~~~being equipped  with a full regulation emergency heliport.  A branch of

                  the Mattamuskeet Medical Cli'nic is also located in the Town limits.

                  Other medical specialists serve the Town on a regular basis, including

    *             ~~~~four pharmacies.

        *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~47

                                 ESTIMATED DEMAND

    Population and Economy

        Population trends in Beaufort County have shown the population

    increasing at a modest rate since  1970.   Historically, this  has also

    been the trend for Belhaven (Figure 2). It is anticipated that this

    trend will continue in the next ,ten years (Figure 11).   The population

    is expected to approach 2,591 by the year 1990. By 1995, it is

    projected that the Town will gain 84 more persons, bringing the total

    to 2,675  persons.   It is  expected that the Town can accommodate this

    growth after the problems associated with the wastewater treatment are

    corrected. Until then, no piping additions can be made to the existing

    system and only limited growth can occur. The target date for comple-

    tion of the 201 upgrading plan is July 1, 1988. When corrected, the

    water and wastewater systems could adequately accommodate the popula-

    tion change as both systems are used at less than 75 percent of

    their design capacity. The road system would also be able to service

    this potential  population growth.   A~ population surge  in school age

    children could be accommodated by the new restructuring of the school

    facilities.

         Within the Town limits, there may be strains on the land brought

    on by this growth.   There  is currently  only a  small amount  of open

    space that could be converted to residential uses. Given the average

    2.8 persons per household calculated by the U.S. Bureau of the Census,

    an additional 65 dwelling units would need to be constructed to

    accommodate the growth projected  by 1995.   Sites  for these dwellings

    are very limited.

                                                                           48

                                 Figure 11

                           POPULATION PROJECTIONS

                        BELHAVEN AND BEAUFORT COUNTY

                                 1984 - 1995

                                1984x               1990*             1995*

    Belhaven                     2,494              2,591             2,675

    Beaufort County             43,818             45,404            47,645

    * Belhaven projections made by Mid-East Commission, 1985.
    x Municipal and County estimates provided by the N. C. Department of
       Administration, 1985.

                     I                                                                   ~~~~~~~~~~~~~~~~~~~~~~~~49

                       Future industrial growth may be constrained by the limited amount

                  of industrial land available. The only sites available for industrial

                  development are in the existing areas zoned for manufacturing. CAMA

                  permits might also prevent industrial expansion in some areas. To work

                  toward solving the problems associated with land availability, the Town

                  should complete an annexation feasibility study.   Additional  land may

                  need to be obtained to accommodate the projected growth.

                  Summary

                       The Blelhaven population is expected to increase moderately through

                  the year 1995.   The water,  school and  road systems  could adequately

    I             ~~~~accommodate the  anticipated growth.   The problems associated with the

                  wastewater treatment facility must be resolved prior to any growth

                  occurring.   Currently, a  limited number  of users can be added to the

                  system without laying additional  piping.   The 201  Facilities Project

                  was recently funded and should improve capacity and effluent conditions

    I             ~~~~in the wastewater treatment system.

                       Based on current population projections, an additional 65 dwelling

                  units will be required to house expected population increases. Given

                  existing land use, the Town can easily accommodate such development.

                  However, should population growth exceed current projections, more

                  land may  be needed  to accommodate  new develoment.   To  that end, an

    *             ~~~annexation  feasibility  study  is  recommended  to  learn  more  about

                  acquiring additional open space for residential and commercial develop-

    *            ~~~~ment.

                     *                                                                   ~~~~~~~~~~~~~~~~~~~~~~~~50

                             REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS

                     During their October 1985 meeting, the Coastal Resources Commis-

                sion reviewed a land use plan update which included a systematic

                analysis of all its 1980 policies as an introduction to their 1985

    I           ~~~land use plan update.  This  analysis  included  an  assessment  of the

                effectiveness of the 1980 goals and a discussion of actions and

                activities used to implement these policies  and  goals.   This "score-

                card" approach gave the local government an opportunity to reflect on

                how it achieved its previous goals as a beginning step to formulating

    I           ~~~new  policies.    it    also  provided  the opportunity to evaluate the

    I           ~~~strengths and weaknesses of the previous 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

    I           ~~~addressed  in  the  1981  Belhaven  Land Use Plan Update.  The Planning

                Board critiqued the 1981 policies at one of its earliest meetings.

                Each policy was analyzed for its content, means of enforcement, and

    3           ~~~implementation strategy effectiveness.   In a  "checklist" format, each

                implementation procedure was reviewed to see how well each goal had

                been carried out since its forma~tion.

                     In addition to providing an outlet for evaluating accomplishments

    I           ~~~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 poli-

                cies.  The board gave Belhaven  a   "B".   Most Planning  Board-members

                felt that the policy statements were well thought out, but the imple-

                                                                       51

    mentation methods had not been fully carried out.   Most  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 deficien-

    cies found by the Planning Board.

    RESOURCE PROTECTION

         Listed below are condensed versions of the policies and implemen-

    tation strategies regarding Resource Protection in the 1981 plan. The

    symbol  **  indicates  that  the  implementation    strategies were not

    completely carried out.

                   1981 Policies and Implementation Strateoies

              1. Allow a less restrictive set of uses in the coastal

    wetland AEC than those recommended by NCAC Subchapter 7H if the proper

    CAMA permits are granted.

               ** a.  Make revisions in the zoning  ordinance to  allow for

    the above uses.

              2.   Limit the allowable uses for the estuarine shoreline AEC

    to those listed in NCAC Subchapter 7H.

               ** a.  Make revisions in the zoning  ordinance to  allow for

    the above uses.

              3. Allow  a  less  restrictive  set  of uses in the public

    trust waters AEC than listed in Subchapter 7H.

               ** a.  Make revisions in the zoning  ordinance to  allow for

    the above uses.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~~52

                          2. Support hurricane evacuation efforts.

                              a. Will participate in the County's Hurricane Evacuation

                Plan for threatened areas.

                          3. Will support flood insurance programs.

       I                      ~~~~~~~a.  Will use zoning and building codes to ensure that the

                Town is in compliance with the Federal Flood Insurance Program.

                          4. Support development of an historic district.

                             **a. By 1981, prepare a draft historic district zoning

                ordinance.

       I                      ~~~ ~~~b.    If  necessary,  seek  Community  Development  Block

                Grant  funds  to  maintain  public  services  and  structural soundness

                to the homes in the area of the historic district.

                              c. Discourage eastward spread of industrial and commer-

                cial uses to maintain the theme of the historic structures.

      I                   ~~~~~~5.  Develop a plIan to construct a dike.

       *                      ~~~ ~~~a.    Seek  funds  for  a  Corps  of  Engineers-sponsored

                dike plan.

                          6. Support State efforts  to preserve  underwater archaeolog-

                ical artifacts.

                             ** a.    Inform  local  permit  officer  about the state's

                interest in preserving offshore, submerged archaeological artifacts.

                     Nearly all  the  above  policies  had  been  successfully followed

    *           ~~~through  by  means  of  the  implementation  procedures  decided  upon.

                The  Board  felt,  however,  that  although  the  policies  were strong

                and good, all the issues required by the CAMA guidelines were not

                adequately discussed. Issues such as the availability of safe drinking

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~53

                water, marinas, and physical constraints to development were not

                addressed. The Board was pleased that extracurricular efforts, such as

                the feasibility study for the dike, had been completed. It was decided

                that the policies formulated in the 1986 plan would be selected and

    I           ~~~enforced  only  with  existing  regulations and policies adopted by the

                Town. Additional efforts- are often too much to expect without the

                assistance of a full-time professional planning staff for the Town of

                Belhaven.

    I           ~~~RESOURCE PRODUCTION AND MANAGEMENT

                                 1981 Policies and Implementation Strateqies

                          1. Restrict open-pit mining activities to areas classified

    *           ~~~as "rural" on the land classification map.

                              a.     Utilize  -land  classification  map,  zoning  tool,

    I           ~~~and  utilities  extension  polic ies  to  restrict  location  of  mining

                activities.

                          2. Encourage agricultural production.

       *                      ~~~    ~~~a.  Encourage  agricultural   production  through  the

                land classification map, the zoning ordinance, and the utilities

    *           ~~~extension policies.

                          3.   Work toward  maintaining the  vitality of the commercial

                fishing industry.

                              a. Provide dredging and support services.

                             **b.    Sponsor  community  forum  to  identify  problems,

    *           ~~~consider alternatives  and generate  interest in designing solutions to

                the fishing industry's space problems.

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~54

                     The Planning Board felt that while the above policies were

                good, the means for their support were not as strong as they could have

                been. Not all issues required under the CAMA Land Use Planning

                Guidelines had  been discussed.   Also,  in light of the heated debates

    I           ~~~over peat mining in the Pungo River watershed,  there were  no policies

    U           ~~~which directly related to the proposed mining activities.

                ECONOMIC AND COMMUNITY DEVELOPMENT

                                1981 Policies and Implementation Strateaies

      I                   ~~~     ~~1.  Encourage  fishing,  agricultural  and  forestry-rela-

    U           ~~~ted industries  along  the  waterfront  east  of  Highway  99,  west of

                Hwy. 99, and inland along Highway 264.

                            **  a.    Request  the  Economic  Development Administration

                to assist  in  identifying  specific  industries  suited  to  the sites

    I           ~~~listed above.

      *                   ~~~~~~2.   Priorities for  providing services:   First to developed

                and transition areas in Town and second priority is to areas outside

    *           ~~~the Town limits.

                               a. Town Board will conduct survey to determine

                 feasibililty of water and sewer expansion for every request.

                           3.    Encourage  development  around  the  downtown  business

                area. Strive for high density growth in the downtown, low density out

                of downtown.

                               a.    Study  the  feasibility  of  applying  for Economic

    3           ~~~Development grant funds to the downtown areas.

      I                   ~~~~~4.  Support control of erosion along water.

                              a. Will request technical assistance from the Corps of

                Engineers to reclaim eroded areas by filling them.

                              b.    Will  request  technical  assistance  in  designing

    I           ~~~stabilization measures for erosion-prone areas.

                          5. Support Corps of Engineers programs for channel mainten-

                ance.

                              a.  Assist  in  identifying  sites for borrow and spoil

                material for maintaining channel depth.

      I                   ~~~~~6.  Support the tourism industry.

       3                    ** ~~~~~a.  Prepare a written history of  the Town  in advance of

                establishing a walking tour.

                            **b. Establish an historic district to increase tourism.

                            **C. Increase vistas between downtown and the waterfront.

                          7.   The Town  chose not  to take  a policy  on the siting of

    *           ~~~energy-generating facilities.

                          8. Promote industrial growth to the point where it does not

                have a negative impact on the environment.

                     Of the policies listed above, the implementation strategies

                regarding tourism were not carried out.   There  were no  policy state-

                ments on the inadequacy of the wastewater treatment facility, and its

    I           ~~~problems during periods  of  high  rain.    Again,  several  key issues

                required in the CAMA~ guidelines were not addressed.

                     The Board felt that the 1981 update was an excellent effort.

    I          ~ ~~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

    3           ~~~and.  growth  management  objectives  is  probably  the  most  important

                contribution of this land use plan update. The evaluation of the

    I           ~~~present population conditions, the  condition  of  the  land  and water

    3           ~~~resources in  the Belhaven  planning area,  and the existing methods of

                policy enforcement sometimes suggests the need to modify policy to

    *           ~~~accommodate changes in local conditions.

                     The  Coastal   Resources  Commission  requires  that  policies  be

    I           ~~~addressed in five categories:

          *                               ~~~~~~~~~Resource Protection

                                         Resource Production and Management

          3                               ~~~~~~~~~Economic and Community Development

                                         Citizen Participation

          I                               ~~~~~~~~~Storm Hazard Mitigation

     3               ~~~~Each policy category  is  intended  to  cover  all  issues associ-

                ated with growth for the Town in the coming years. The guidelines were

    3           ~~~prepared to accommodate a wide range of conditions found in communities

                in coastal  North Carolina.   Because of this, not all issues addressed

    3           ~~~by the guidelines are directly applicable  to Belhaven.

                     Policy statements in this section reflect recommendations from

    I           ~~~Town  staff  and  the  planning  consultants,  input from citizens, and

    3           ~~~experience of the Planning Board.'-in judging what is best for the future

                of Belhaven.   These  statements define  the problem or issue, possible

    3 ~~~alternatives for action, the selected alternatives), and the means of

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~57

                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 to

                guide development in the planning area.

                                    RESOURCE PROTECTION

                     Belhaven recognizes the need to protect its natural and cultural

                resources. It is understood that these are an irreplaceable asset

    I           ~~~which require protection.  Often, these resources represent an economic

                return to the area's residents through  their 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 natural and cultural resources of the Belhaven area have

    I           ~~~been identified  in the  Constraints to  Develcoment:  Land Suitability

                section of this plan. The Town of Belhaven is intimately familiar with,

                the water quality problems associated with the Pamlico and Pungo Rivers

                and their tributaries.   As an  upstream user,  Bel haven recognizes its

                contribution to the pollution problems of the Pamlico-Pungo system. As

    I           ~~~a result  of this,  the Town  will work  to mitigate  any problem which

                contributes to the degradation of water quality in the Pamlico water-

                shed provided that the proposed solution does not interfere with

    *           ~~~acceptable methods of development within the Town.

                     Belhaven feels that it is in a favorable position for growth,

    I           ~~~particularly industrial development, and does not want any  policies in

                place which might inhibit growth in any way. While the Town does not

           I~~~~~~~~~~~~~~~~~~~

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~58

                want development to occur at the expense of the natural system, it is

                felt that development should not be impaired by the characteristics of

                the natural system. The Planning Board worked hard to develop policies

                which  would  best  reflect  the  Town's  position.        In any case, all

    I           ~~~development in town must comply with  the policies  listed below.   The

                following  section   details  the  issues  concerned  with  development

                and the relationship with the ecosystem.

                DEVELOPMENT IN AREA~S WITH CONSTRAINTS

     I               ~~~~The constraints to development in Belhaven  were discussed  in the

                preceding section and relate to both physical constraints associated

                with the natural surroundings and the capacities of community facili-

                ties and  infrastructure.   Physical constraints  include man-made fuel

                storage areas, high hazard flood-~:zones, and areas with soil limitations

    I           ~~~for the  safe placement of septic tanks.  The sawdust pile near the old

    *           ~~~mill an the waterfront is also a hazard to development.

                     All of the soils in the Belhaven planning area are poorly suited

                for the safe placement of septic tanks. The organic soils in the

                region also sometimes present subsidence problems for foundations. The

    *           ~~~Town recognizes the importance of safe septic tank placement to prevent

                groundwater, surface water, and well contamination and also realizes

    U           ~~~its inability to change or correct the characteristics of the soil.

     *               ~~~~Fuel storage facilities are located along the By-Pass and Business

                routes of  Highway  264.    The  Town  acknowledges  that  any adjacent

    *           ~~~development would  be subject  to fire risk from a possible ignition of

                flammable materials and well  contamination  from  tank  seepage.   The

                     I                                                                   ~~~~~~~~~~~~~~~~~~~~~~~59

                sawdust pile is also a dangerous fire hazard. Any construction in the

                vicinity of these hazards should be designed to withstand the potential

                risks associated with them.

                     According to the Federal Flood Insurance Program, the entire

    I            ~~~planning area is located in a high hazard flood zone.   Water  from the

    *            ~~~100-year  flood  would  inundate  the  entire planning area (Figure 6).

                Since the entire town is subject to flooding, it is not realistic to

                prohibit  development  in  fIloodprone  areas.    The  Flood  Prevention

                Ordinance divides the Town into two flood districts based on eleva-

    I            ~~~tions.   It requires  all development  to be situated at least eight or

    *            ~~~nine feet above sea level (depending  upon  the  location  in  town) to

                qualify for  flood insurance.   This  often requires  development to be

                located on pilings or on fill material that has been piled to eleva-

                tions above eight feet.

    I           ~~~Policy Alternatives

     *               ~~~~Possible policy alternatives for growth management and development

                in areas with identified constraints include

                           1. Discourage major developments such as residential subdivi-

                sions and industry from locating in highest risk areas for flooding by

    I           ~~~denying new water and sewer connections.

                          2. Develop and adopt additional regulations in the flood

                damage prevention ordinance and the zoning ordinance to regulate or

    *           ~~~prohibit all development in areas with physical constraints.

                          3. Permit development in areas with physical constraints,

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

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~60

               CAMA, flood insurance, subdivision regulations and Corps of Engineers

               404 permitting system.

                         4.  Encourage   public  education  for  landowners  to  learn

               about soil conditions and flood risks in the planning area.

    I           ~~~Policy Choices and Implementatiop Stratecjies

                    Belhaven adopts the following policies regarding development

                in areas with constraints:

                          1. Belhaven recognizes the inevitability of some development

               occurring in high hazard flood areas due to the prevalence of flood-

    I           ~~~prone land  in the area.  Therefore, the Town will continue to partici-

               pate in the Federal Flood Insurance Program and promote enforcement

                through the Town Building Inspection Program. All proposed development

    *           ~~~must abide  by  the  regulations  set  forth  in  the  Flood Prevention

               Ordinance.

      I                   ~~~~~2.  The Town recognizes its inability to change the condition

               of the soils to accommodate 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  is currently impossible

               because of the limitations of the sewage treatment  plant.   The waste-

               water treatment facility is currently in the first phase of a 201

               Facilities Plan to upgrade the system. It is expected that within two

               years, additional sewer lines can be laid and several more customers

               can be accommodated.

                    For the present, the Town has decided to continue to support

               the decisions of the County Health Department on septic tank placement.

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~61

                Belhaven will continue to support the County Building Regulations which

                regulate where construction can occur based an soil characteristics.

                          3.   The Town will work with potential developers in deciding

                the optimal sites for construction. Belhaven will utilize the Beaufort

    I           ~~~County Soil  Survey in  deciding the  best sites for development in the

                Town. The zoning ordinance will also regulate the location of all land

                uses within the one mile planning area.

                AEC DEVELOPMENT

                     Belhaven           rcgiethtthe  primary  concern  of  the Coastal

    I           ~~~Resources Commission  is  to  protect  our  coastal  resources, especi-

                ally the Areas of Environmental Concern. The Town shares this concern

                for the protection and sound management of these environmentally

                sensitive lands  and waters.   The  AECs in  the Belhaven planning area

    I           ~~~were described in the  Constraints to  Development section  and include

                the estuary, the estuarine shoreline, public trust waters and coastal

                wetlands.

     *               ~~~~The commercial fishing industry is an  important component  of the

                Belhaven  economy.    The  vitality  of  this industry depends upon the

    I           ~~~quality of the estuary.   In  order to  remain one  of the  top seafood

                producers in North Carolina, Belhaven must protect its primary re-

                source, the estuarine waters, which produce most of the Town's wealth.

                The Town recognizes that development may jeopardize this resource, but

                feels it cannot afford to restrict growth. In order to strengthen the

                economy and provide jobs for the unemployed, Belhaven would like to

                                                                       62

    encourage development, providing that it does not violate the State's

    objectives for the protection of the natural resources.

         Belhaven shares the state's policy and management 'objective

    for the estuarine system "to give the highest priority to the protec-

    tion and  coordinated management  of these areas so as to safeguard and

    perpetuate their biological, social, 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, Belhaven will

    permit those  land uses  which conform  to the general use standards of

    the North Carolina Administrative Code (15 NCAC ?H) for development

    within the  estuarine system.   The  Town has  no intention for further

    restricting the types of land uses permitted near the AECs.

    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.    Establish a 75-foot conservation buffer zone from water

    or marsh's edge where no development shall be permitted. Classify this

    area as "Conservation" according to Land Classification system.

             4.   Create disincentives for development in AECs.

                                                                        63

    Policy Choices

              1.    The Town of Belhaven has decided to continue to utilize

    the current system along with Federal and State permit and review

    processes, i.e. CAMA and Dredge and Fill.

             2.    Belhaven will continue to conform with state guidelines

    for allowable uses in AECs and will list these as appropriate uses in

    the zoning ordinance.

              3.    The  Town will  allow development  in the AECs provided

    that the development does not violate natural barriers for erosion,

    significantly interfere with the public's use of navigable waters, or

    have a substantial chance of causing pollution to the AEC as determined

    by the NRCD Division of Environmental Management.

    Implementation Stratenies

              1.    Current  State and  Federal permit and review processes

    will be employed to determine viable development types in AECs.

              2.   The land classification system will restrict development

    within each class.

              3.      Development  will  be controlled by the Town's zoning

    ordinance.

    OTHER FRAGILE AREAS AND AECS

         In addition to the AECs, other fragile areas in Belhaven warrant

    special considerations. These include the undesignated primary nursery

    areas; the archaeological sites  and historic  structures identified by

    the North Carolina Department of Cultural Resources, Division of

    Archives and History, and historic structures on the National Reoister

    of Historic Places.

                                                                        64

         The nursery areas in the Pungo River and its tributaries are

    critical for the full development of several species of fish.   Pantego

    Creek, Battalina Creek and Tooley's Creek function as nursery areas.

    Protection of these nursery areas is important for supporting the

    Belhaven economy, but the Town considers nursery area protection within

    the planning area to be of lower   priority than  economic development.

         The site of Aquascogoc, a prehistoric Indian village identified on

    a 1585 map, may  be located  in the  Belhaven planning  area.   The map

    places it  near the  head of  the Pungo  River estuary.   This location

    could be  present-day  Scranton,  in  Hyde  County,  or  Belhaven.   In

    addition, eight charted wrecks in the planning area may be archaeolog-

    ically significant, but no survey has yet been conducted. The Belhaven

    Town Hall  has been  listed on the National Register of Historic Places

    for its unique architectural style.    The  NC  Department  of Cultural

    Resources  makes   the  following  recommendations  for  management  of

    historic and prehistoric sites:

               "Effective treatment of known or discovered archaeo-

               logical 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".

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~65

                    The Town recognizes the historical and scientific importance

               of archaeological sites and is committed to preserving the valuable

                information they may contain. BEilhaven understands that its historical

                integrity is a part of  its  heritage.    Efforts  should  be  taken to

    I          ~~~preserve the structures which represent the Town's history.

               Policy A~lternatives

                          As with the AECs, these fragile areas are of such importance

                that no reasonable alternatives exist but to offer protection. Varying

    I          ~~~degrees of protection are reflected by these policy alternatives:

      *                  ~~~ ~~1.    Prohibit  development over archaeological sites  listed

               by NC Department of Cultural Resources.

                          2. A~cknowledge  that  nursery  areas  are  critical  to the

                local economy and work to limit runoff into them.

      I                  ~~~      ~~3.  Develop  a  program of "donating" historic properties

    *          ~~~to the Town and work to set up an historic district.

                          4.   Discourage development in all fragile areas.

    *          ~~~Policy Choices

                          1.   If an  archaeological  site  is  identified,  a thorough

                investigation must be conducted by N.C. Department of Cultural Re-

               sources before any building permit is granted.

      I                  ~~~~~2.   Encourage preservation of historic sites.

                          3.   Utilizing  the Division  of Coastal  Management, protect

               all  nursery  areas  to  the  extent  that  it  does not interfere with

    *          ~~~acceptable  methods  of  development  outlined  under  the  Town's land

               classification and zoning regulations.

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~66

                         4.   Review   existing   subdivision  regulations  to  ensure

               regulations offer sufficient protection to historic and archaeological

    *          ~~~resources.

               Implementation Stratecijes

      1                  ~~~ ~~1.    Work  with building permits officer to require thorough

               investigation of site before permit is granted.

                         2.    Support  of  the  Historic  Preservation  Committee and

               Downtown Redevelopment Commission if established.

    I          ~~~HURRICANE AND FLOOD EVACUAT ION NEEDS

                    The policy statements regarding Hurricane and Flood Evacua-

               tion Needs are addressed in the Storm Hazard Mitination and Post-Dis-

               aster Reconstruction section of this plan.

    I          ~~~PROTECTION OF POTABLE WATER

                    The availability of potable water is a critical concern in

               the Belhaven region because of the large drawdown resulting from nearby

               phosphate mining  operations.   Beaufort County  is included in a state

               groundwater management region called the Capacity Use Area. Recently,

    *          ~~~there has been discussion among legislators and community leaders about

               the possibility of constructing a pipeline to transport mined water

               from the Texasgulf site to the Virginia Beach area. Large groundwater

               withdrawals  in  Southern  Virginia  are  also   affecting  groundwater

               supplies  in  Northeastern  N.C.    These  factors  may one day jeopar-

               dize the supply for the  Belhaven  area.    In  this  issue,  there are

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~67

               no alternatives other than protection of groundwater for the future.

               The Town recognizes the importance of the limited regional supply of

               groundwater and the need for its protection.

      I        Policy Choice   Support state efforts to manage groundwater withdrawals

               in the Capacity Use Area.

                         2.    Encourage  Mayor  and  Town  Manager  to  keep informed

               about the availability and quality of water from the Yorktown forma-

    I          ~~~tion.

                         3.    Discourage  development of  a pipeline  or other system

               which exports water from the Belhaven area thereby endangering the

               limited available supply for all of Beaufort County.

               Imnlementation Stratecjies

      I                   ~~~~~1.   Continue to support Division of Environmental Management

    I ~~~Groundwater Section efforts to protect water in Capacity Use A~rea.

               USE OF SEPTIC TA~NKS

                    Soils are largely unsatisfactory for the safe placement of

    I          ~~~septic tanks in the planning area.   Most  soils are  too wet.   Unless

               care is exercised, this could present problems for the health and

               safety of area residents. Unsatisfactory performance of soils around

               septic tanks could contaminate groundwater wells. The Town recognizes

               that it has no power over the soils: they cannot be altered in any way

    I          ~~~to  improve  their  efficiency.    Also,  all  septic tank requests are

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~~~68

               reviewed by the County  Health Department,  not the  Town.   Because of

               these restrictions,  little can  be done  about policy  for septic tank

    I          ~~~placement.  The optimal solution is to eliminate the need  for individ-

               ual treatment systems by giving all area residents access to the

               municipal wastewater treatment plant. This must be a long-range plan

               because of the current limitations on laying sewage pipes imposed

               by  the  Division  of  Environmental  Management.    Within  two years,

               the Town expects to have the potential to accommodate a signifi-

               cantly larger number of customers.

    I          ~~~Policy Choices

      *                  ~~~~~1.   Work on a  long-range  plan  to  extend  sewer  lines to

               all developed areas within the one-mile jurisdictional limit.

                         2.    Where use of septic tanks is unavoidable, town supports

               implementation of techniques to improve the efficiency of septic tanks,

    I          ~~~such as  mound and  waterless systems  or other innovative technologies

    *          ~~~which gain approval of state and county environmental and public health

               authorities.

                         3.   A~s  a  minimum, any septic tank installation applica-

               tion must meet State and County regulations.

      I                  ~~~     ~~4.  Encourage  that  everyone  in  "developed"  zones hook

               up to town's wastewater treatment facility, providing that it is

               capable of handling the additional.

      *                  ~~~~~5.   Improve the capacity and efficiency  of the  Town sewage

               treatment plant.

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~~69

                Implementation Stratenies

                          1.   Enforcement will remain the responsibility of the County

               Health Department, which grants permits for septic tanks, and the

               Building Inspector.

      I                  ~~~ ~~2.    Continue to work with Division of Environmental Manage-

               ment to improve wastewater treatment facility.

                         3.   Apply for any  new  sources  of  funding  for wastewater

               treatment system improvement which may become available.

    I          ~~~STORM WATER RUNOFF

                    Non-point source poll ution is considered a major problem for

               the  Town  of  Belhaven.    *Non-point  pollution  refers  to pollutants

               that are washed into surface waters during a rainstorm. The amount of

               fertilizers, pesticides, organic wastes, metals, oil contaminants and

                litter which eventually enters the river system is increased signifi-

               cantly by a heavy  rain.   Agricultural runoff  typically contributes a

               significant portion to the nutrient load of the river, thereby creating

               conditions most li kely to result in algae blooms, low dissolved oxygen,

               and associated fish kills. Storm water runoff contributes to the many

               water quality problems discussed by commercial fishermen and recrea-

               tional  boaters  in  the  area.    Several days after a heavy rainfall,

    I          ~~~a fish kill frequently occurs.   Blame  for  the  kill  can  be largely

               placed on the bottom water anoxia resulting from storm water runoff

               which enters the  creeks  and  rivers  after  a  rain.    Treatment for

    *          ~~~non-point  pollution  can  cost  millions  of  dollars or be relatively

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~70

                inexpensive. An effective, but costly method of mitigation is to route

               storm water runoff through the wastewater treatment facility. This

    I          ~~~option often overtaxes the system during a serious rainfall and reduces

                its efficiency.      Less expensive  measures can be taken.  The marshes

                and other wetlands located along the river offer a water filtering

    3           ~~~system  that  works  naturally  to  sift  out or uptake many pollutants

               before they can enter  the creek  system.   In addition,  a good street

    *          ~~~cleaning system  can significantly cut down on the amount of pollutants

               entering the river.

     I               ~~~~Because of the importance of the fishing industry in Belhaven, the

    *           ~~~Town has  no real policy options except to work to mitigate storm water

                runoff. Because of the limited amount of funds available for this

    I         ~ ~~issue, the  Town has decided to work to solve this problem by utilizing

                the natural system for passive control of non-point pollution.

    I          ~~~Policy Choices

      *                   ~~~ ~~1.    Encourage  the use  of permeable  surface materials and

                development and maintenance of riparian vegetation throughout the

                planning area.

                          2.   Development  adjacent to  A~EC must  be designed  so that

    I          ~~~runoff will not violate water quality standards.

                          3.    Implement street cleaning system to improve the appear-

                ance of Town and to try to limit the amount of pollutants which can

    *          ~~~enter surface waters.

                Imolementation Strateaies

      3                   ~~~~~1.   Continue to employ efforts of CAMA permitting system and

                Corps of Engineers 404 permitting in determining development types

    I          ~~~which do not violate water quality.

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~~71

                          2.      Work  with  property  owners to encourage utilization

               of permeable paving materials for  parking  lots  and  other facilities

               which require large amounts of paving.   I

                          3.      Development  in  Conservation  zone  will be reviewed

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

      3                  ~~~    ~~4.  Regulate  land  uses  within  estuarine  shoreline AEC

               and  "Conservation"   land  classification  (for  description  of  land

               uses, see definition of "Conservation" in Land Classification System

               section of this plan).

               MARINA AND FLOATING HOME DEVELOPMENT

                     Marinas are an important convenience for boaters. They often

               generate revenue through slip rental, repairs and gasoline sales. But

               marinas are known to degrade the water in which they are located.

               Belhaven currently has several commercial marina facilities on Pantego

               Creek, plus a publicly-owned boat ramp. Floating homes are currently

    I          ~~~not a problem for the planning area.

    3          ~~~Policy Alternatives

                          1.     Encourage  the  development  of  marinas  and floating

    3          ~~~homes.

                          2.      Discourage  the  development  of marinas and location

    I          ~~~of floating homes in  light  of  their  contribution  to  water quality

    *          ~~~degradation.

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~~72

               Policy Choices

                          1.    Allow  marinas and  floating homes, but encourage their

    3          ~~location,  design  and  size  to ~.prevent  violation  of  water quality

               standards and the integrity of coastal wetlands as determined by

               Division of Environmental Management officials.

    3          ~~~Imolementation  Stratepies

                          1.   Continue working with CAMA permitting  system in regula-

    *          ~~~ting siting of marinas.

                          2.    The Planning Board will examine each marina development

    I          ~~~request on a case-by-case basis.

                          3.   Work toward a revision of the zoning  ordinance reflect-

                ing this policy statement.

                INDUSTRIAL IMPACTS AROUND FRAGILE AREAS

     I              ~~~~The  policies  above  address  development  of  all  types  in and

               around fragile areas. Because of the Town's location on the Pungo

               River and its tributaries and its low elevation, nearly all locations

                zoned for industry might negatively impact  the environment.   There is

               currently a very small amount of land in town available for industrial

    I          ~~development.  Most  of  this  land  is  located  along  the waterfront,

    *          ~~~thereby contributing  to the  possibility of destruction to the fragile

               areas.

     3              ~~~~The Town recognizes the importance  of  its  natural  and cultural

               resources, but the Town has an immediate need for economic growth.

               Belhaven would like to encourage all types of industry in the area and

                     I                                                                ~~~~~~~~~~~~~~~~~~~~~~~~73

               does not want to have policies in place which may discourage industry

               in any  way.   The Town  encourages all  types of  industry to consider

    I          ~~~locating in Belhaven and each request will be reviewed on an individual

               basis by the Planning Board.

               Policy Choices

                         1. Industrial growth will be encouraged in lands currently

               zoned for  industry.   The Town  will encourage water-dependent uses to

               locate at the waterfront, at the same time encouraging uses not

               water-oriented to locate in industrial zones away from the waterfront

               area. If no alternative location is available, development may be

               permitted in fragile areas, pending case-by-case approval by the

               Zoning Board of Adjustments.

               Implementation Strateciies

                          1. Continued support of CAMA and 404 permitting systems,

               Building Inspector and Town Building Requirements.

      *                  ~~~ ~~2.    Town  will  consider expanding/reclassifying industrial

               areas.

      *                  ~~~~~3.  The Town will  consider  permitting  the  use  of package

               treatment plants on a case-by-case after consultation with county

    I          ~~~health officials and state environmental officials.

      *                  ~~~~~4.   Revise  the  zoning  ordinance  so  that  Planning Board

               review and comment is required before special permits for industrial

    *          ~~~uses are issued.

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~74

        *                         ~~~~~~~RESOURCE PRODUCTION AND MANAGEMENT

                     Appropriate management of productive resources is very important

                to any  locality.   In most  cases, the productive resources are intri-

               cately tied into the economic fabric  of the  area.   It is, therefore,

    I          ~~~wise to manage these resources to the best of their productivity and to

               ensure their existence for future generations.         The major productive

               resources in Belhaven are related to agriculture, mining and commercial

               and recreational  fisheries.   Commercial forestry,  while important in

                the  surrounding  region)  is  not  an  important  industry  within the

    I           ~~~Belhaven planning area, as no commercially-owned  forest areas exist in

               the  planning  area.    No  policy  statements  regarding forestry were

               needed.

               PRODUCTIVE AGRICULTURAL LAND

     I              ~~~~~griculture,  as  discussed  in  the  Existincj  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

    3          ~~~of farm  commodities, farm  supplies and equipment.  A large portion of

               the planning area is currently or has been *under cultivation. The Sail

    3          ~~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  productivity (Figure  9).   These soils occupy a very

    3          ~~~small pocket of land in the planning area.

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

               for future use by restricting any development from occurring on

               them. Belhaven realizes how important agriculture is to the economy,

                     I                                                                ~~~~~~~~~~~~~~~~~~~~~~~75

               but feels that any type of development should take precedence over this

               small amount of farmland. Soils which are best suited to farming are

               typically well-drained and compatible with septic tank usage. If any

               development is proposed for these tracts of prime agricultural land,

    I          ~~~the  Town  does  not  want  to  restrict development in any way.  Until

               development proposals are presented, however, the Town would like to

               encourage the owner of these tracts to implement the Best Management

               Practices for their conservation.

               Policy Alternatives

      1                  ~~~~~~1.   Town  wishes  to  protect    agricultural  lands identi-

    I          ~~~fied as  "prime"   by the  SCS and Division of Soil and Water Conserva-

               t ion.

                          2.   Prohibit any land  use other  than agriculture, forestry

               or conservation on prime agricultural soils.

      I                  ~~~     ~~3.  Promote  conservation  of  these lands by encouraging

               owners of these tracts to implement Best Management Practices and to

               participate in the Agricultural Cost Share Program.

                          4.    Classify  lands as  Conservation-A, meaning that  these

                are agricultural areas which should be precluded from development.

      *                  ~~~~~5.   Do  not  impose  any  additional  land  use  controls or

                restrictions on agricultural practices, so that needed land clearance

                and drainage activities can continue.

                Policy Choices

                          1.     Town  will  not  take  extra  precautions  to preserve

    3          ~~~these lands.

                     1                                                                 ~~~~~~~~~~~~~~~~~~~~~~~~76

                              2.  Encourage  owners  of  these  tracts  and other areas

                under cultivation to implement Best Management Practices with technical

    3          ~~~assistance  from  the  Soil  Conservation Service and encourage them to

                participate in the Agricultural Cost Share Program.

                Implementation Strateciies

      3                  ~~~~~1.   Continue to  work  with  the  Agricultural Stabilization

                and Conservation Service, Soil Conservation Service, and Beaufort

    3          ~~~County Soil and  Water  Conservation  Distr ict  in  getting  farmers to

                adopt BMPs. Financial assistance is available through the Agricultural

    I          ~~~Cost Share Program.  Legislative  action  by  the  General  Assembly in

                the Summer 19B6 session made projects in all coastal counties eligible

               for funding. Under the program,,~- 75% of the average cost of projects

               designed to reduce the input of agricultural nonpoint sources can be

               funded. In-kind support from the farmer can be used to provide the

    1          ~~~25% remainder.   Cost-shared  practices include  cropland conversion to

    3          ~~~grass, diversions, tree planting,  and water  and grade  control struc-

                tures.   Cost-share incentive  payments are available for land applica-

    3          ~~~tion of animal wastes,  conservation tillage,  sod-based rotations, and

               strip cropping.

    *          ~~~EXISTING AND POTENTIAL MINERAL PRODUCTION AREAS

                     Open-pit mining has been an economic mainstay of Beaufort County

               since the Texasgulf mining operations came to the County in 1965. The

               environmental and economic effects of the phosphate mining have been

    3          ~~~witnessed by Belhaven area residents.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~77

                    Peat mining has also become an issue within recent years, but

               there are currently no known' "prime" sites for peat mining in the

    3          ~~~Belhaven area.  All peat soils in Belhaven are low in energy  value and

               would be uneconomical to mine at this time. There are, however,

    I          ~~~significant mineable peat deposits in Hyde County where proposed mining

               operations would discharge to the Pungo River.

                     The Town feels very uncertain about the impact of peat mining

               within its jurisdiction.   There is  little scientific  knowledge about

                the ecological effects of peat mining and until answers are found to

    I          ~~~the many questions brought up, the  Town does  not want  to permit such

               mining without very seriously considering its effects. Until informa-

                tion is available about the effects of peat mining, the Town does not

    *          ~~~want to allow mining within the planning area.

                Policy Choices

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

    3          ~~~the one-mile jurisdictional  limit  of  Town.    Any  mining activities

                proposed must apply for a special use permit which will be granted on a

    3          ~~~case-by-case basis.

                          2.    Discourage  extraction  of  peat  within  the  one-mile

    *          ~~~jurisdictional limit.

                          3. Town will not be responsible for provision of services to

                any proposed mining activities which take place within its one mile

    3          ~~~limit.

                Iminlementation Strateciies

       *                  ~~~~~1.   Continued review process of applications for special use

                permits to Planning Board.

                     1                                                                ~~~~~~~~~~~~~~~~~~~~~~~~~78

               COMMERCIAL AND RECREATIONAL FISHERIES

                    The commercial fishing industry is vital to the local economy.

               Dozens of independent full-time commercial fishermen live and work in

               the Belhaven area, and several hundred persons are employed -in the

               several crab processing plants. Tooley's Creek and Pantego Creek also

               function as nursery areas for several species. Concern has been raised

               by commercial fishermen and Division of Marine Fisheries technicians

               about the effect of runoff on the fisheries industries. Freshwater

               runoff from  drainage ditches  and non-point  pollution has been detri-

    I          ~~~mental to the fishing  waters  by  altering  the  salinity  content and

               adding  pollutants  to  the  estuarine  system.   Concern has also been

               raised over incidences of fecal coliform, largely from septic tank

               seepage, being identified in shellfish beds in other parts of the

               state.   In order  to support  the commercial  and recreational fishing

    I          ~~~industries, the  Town needs  to implement  techniques to maintain water

               quality.

                    The Town recognizes the State's right to oversee the public

               waters and tributaries under public jurisdiction. To remain consistent

               with the aforementioned Resource Protection policies, the Town has

    *          ~~~elected to  take all  measures possible to protect the fisheries to the

    I          ~~~extent that it does not interfere  with acceptable  methods of develop-

               ment as outlined under the Town's land classification system and zoning

               regulations.

                     *                                                                ~~~~~~~~~~~~~~~~~~~~~~~79

               Policy Choices

                          1.     Town  will  protect  the  commercial  and recreational

               fisheries  areas  within  the  Town's  jurisdiction  provided  that the

               protection measures do not interfere with the development adjacent to

    I          ~~~the public waters.

                Implementation Strateaies

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

               Town's  subdivision  ordinance  will   provide  sufficient  enforcement

               for this policy.

      1                  ~~~     ~~2.  The  County  Health  Department,  largely responsible

               for the safe placement of septic tanks, 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 the  mean high water

    I          ~~~level of estuarine waters as Conservation.

               OFF-ROAD VEHICLES

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

                typically conjures ideas of four-wheel drive type vehicles driving up

                and down the sandy beaches of the ocean front. In Belhaven, there is

                no problem with these vehicles  operating on  the beaches.   Since this

    I          ~~~was not applicable to the planning area, no policy was formed.  If this

                does become an issue in future years, the Town will encourage the

                development of an ordinance to deal with the problem.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~80

    3           ~~~IMPA~CTS OF DEVELOPMENT TYPES ON RESOURCES

                     Belhaven, 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,

    I           ~~~not experiencing the  same  levels  of  development  pressure  as other

    3           ~~~Towns.

                     The Town  views itself  as   being in  a position   to accommodate

    3           ~~~growth and development.  Consistent to the aforementioned policies, the

                Town is pro-growth as long as the development is not environmentally

    I           ~~~degrading.  The limitations  imposed  by  the  Town's  policies  on the

    3           ~~~protection of  sensitive natural  and cultural resources must be met to

                accommodate growth.

    3           ~~~Policy Choice

                          1.   The Town is  pro-development  as  long  as  the develop-

    I           ~~~ment  is  not  environmentally  degrading,  meets  the  approval of the

    3           ~~~federal and state authorities, and  is  consistent  with  the aforemen-

                tioned policies.

                                 ECONOMIC AND COMMUNITY DEVELOPMENT

                    The analysis of the present conditions of the population and

               economy of the Belhaven planning area revealed no major changes

               in the  economic atmosphere  since the  last update.   Belhaven is very

    I           ~~~concerned about future  growth,  especially  industrial  and commercial

               development.    The Town's  economy has undergone slow growth, basically

               due to the increasing importance of the commercial fishing industry in

               the  region.    Tourism  is  also  being favorably regarded as a viable

               economic option. The potential exists for an explosion of growth in

    I           ~~~Belhaven.  Policies should 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 Belhaven

               has set for where it would like to be in the next ten years.   Particu-

    I           ~~~lar issues,  related to  growth and  the town's  commitment to economic

               development, are discussed below.

               LOCATION AND TYPES OF INDUSTRIES DESIRED

                    The Belhaven planning area, as discussed in the preceding section,

    I           ~~~is blessed with several natural and cultural resources.  It is situated

               at the confluence of Pantego Creek and the Pungo River, and has some of

               the county's most productive agricultural sails, plus several signifi-

               cant cultural assets.

                    Many of the regional economic activities take advantage of

               these resources. A large phosphate mining industry, located across the

               river from Belhaven, employs about 1,150 persons, many of whom are

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~82

               Belhaven residents.   Within  the Belhaven planning area, three seafood

               proc~essing operations employ a large percentage of the labor force

               through its  various stages  of operation.   In  addition, farming is a

               major economic activity which employs dozens of persons through farm

    I           ~~~labor or through the sale of farming equipment and supplies.

                    Belhaven has an intense need for increased job opportunities

               for many of  its  unemployed  and  underemployed  citizens.   Industri-

               al development could provide these opportunities as well as expand the

               County's tax base.

     I              ~~~~The Town of Belhaven would like to recruit  all types  of industry

    *          ~~~to  the  area  and  particularly  encourages  the continued development

               and/or expansion of  resource-intensive  industries.    Timber products

               manufacturers, marine-related and seafood processing industries would

               be considered. A~gricultural products processing firms would also be

    I          ~~~welcome to sites in the extraterritorial area.

                    Low-pollution, light manufacturing and/or assembly industries

               would also be  desireable.    Electronics,  textiles,  heavy equipment,

               marketing firms, and furniture manufactures would not significantly

               contribute to the environmental problems, but employ a large number of

    *          ~~~persons.

                    To provide better services for its residents, the Town would

    U          ~~~like to recruit new types  of  businesses,  as  well.    Retail, enter-

               tainment, and  service-oriented businesses  are greatly  needed.  Addi-

               tional entertainment facilities, such as theatres, skating rinks, and

               bowling alleys would receive great support from the Town.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~83

                     All industries considering locating in the Belhaven planning

                area must be consistent with the Town's aforementioned resource

                policy  statements.    The  proposed  location  of  each  industry will

               be examined an a case-by-case basis.

     U               ~~~~Several sites are available in  the  planning  area  for industry.

                The Town would like to see industry locate along the waterfront in the

               existing industrial area and along Highway 264 By-Pass. Both areas are

               well connected for transportation purposes and are currently served by

               water and sewer.   The waterfront  would be  best suited  to industries

    I           ~~~which  cannot  function  without  water  access  (i.e. marinas, seafood

               processors), but all industrial types will be considered for location

                at that site. Property along Highway 264 is very well suited to other

                industrial types listed above. Other sites considered for industrial

                location will be considered on a case-by-case basis by the Planning

    I           ~~~Board.

    I          ~~~Policy Choices

                          1.      Encourage  industry  types  which  take  advantage of

    *           ~~~natural resource base and existing labor supply.

                          2.      Encourage  low-pollution,  light  manufacturing types

    I          ~~~which are compatible with  resource protection,  production and manage-

    *          ~~~ment goals and policies.

                          3.    Encourage  low waste load industries to prevent contri-

               buting to wastewater treatment problems.

                         4.   Encourage seafood-related industries  providing they are

    I          ~~~consistent with resource protecti on goals of the Town.

                     *                                                                  ~~~~~~~~~~~~~~~~~~~~~~84

                          5.    Encourage  industry which  employs low-skilled workers,

               particularly women. Assembly-type manufacturing and a garment factory

               would be well suited for this purpose.

                          6.      Industrial  sites  will be limited to areas zoned for

    I          ~~~manufacturing along Highway 264 and the waterfront of Town.

                Implementation Schedule

                          1.    Town  will establish  more active  contact with state's

                industrial development representative for the region.

                          2.      Zoning  ordinance,  CAMA  and  404 permitting systems

    I          ~~~will regulate the development of industry within specific areas.

               COMMITMENT TO PROVIDING SERVICES

                    The Town rea~lizes the great importance associated with bringing

               the wastewater treatment facility into compliance with state discharge

    I          ~~~requirements.   Unless this  goal is  attained, very  little growth can

               occur because of the limitations imposed on laying additional piping to

               the system.  This is in  the  process  of  being  corrected.    The 201

               Facilities Plan, recently funded, is expected to bring the sewage

               treatment system into compliance by 1988. All new development will be

               able to tie into the municipal treatment facility.

                    Currently, nearly 93 percent of the area's residents are hooked up

    I          ~~~to the water system.  The  equivalent of  925 persons  can be  added to

    3           ~~~this system.

                    Belhaven acknowledges that the its soils are not conducive to

    *          ~~septic tank usage and  the  optimal  solution  to  this  problem  is to

               provide wastewater treatment service to all residents in the planning

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~85

               area. The Town has discussed a long-range plan to extend utilities,

               such as water and sewer, to all development "pockets" within the

               planning area.

                    Belhaven is committed to providing basic services to serve

    I          ~~~increased development  in the area.  The first priority is to "develop-

               ed" areas shown on  the land  classification map.   Industrial requests

               will be examined on an individual basis by the Town Board.

               Policy Choices

                         1.      First  priority  in  delivery of services is to areas

    I          ~~~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 by the Town Board.

      I                  ~~~~~4.   Service delivery will be as per the Utilities Ordinance.

    H          ~~~DESIRED URBAN GROWTH PATTERNS

                    Population projections suggest that the slow and steady growth

               rates that Belhaven has experience in the past will continue over the

               next ten years. The Town's population is expected to increase by 180

               persons within the next ten years. The water and wastewater treatment

    I          ~~~systems will be able to accommodate this growth if the sewage treatment

    *          ~~~facility is upgraded.

                    Presently, very little land is available to accommodate the

               projected growth. A~n annexation feasibility study is recommended to

               examine the possibility of the Town's acquiring additional land for

                     *                                                                ~~~~~~~~~~~~~~~~~~~~~~86

               growth. The Town would like to encourage commercial and residential

               growth in the old downtown area.

               Policy A~lternatives

      I        lities of 1.       Limit  growth  to 3,500 persons, based on the capabi-

                  litis ofthe water and wastewater treatment facilities.

                         2.     Consider  developing  a  zoning  ordinance exclusively

               for mobile homes.

                         3.    Urban  growth patterns  will remain consistent with the

               zoning ordinance.

    I          ~~~Policy Choices

      I                  ~~~~~~1.   Urban patterns will be limited by the zoning ordinance.

                Implementation Schedule

                          1.   Urban growth  patterns  and  densities  will  be limited

               by the subdivision ordinance,j -the County Health Department and the

    I          ~~~zoning ordinance.

    H          ~~~REDEVELOPMENT OF DEVELOPED A~REAS

                    The Town of Belhaven's policy on redevelopment of developed

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

    *          ~~~has been awarded two Small Cities Community Development Block Grants to

                improve substandard  housing within  its jurisdiction.   Also, the Town

               encourages historic preservation. The steeple on the historic Town

               Hall  is  undergoing  rehabilitation.    The  Town  wishes  to continue

               programs such as these over the next five years.

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~87

                     Downtown revitalization has been encouraged for the past several

                years, but a limited amount of progress has been made toward this goal.

                The Town still feels committed to this effort, however.

                     A~ccording to the SLOSH model, all structures in the planning

    I           ~~~area would  be wiped out in the event of a severe storm.  In this case,

                all structures would be rebuilt according to the zoning ordinance.

                A~ccording to the ordinance, "all non-conforming uses damaged or

    5           ~~~destroyed by fire, wind, flood, or  other  causes  may  be  repaired or

                rebuilt and used as before if repairs are initiated within twelve (12)

    I           ~~~months and completed within twenty-four (24) months of such damage" (p.

    *           ~~~~16).

                Policy Choices

      3                   ~~~~~~1.   Continued support of downtown beautification efforts and

                Historic Preservation Committee. Town will work to help secure funds

    3           ~~~for historic redevelopment projects.

                          2.    In   the event of destruction by a storm, redevelopment

    5           ~~~will occur in accordance  with  the  zoning  ordinance.    If  money is

    5           ~~~available,  the   Town  will  consider  purchasing  appropriate  areas,

                particularly waterfront parcels, for open space.

                          3.   The Town supports the application of funds  for redevel-

                opment of substandard housing within the town limits.

    I           ~~~Implementation Schedule

      5                   ~~~     ~~1.  The  Town  will  coordinate  with private individuals

                and organizations to secure finariLial support for downtown beautifica-

    *           ~~~tion efforts.

                      *                                                                  ~~~~~~~~~~~~~~~~~~~~~~~~88

                          2.      Town  will  consider  the feasibility of applying for

                a  Small  Cities  Community  Development  Block  Grant  to rehabilitate

                substandard housing in town limits.

    I           ~~~COMMITMENT TO STATE AND  FEDERAL PROGRAMS

                     The Town of Belhaven is receptive to State and Federal Programs

                which provide improvements to the  Town.    Belhaven  will  continue to

    3           ~~~fully support  such programs  that provide  necessary resources to meet

                identified community needs that compliment the economic and community

    I           ~~~development goals  of the Town.  Of particular significance is the N.C.

    I           ~~~Department of Transportation Road and Bridge Improvements program.  The

                Town will support these programs and will honor financial assistance

    3           ~~~requests when financially able and  when  the  proposed  project  is in

                compliance with the Town's goals for economic development.

     I               ~~~~The  Erosion  Control  program,  carried  out  by  the Agricultur-

                al Stabilization and Conservation Service and the Soil Conserva-

                tion Service, is especially important to the farming community in the

    3           ~~~planning area.   The  Town  supports  the  efforts  of  these agencies,

                including the implementation of Best Management Practices to mitigate

    I         ~ ~~soil loss through  erosion.    Funding  is  now  available  through the

                state's Agricultural Cost Share Program for projects which will reduce

    U           ~~~agricultural runoff.  The Town will work with  District Soil  and Water

    3           ~~~Conservation  officials  to  encourage  farmers  to  apply  for the 75%

                funding of conservation projects. In addition, the Town has establish-

    *           ~~~ed a  policy to  encourage the  use of  a vegetative buffer between all

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~89

               development and surface water bodies to reduce the sediment load from

               entering the riverine system (See Resource Protection policy state-

               ments). The Town also supports the use of previous surface materials

               in construction within the planning area. Pervious surface materials

    I          ~~~provide a method of natural percolation of pollutants into the soils.

     *              ~~~~The military has  historically  been  an  important  asset  to the

               economy and quality of life in eastern North Carolina. Recently, there

               has been continued debate over the expansion of the Military Operating

               Airspace (MOA) over Beaufort County. Belhaven is strongly opposed to

    I           ~~~the expansion of the MOA because of the res trictions it would impose on

               the  local  air  traffic  community.    Noise levels were an additional

               concern in the opposition of the airspace expansion.   If  the military

    3          ~~~decides that  Belhaven is a good''lace for the location of a small camp

               or headquarters, the Town would like to restrict their activities

    I           ~~~to the less developed lands of the planning area.  Belhaven opposes any

    3          ~~~military activities from locating  in the  "developed" and  or "transi-

               tion" areas of the planning area.

               CHANNEL MAINTENANCE AND WATERFRONT IMPROVEMENTS

     I              ~~~~Proper  channel  maintenance  is  important  in  Belhaven  and the

                Intracoastal Waterway because of the great importance of recreational

               boating and the commercial fishing industry to the local economy.

               Special attention should be given to the amount of dredging that

               occurs, because excessive dredging can be just as damaging as none at

               all. Dredge lines often disrupt valuable fish habitat on the bottom of

                     1                                                                  ~~~~~~~~~~~~~~~~~~~~~~90

    3          ~~~rivers, thereby  robbing the  river of  some of  its economic value and

                important fish habitat.

     3               ~~~~The Town recently supported  the dredging  of Wynn's  Gut and will

                continue to support future channel maintenance projects, but will

    I          ~~~discourage excessive dredging because  of its  effect on  fish habitat.

    I           ~~~Financial  aid  for  channel  maintenance  will  be made available when

                possible. Efforts will be made to provide spoil and borrow sites

    *           ~~~within the planning area.

                     Several areas of Belhaven's waterfront are in need of maintenance.

    I           ~~~~ massive pile of saw dust, the remains of a  now-defunct lumber opera-

    3           ~~~tion, is  located near the Cargill plant on the Pungo Creek waterfront.

                In 1984, the pile ignited, starting an underground fire that burned for

    3           ~~~several weeks.   At  several locations along the waterfront, old wharfs

                have deteriorated to such an extent that only broken piers and pilings

    I           ~~~remain.   A~ large  warehouse was  once supported by some of the pilings

                until destroyed  by  fire.    Local  residents  suspect  a considerable

                amount of large underwater debris lies amid the ruined pilings. As

    3           ~~~well as making the  Town's valuable  waterfront unsightly,  these areas

                present serious navigational and environmental hazards to the commun-

    3           ~~~~ity.

                Policy Alternatives

      I                   ~~~~~1.   The Town  could  take  no  action,  leaving  channel and

    3           ~~~waterfront improvements  to the  discretion of  state and federal offi-

                cials.

      3                   ~~~~~2.   The Town could support  efforts to  improve navigational

                channels and initiate a program to improve its waterfront.,

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~91

    3          ~~~Policv Choices and Implementation Stratecies

                          1.   The Town will support navigational improvements proposed

    5          ~~~by other agencies and request improvements as necessary  from appropri-

               ate officials.

      I                  ~~~~~2.   The Town  will request assistance from federal and state

                agencies to rectify  navigational  and  environmental  problems  at the

               waterfront.

               ENERGY FACILITY SITING A~ND DEVELOPMENT

     ~~~~~iIn  recent  years,  the  dev elopment  of  prospective  peat mining

    5          ~~~operations  in  Hyde,  Tyrrell  and  Washington  Counties  has  brought

               on the possibility of locating energy generating facilities at sites

    3          ~~~located near  the source  of the  raw material.   The  Town of Belhaven

                would be a logical place for a peat-fired energy plant. The Belhaven

    I          ~~~zoning ordinance allows public utilities, such  as an energy-generating

    3          ~~~facility,  in  the  "industrial"  zone.  After careful examination, the

               Town feels that the development of large-scale energy generating

    3          ~~~facilities  should  be  discouraged  within the one mile jurisdictional

               area. Energy generating facilities will not be permitted to any

    I          ~~~site  within  the  planning  area.   In order to remain consistent, the

    *          ~~~zoning ordinance will be amended to support this  change in philosophy.

    3          ~~~TOURISM AiND BEACH/WATER A~CCESS

                    Belhaven has demonstrated its commitment to public access to

    3          ~~~public waters by  having  developed  the  Town  boat  ramp  and Commun-

                     *                                                                   ~~~~~~~~~~~~~~~~~~~~~~~~95

                                   HURRICANE AND STORM HAZARD MITIGATION

                  INTRODUCTION

     I                ~~~~~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., 1978). To

                  date, North Carolina has experienced 23 major hurricanes since 1890.

                  This averages to one major hurricane every four years. In addition to

    I            ~~~~hurricanes, tropical storms and "northeasters' present  serious threats

                  to  eastern  North  Carolina.    Recently a major hurricanes 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.    This  plan  should  delineate  areas  most likely to sustain

                  damage, methods to keep areas affected to a minimum, and guidelines for

    I             ~~~~reconstruction after the storm.  Beaufort County adopted a storm hazard

                  mitigation plan, Before The Storm in Beaufort County:   Avoidinci Harm's

                  Way, in  September 1984t.   Currently, Belhaven's Town Manager and Civil

    *             ~~~~Defense Coordinator are developing a storm  hazard mitigation  plan for

                  Belhaven. Belhaven is now under the authority of the County's plan and

    I             ~~~the Town's  plan, when  completed, will  be consistent  with the County

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~92

                ity Recreation  Center beach  area.   Presently, there are no available

               sites for additional public beach access points on Pantego Creek or the

    I         ~ ~~Pungo RiVer.   The Town should consider applying to NRCD for funding to

               conduct a Beach Access Study. Then, should appropriate sites be found

    I          ~~~to increase  access to  the coastal  area, the  Town should apply for a

               Beach Access Grant to assist in site acquisition.

                     The Town is also committed to increasing tourism in the area.

    *          ~~~Efforts  to  increase  tourism  have  involved work with the Chamber of

               Commerce, Downtown Merchants A~ssociation, the Historic Albemarle Tour,

    I          ~~~the Belhaven museum, the Belhaven library and the Resort Towns A~ssocia-

                tion. The Town supports the efforts of the state agencies who work

                with these projects.

                Policy Alternatives

                          1.      The  Town  could  establish no additional policies or

    I          ~~~courses of action for improvement 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, the museum,

                downtown revitalization efforts and other methods to increase tourism.

                Policy Choices

                          1.     The  Town  will  encourage  acquisi tion  of undevelop-

                able waterfront properties for public access sites.

                     I                                                                ~~~~~~~~~~~~~~~~~~~~~~~93

                          2.    Development  of a program for "donations" of waterfront

               property for public use.

                          3.    Continued  support for  historic preservation, Belhaven

               museum, the Historic Albemarle Tour, downtown revitalization efforts

    I          ~~~and other methods to increase tourism.

    H          ~~~TYPES,  DENSITIES AND LOCATION OF ANTICIPATED DEVELOPMENT

                     Overly dense development is not a problem in Belhaven, nor

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

    I          ~~~Within the past five years, the land use trends have  shown residential

               growth to occur in existing residential areas and along the waterfront,

               and commercial growth has expanded along Highway 264 Business and

               By-Pass.   Industry has  also located  along these  arteries.  Belhaven

               would like to see continued development in areas which are best able to

               accommodate growth and where support services, like sewer and water,

               are feasible and practical  to provide.   All  of the  growth in recent

    I          ~~~years has been inside the hazard areas identified in Figure 12.  Indus-

    *          ~~~trial growth will be targeted to  the  land  along  the  waterfront and

               along Highway 264 By-Pass.

               Policy Choices

                          1.      Continue  to  enforce  the subdivision ordinance with

    I          ~~~minimum lot size of 20,000 square  feet for  lots without  public water

    *          ~~~and sewer.

                         2.    Continue  with efforts  to upgrade the sewage treatment

    *          ~~~plant to accommodate additional customers.

          *                                                                  ~~~~~~~~~~~~~~~~~~~~~~94

              3.   Ensure  that  future  growth    is  consistent  with the

    above policies in Resource Protection, Resource Production and Manage-

    ment. A~lso, the growth must be consistent with the zoning ordinance

    and additional goals of the community.

                     I                                                                  ~~~~~~~~~~~~~~~~~~~~~~96

               plan.   The County plan is in fact, being used as a model for the Town.

               The Belhaven plan then is expected to differ only minimally from the

               County Plan.

                    CAMA  Land   Use  Plan  guidelines  require  that  procedures  for

               pre-storm mitigation, recovery, and immediate and long term reconstruc-

               tion be 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

    I          ~~~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 included in

    I          ~~~Before  the  Storm.  All  policies,  unless otherwise referenced, are

    *          ~~~county-wide policies which the  Town has  chosen to  include within its

               own storm hazard plan.

               HAZARDS MAP

     I              ~~~~The areas  most vulnerable  to the devastating effects of a hurri-

    *          ~~~cane or other major coastal storm  are identified  in Figure  12.  This

               map is the product of a computer model called SLOSH (Sea, 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

    I.         ~~~from hurricanes of a predicted severity within a particular area.   The

                                                   Figure 12
                                 AREAS INUNDATED BY CATEGORY I AND 2 HURRICANES

           I~~~~~~~~~~~~~~

    1                                                                      -

           Source:  U.S. Army Corps of Engineers S.L.0 S.H. model.          ~     SbegdVse

                                                                                      Surface Waters
                Tepreparation         o      thsmpwas financed      inpatTown Limits
                thrugha grant provided by the North Carolina
              Coastal  MngmnPrraothrough funds                                  FoddAe
                provdedby the         C       osa oeManagement Act of         EFoddAe
                      197,    a    amnde, wichisadministered by the
                 Offie ofOcean and Coastal Resource Management,
                NatinalOceanic and Atmospheric Administration.

                     *                                                                 ~~~~~~~~~~~~~~~~~~~~~~~98

               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 a real boundary 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 12).   The

               Category 3 storm, defined by winds up to 130 mph, would inundate points

               further landward than the Category I and 2 storms. The Category 4 and

               5 storms, the highest intensity storms possible, would push the water

               to areas still further landward. In this scenario, water levels would

               be highest in the areas of Category 4 and 5 storms.   At the same time,

               Category 4 and 5 flood zones have the least probability of inundation

               because storms of su-ch strength are not very common. Since the

               Category I and 2 storms are more common, the discussion will be limited

               to their impact on Belhaven.

                    In Belhaven, the entire planning area is situated in the Category

               I and 2 flood zone (Figure 12). Storm waters would inundate all areas

               within Town and the extraterritorial area. The exact monetary value of

               the property at risk in the Belhaven planning area is difficult to

               determine because of the amount of low density, widely dispersed

               development located outside the Town limits. Estimates have been made

               on the value of development within the Belhaven town limits, but no

    *          ~~assessment  is  readily  available  which  includes  the  structures in

               the  rural,  underdeveloped  portion  of  the  planning  area.  For the

               purposes of this plan, values of the property at risk will be limited

               to the structures within the'Town limits.

            I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.

                                                           Figure 13

                                          INVENTORY OF STRUCTURES IN THE I IAZARD AREA

                       Conventional    Dbl-wide      Sng-wide
                           Homes       Mbl Homes    Mbl Homes    Institution    Commercial    Ind'l    Utility    TOTAL

        �Total            643              77          241             16              71           0          2       1,050

       Median
        Value             42 K            10 K          4 K            45 K            20 K         40 K      40 K

      Total
    Estimated .
      Value            16.718 Mill.       770 K       964 K           720 K          1420 K           0 K     80K      31.68 SMill.

         Note: The total assessed value for tax purposes of the Town of Belhaven was $ 32,814,500 in January of 1986.

               Source:  Before the Storm in Beaufort County:  Avoiding Harm's Way, 1982.

                                                                                  100

                    Within the Town limits, development includes about 650 conven-

               tional homes, over 300 mobile homes and approximately 90 commercial and

               institutional establishments (Figure 13). The total estimated value of

               these structures is about $ 32,000,000.   This  figure approximates the

    I          ~~~total assessed value of the Town for tax purposes.

                    The loss of homes and commercial establishments is very important

               and costly, but more importantly, two of the Town's major utilities

               structures  are  located  within  this  hazard  zone.    The  municipal

               wastewater treatment facility merits special attention.   In  the event

    I          ~~~of  a  major  hurricane,  the  inundation  of  the wastewater treatment

               facility would be disastrous for the Town. Based on the likelihood of

               inundation of other sites, it is highly unlikely that a safer site is

               available within the planning area.

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

               areas which would be most seriously affected would be the AECs in

               the planning area.      These  include  the  estuarine  water, estuarine

    I          ~~~shoreline, coastal  wetlands and  public trust  waters.   Of these, the

               estuarine shoreline and coastal wetlands AECs will bear the greatest

               risk of destruction because they lie directly an the land-water

               interface and are  among  the  most  dynamic  features  of  the coastal

               landscape.    Shoreline  erosion'~'is  a  day-to-day  phenomenon that is

    I          ~~~accelerated greatly with the energy of a major storm.  Destruction that

    *          ~~~may take  years to  occur along a normal low-energy shoreline can occur

               in a matter of several hours during a strong storm. The shoreline area

               will be directly impacted by severe erosion and scouring, direct wave

                                                                      101

    action, high winds and complete inundation by the storm surge accom-

    panying  the  storm.    Development  adjacent  to  the  shoreline would

    obviously be at a great. risk.

    EFFECTS OF STORM COMPONENTS ON HAZARD ZONES

        Hurricanes are extremely powerful, destructive meteorological

    events which are often unpredictable. 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 it, flooding from excessive rains,

    and the  storm surge.   In  addition to  these 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

    these storm components on  the planning  ar ea and  delineates the sites

    which are most vulnerable to their forces.

    HIGH WINDS

         High winds are the greatest risk factor associated with hurri-

    canes. Hurricanes are, in fact, defined in severity by their wind

    speeds.. The entire planning area would be subject to the winds brought

    on by a hurricane  making  landfall  nearby.    A~gain,  the  areas most

    seriously impacted would be the shoreline areas and wetlands. Struc-

    tures adjacent to these features would most likely receive the worst

    damage.   Open field ditches or other sites that experience significant

    backwash would also be impacted by the flooding resulting from high

    winds.   Building restrictions concerning wind stress should be applied

                                                                                   102

               in areas closest to the shore and other areas with the potential for

               strong winds..

               FLOODING

                    Unlike high winds, flood waters may not impact all areas hit by a

    I          ~~~storm.  But, according to the SLOSH model map, all of Belhaven and its

    I          ~~~planning area would be subject to flooding from a mild hurricane.  This

               includes a total of 271 commercial, residential, institutional and

               community facilities structures, resulting in a net loss of $32,000,000

               million dollars in the event of complete destruction.

     I              ~~~~Flooding cannot only damage buildings, but salt water flooding can

    I          ~~~also cause serious damage to  cropland.    An  estimated  value  of the

               cropland in the planning area is unavailable, but short term damage

               would be financially devastating. All of the agricultural land located

               north of  Town would  be impacted  by flood  waters.  Construction of a

    I          ~~~dike to retain flood  waters has .been considered,  but it  was decided

               that little can be done to keep flood waters out. All of the Town and

               most of the planning  area are  located less  than five  feet above sea

               level.   In an  area as  low as Belhaven, a  dike would not be able to

               significantly help in the event of a major hurricane.

    I          ~~~WAVE ACTION

     *              ~~~~Damage from  wave  action  is  very  strongly  correlated  to wind

               speed  and  direction.    Most  damage  caused by  waves will be in the

    *           ~~~immediate zone of the water along  the shoreline  and coastal wetlands.

               Development adjacent to shoreline areas would be subject to battering

               by waves. Mluch of Belhaven's waterfront is bulkheaded and densely

                                                                      103

    developed.   This bulkheading  and the  nearby structures on the water-

    front would be at high risk from wave action. In Town, the structures

    at stake would include the Pungo District Hospital, three seafood

    processing plants, the public boat ramp, several commercial marinas,

    the Belhaven Community Center and all residential units located on the

    waterfront. Included in this risk area are'several of the Town's most

    valuable  structures,   including  many  of  its  industries.  In effect

    then, most of the Town's tax base would be subject to wave destruction.

        Most other  shoreline areas within the one-mile limit are marshes.

    A limited amount~ of development exists  in these  areas because  of the

    requirement for permits. Due to the fragile nature of wetland environ-

    ments, all development in marsh areas is subject to the Division of

    Coastal Management or U.S. Army torps *of Engineers permitting systems.

    The Battalina/Tooley's Creek areas would be highly subject to wave

    battering because of their orientation to northeast winds. The lack of

    development in these areas would preclude financial loss from occur-

    ring in the event of hurricane-induced wave action.

    EROSION

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

    erosion. The areas most likely to be impacted by erosion are the

    shoreline  areas  within  the  planning  jurisdiction.   Riggs, Bellis,

    O'Connor  (1978)  studied  shoreline  types  and   their  vulnerability

    to  erosion.    The  research  concluded  that  the low bank, marsh and

    high bank forms  of  shoreline  are  most    erodible  on  the Pamlico.

    In the Belhaven area, low banks and marshes are the most common

                                                                      104

    shoreline types. At one time, all shoreline types in Belhaven were

    marshes. At the  time of  its development, a large amount of land was

    reclaimed from marshes through  filling.    The  filling  procedure and

    subsequent bulkheading produced the low bank shoreline type widely

    found along the waterfront today.

         The developed portions of the planning area are considered to be

    the low bank shoreline type, and most marshes are located west of the

    Highway 99 bridge and on the peninsulas surrounding Battalina and

    Tooley's Creeks.   The  low bank  and marsh  shoreline types experience

    very high erosion rates.  Marshes<  lose an  estimate 3.1  feet per year

    and low  banks erode   at  a rate of 0.6 feet per annum (Riggs, et al.,

    1978). It has been noted by several townspeople that Tooley's Point is

    eroding at a rate of nearly 5 feet per year (Planning Board, 1986).

        Shoreline erosion could lead to structural damage to buildings,

    loss of tons of topsoil through wave undercutting,  and the destruction

    of bulkheads  and other structures located at the land/water interface.

    The structures located directly on the shoreline are most likely to be

    lost through erosion. The establishment of a required setback from the

    water's edge will mitigate most erosion caused by hurricane winds and

    waves.

    SUMMARY

         In summary, all four of the major damaging forces of a hurricane

    would negatively impact the Belhaven planning area in the event of a

    storm.   The entire  planning area  will be  subject to  high winds and

    flooding, as it is situated in the Category 1 and 2 flood zone.

                                                                                  105

                 Structures located along the shoreline are likely to receive the most

                 damage from the cumulative impacts of waves and subsequent erosion.

                 Damage from flood waters in the planning area would likely total

                 $32,000,000,  assuming  complete  destruction.    Most  of  the  Town's

    I            ~~~industries are  located in  the highest  risk zone along the shoreline.

                 The financial loss brought on by hurricane destruction would be

                 devastating. Unavoidably, the wastewater treatment plant is located in

                 a high risk zone. Relocation of this facility should be a considera-

                 tion for Town officials.

                                                                      106

                        POST-DISASTER RECONSTRUCT ION

    I NTRO DUCT ION

        A post-disaster reconstruction plan allows towns to deal with the

    aftermath of a storm in an organized and efficient manner. The plan

    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:   Avoidinci  Harm's Way (MlcElyea, Brower and Gods-

    chalk, 1982).  It usually    1)  outlines  procedures  and requirements

    before damages occur, 2) establishes procedures for putting storm

    mitigation measures into effect after the disaster, 3) analyzes

    information about the location and nature of hurricane damages,

    4) assesses the community's vulnerability and 5) guides reconstruction

    to minimize the vulnerability.

         In 1982, Beaufort County adopted The Beaufort County Disaster

    Relief and Assistance Plan, a post-disaster  recovery   and reconstruc-

    tion plan.   As  a municipality in Beaufort County, Belhaven is covered

    by this plan.   The disaster  relief plan,  in concert  with Before the

    Storm  in  Beaufort  County:    Avoidinci  Harm's Way, provides Beaufort

    County with the tools necessary to serve all its communities during the

    recovery phase of a hurricane. Copies of these plans are available at

    the Beaufort County Emergency Management office in Washington.

         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 reconstruc-

                                                                                  107

               tion efforts are carried out in an efficient manner that qualifies the

               community for the different types of assistance that are available.

    3          ~~~The requirements are generally delineated in the Disaster Relief Act of

               1974+ (P.L. 93-288) which authorizes a wide range of financial and

    I          ~~~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 Belhaven may take additional

    I          ~~~steps  to  complement  this  work.    The  following  section discusses

               guidelines set forth for reconstruction in the County plan.

    3          ~~~IMMEDIATE CLEAN-UP

                    The Disaster Relief and Assistance Plan includes a program

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

               other areas where public health and safety may be jeopardized.

    I          ~~~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

    I          ~~~office will pro vide names of volunteers to call upon for  assistance in

    3          ~~~the immediate clean-up efforts.

                    While clean-up efforts are taking place, a Damage Assessment

    3          ~~~Team will be sent out to  evaluate the  extent of  damage in  the area.

               Damage assessment is defined as a rapid means of determining a realis-

                                                                                    108

               tic 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

    U          ~~number of  structures  damaged,  2)  magnitude  of  damage  by  type of

               structure, 3) estimated total dollar loss, and 4) estimated total

    I          ~~~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 extent and type of damage, and a more detailed second phase

               assessment after  the initial  damage reports  are filed.   The initial

    I           ~~~damage assessment should include  an estimate  of the  extent of damage

                incurred by each structure and identify the cause of damage such as

               wind, flooding or  wave  action.    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

    3           ~~~should be  nearly complete.   The format for damage assessments will be

               conducted in accordance with A~nnex F of the Disaster Relief and

    U           t~~~ssistance  Program.    Under  certain  circumstances, interim develop-

    3           ~~~ment moratoria can be used to  give  a  local  government  the  time to

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

    3           ~~~ences.  Beaufort County can impose a development moratorium if  it gets

               disaster declaration from the appropriate federal authorities. This

    I           ~~~disaster declaration must stipulate the type and extent  of reconstruc-

    3           ~~~tion that will be paid for by the Federal Insurance Agency.  The length

               of the moratorium will be decided at the time of the disaster, as it

    3           ~~~will depend on the extent of damage to the properties involved.

            I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~A

                                                                                    109

               RECOVERY TASK FORCE

                    Damage assessment operations are oriented to take place during the

    3          ~~~emergency period.  After the  emergency  operations  to  restore public

               health and safety and the initial damage assessments are completed, the

    I          ~~~guidelines suggest that a  Recovery Task  Force is  formed.   This Task

    3          ~~~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

    I          ~~~of damages in the community, establish an overall restoration schedule,

    3          ~~~identify and evaluate alternative approaches for repair and reconstruc-

               tion, and make recommendations for community recovery.   The Task Force

    3          ~~~will  work  with  State  and Federal representatives on the Interagency

               Regional Hazard Mitigation Team and also the Section 406 Hazard

    I          ~~~Mitigation Survey  and Planning  Teams.   Members of  the Recovery Task

    3          ~~~Force will include:

                               Beaufort County Commissioners

                               County Engineer and Building Inspector

                               County Manager

       I                      ~~~~~~~City Managers and Engineers from each municipality

                               County Emergency Management Coordinator

                               County Health Department

    3          ~~~The Mayor of Belhaven will be called upon to serve on this  Task Force.

               The  Town  Engineer  will  also  serve.  A~lthough this Task Force will

    3          ~~~review damages, the authority  to approve  or deny  permits will remain

               the responsibility of the appropriate authorities.

                                                                                     110

    3          ~~~SCHEDULE FOR REPAIR A~ND RECONSTRUCTION OVER LONGER PERIOD

                     The procedures listed above deal directly with policies or

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

                with the policies stated above on storm hazard mitigation, considera-

    I          ~~~tion should be given to long-term  reconstruction.   All reconstruction

                efforts must be in compliance with the Town's Flood Prevention Plan and

                Floodway Ordinance and other construction standards currently in place.

                     In the aftermath of a disaster, reconstruction efforts will be

                rampant.  A plan for the  long-term reconstruction  is essential.   The

    I          ~~~County has developed a priority system which the Town will also follow,

    3          ~~~designed to stage and permit repairs.   Staging  and permitting repairs

                and construction in the Town are to be done as follows:

      3                  ~~~~~~First Priority:  Replacement of essential services

                                              such as power, water, telephone and

           U                                  ~~~~~~~~~~~streets and bridges.

      3                  ~~~~~~Second Priority:    Minor repairs

                          Third Priority:      Major repairs

      3                  ~~~~~~Fourth Priority:    New Development

                In an effort to streamline the permitting process for the large number

    I          ~~~of applications for building permits, a policy has  been established by

    5          ~~~the County  which issues  permits for  work in  Belhaven, to repair and

               rebuild essential  service facilities  first.   Second priority   is to

    3          ~~~repair  other  public  facilities  as  necessary for shelter.  A triage

                (worst damage) approach will be instituted for staging the reconstruct-

    I          ~~~ion effort.   Properties  with little damage would be permitted immedi-

               ately 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 damage, requiring permit decisions

     1              ~~~~3. Extensive damage, requiring permits

               This system was established to avoid interference with the reconstruc-

               tion of public utilities and facilities.   The  top  priority  in post-

    3          ~~~disaster reconstruction is the replacement of services.

                    The development standards for reconstruction will be in accord-

    I          ~~~ance with the Storm Hazard Mitigation policies set  forth by  the Town.

    3           f~~~s a  minimum, all construction must meet the requirements set forth by

               the Town's ordinances on construction, as well as the State Building

    3          ~~~Code.  The County Commissioners will be the legislative body to enforce

               these policies.

     I              ~~~~~lthough  consideration  to  the  possible  relocation  of  public

    3          ~~~facilities to  safer locations  was not  undertaken by  the County, the

               Town has addressed  this  issue.    Local  officials  realize  that the

    3 ~~~Belhaven wastewater treatment plant is located in the hazard area. A~t

               the same time however, there is no available land within the area to

    I          ~~~accommodate  its  relocation.    Thus,  local officials have elected to

                investigate the possibility of floodproofing rather than relocating the

               structure.

    3          ~~~EVA~CUATION ROUTES AND TIMES

                    Evacuation is often necessary in pre-hurricane conditions when

    *          ~~~high winds  and  water  are  anticipated  to  endanger  the  health and

                                                                       112

    safety of  local residents. According to Before the Storm in Beaufort

    County, Belhaven is located in Evacuation Zone I, which extends from a

    point near Sidney Crossroads to the Hyde County line. The evacuation

    shelters for Evacuation Zone I are the Belhaven High and Belhaven

    Elementary  Schools.    In  the  threat  of rising water however, these

    shelters will not be utilized.   During this  threat, evacuees  will be

    directed to Pantego High School and the overflow will be sent to

    Beaufort County Elementary School. A full description  of the capacity

    and adequacey of these shelters is in the Beaufort County Disaster

    Relief and Evacuation Plan.

         Highways 99 and 264  are the  principal evacuation  routes for the

    Belhaven  planning  area.    There  are several inundation points along

    these routes. They include:

             Highway 264 By-Pass        *  Stretch  of  264   .25  miles  on
                                      either side of Lower Dowry
                                      Creek culvert near intersec-
                                      tion of SR 1709.

                                      *  Portion   I mile  east  of  Hwy.
                                      264   and   Hwy.   99   intersection
                                      in   Belhaven,   to  that  intersec-
                                      tion.

                                      * Portion 1.5 miles on either
                                      side of Cuckolds Creek Bridoe
                                      toward Pantego.

              Business 264               * Portion inside Belhaven.

              Highway 99                 *   From   the   intersection   with
                                      264 in Belhaven to Sidney
                                      Crossroads, over the Panteqo Creek
                                      Bridge to the Pungo Creek Bridge.

    Source: Before the Storm in Beaufort County, pp. 40-41.

                                                                       113

        These  sites  represent  blockage  points  along   the  evacuation

    routes where roadway flooding could exist. The underlined bridges

    above are priority surge inundatibn points identified in the County

    Storm Hazard Mitigation Plan.

         Techniques  for  determining  evacuation  times  are  outlined  on

    pages 44 through 47 in  Before  the  Storm  in  Beaufort  County.   The

    total evacuation time is the sum of the following components:

    cut-off time, mobilization time, travel time, and queing delay time.

    The ideal capacity of Highway 264 is 455 vehicles per hour. Highway 99

    can accommodate  298 vehicles per hour.  Following the model given, the

    total evacuation time to Washington for each highway is:

                            TOTAL EVACUATION TIME

             Highway 264               Cut-off time        3.0  hrs.
                                      Mobilization time  3.5  hrs.
                                      Travel time         1.0  hrs.
                                      Queing delay time  2.69 hrs.

                                                TOTAL   10.19 hrs.

             Highway 99                Cut-off time        3.0  hrs.
                                      Mobilization time  3.5  hrs.
                                      Travel time          .97 hrs.
                                      Queing delay time  2.95 hrs.

                                                TOTAL   10.47 hrs.

    These evacuation times are calculated for a population of 3,000

    in the  Belhaven planning  area.   The total evacuation times for these

    routes dangerously approach the 12  hours  which  the  National Weather

    Service can predict for effectively mobilizing an evacuation effort.

    The storm hazard mitigation plan recommends a sensitivity analysis to

                                                                                      114

                 test  the  validity  of  the  evacuation  times.    This can be done by

                 adjusting the mobilization time, or by calculating the queing delay

                 time.   By doing  this, assumptions  which are closer to reality may be

                 introduced in estimating evacuation time for area residents.

     I                 ~~~~~This analysis provides the Town with  the opportunity  to consider

                 adopting policies which would improve the capacity of the evacuation

                 routes.   The Town  will consider  their information  in developing its

                 own storm hazard mitigation plan. Although many factors which affect

                 local evacuation are beyond the control of the local unit of govern-

    I             ~~~ment, awareness  of the  potential problem is a first step in improving

                 the evacuation times for Belhaven area residents.

                 SUMMARY

                      A large proportion of the Belhaven planning area is threat-

                 ened by the hazards associated with storms. In the event of a major

                 disaster, the planning area would be subject to the policies and

    I             ~~~guidelines  set  forth  in  the  Beaufort  County  Mitigation  Plan and

                 accepted  by  the  Town.      In-town  reconstruction  standards  will be

                 enforced according  to the  Flood Prevention Program, which attempts to

                 mitigate disaster in the futurLe.   The calculated  evacuation times for

                 Belhaven dangerously  approach the  safe limit.   It  is suggested that

    I             ~~~efforts be taken to improve the capacity of  the evacuation  routes for

    *             ~~~~the area.

                                                                        115

                   INTERGOVERNMENTAL COORDINATION

        The Town of Belhaven is responsible for reporting all of its

    activities concerning  storm hazard  mitigation and hurricane prepared-

    ness 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
                        Raleigh, 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

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

    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) 881-2391

                                                                                   116

                     STORM HAZARD MITIGATION AND POST-DISASTER RECONSTRUCTION

                                        POLICIES

               Policy Choices

                         1.   Support Beaufort County Storm Hazard Mitigation and Post

    I          ~~~Disaster Reconstruction Policies.

                         2. Town will encourage redevelopment of destroyed structures

               provided they confrom to applicable codes.

                         3.   If destroyed,  the Town will if possible, elevate public

               facilities structures to a safe level in accordance with the Flood

    I          ~~~Prevention Ordinance.

                         4.    Consider  developing  Recovery  Task  force  for Town.

                         5. Increase public awareness and preparedness.

               Implementation Schedule

                         1. Stay abreast of changes in Beaufort County Storm Hazard

               Mitigation plan.

      I                  ~~~~~2.  Follow guidelines of the building codes, zoning and flood

               prevention ordinances for reconstruction after the storm.

                         3. Due to the lack of available land, the Town public

               facilities will be rebuilt at same pre-storm location, but elevated to

               a level according to the specifications of the flood prevention

    I          ~~~ordinance.   Consideration will  be given  to flood proofing facilities

    I           ~~~(specifically, the waste treatment  plant) for  which elevation  is not

               feasible.

                                                                                     117

                          4. Recovery Task Force members will include:

                                    Mayor of Belhaven

                                    Town Manager

                                    Planning Board Members

                                    Rescue and Fire Squad Volunteers

                                    Medical Board

                                    Building Inspector

                          5.    Educate  Town' employees  and  public  about evacuation

                procedures about their responsibilities in storm situation.

      Iq
    ..I.         ..

    I   i    i;   ' S; 0  N  +   wNL  ;

                                        PUBLIC PARTICIPATION

                    Belhaven  realizes  the  importance  of  soliciting  public  input

               into the planning process. During the development period of this land

               use plan update, several techniques were employed to encourage involve-

    I           ~~~ment  of  Belhaven  area  residents  in  the  land use plan's policies.

               Planning officials agree that there was considerable input from local

               residents throughout the process and that such input is well reflected

    *           ~~~in the final plan.

                    At the beginning of the planning period, a citizen partici-

    I           ~~~pation plan  was developed.   At  the first meeting, the Planning Board

               decided to schedule regular monthly meetings every third Wednesday from

               November  until  the  plan  was  completed.    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.

     I               ~~~~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 strong desire to be involved in its formation.

               Efforts were made to inform the public about the existence of the plan

    *           ~~~and the importance of their contribution on policy recommendations.

                    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 two newspapers: the'Washington Daily News,

               based in Washington; and the Beaufort-Hyde News, based in Belhaven.

               The purpose of the articles was to explain the role of the CAMA plan in

               the development process and the explanation of the issues addressed in

               it. Other methods of public education involved direct communication

               with Belhaven residents by the Planning Board members.

                    In addition to the public education efforts, press releases

    I           ~~~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  completion  of meeting,

               another news article was sent out which described the meeting's events.

               The combination of these newspaper articles intended to promote the

    I          ~~~understanding of  the land use planning process as well as to encourage

               the public to provide  their opinion  on various  issues.   Examples of

               the newspaper articles are included as Appendix C. A~dditional articles

    *          ~~~appeared monthly the day following the Planning Board meeting.

                     Another measure was taken to attract citizen input. Letters were

    I           ~~~mailed to various civic and industry leaders in the community (Appendix

    *          ~~~D)   Special attention  was  given  to  soliciting  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 invite

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

               citizen attendance increased markedly at subsequent meetings.

                    Members of the Belhaven Town Board were strongly encouraged

    *           ~~~to attend the  meetings  to  keep  the  Board  abreast  of  progress on

               the plan.   At least one Town Board member was present at every meeting

               and workshop. The Town Manager also gave Land Use Plan Update progress

               reports at Belhaven Town Board meetings.

                     I                                                                 ~~~~~~~~~~~~~~~~~~~~~~~120

                     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 was encouraged to make written comments on it. The purpose was

                to have as much citizen input as possible.   It is  the  belief  of the

    I          ~~~Belhaven Planning  Board and  Town Board  that all  citizens should  be

    *          ~~~provided adequate 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 publicized to

    I          ~~~help keep  citizens informed  about the  land use  changes occurring in

                their community.

                     1                                                                 ~~~~~~~~~~~~~~~~~~~~~~~121

                                     LAND CLASSIFICATION SYSTEM

                    The land classification system is a tool to identify the antici-

               pated land uses within a planning area. The land classification map,

                the culmination of the land use planning effort, designates specific

    I           ~~~areas  for  certain  types  of  development  activities.  I~t 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

               relationships between various land use categories and the need to

    I           ~~~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

     I                ~~~~lands.  The designation of land classes allows  the local govern-

     *               ~~~~ment  to  illustrate  their  policy  statements  as  to where and

                     to what density they want growth to occur, and where they want to

                     conserve natural and cultural resources by guiding growth."

                      (7B.0204) (b)

                    The CAMA guidelines include five general land use classifi-

               cations  for  the  land  classification  map:    Developed, Transition,

    U           ~~~Community,  Rural  and  Conservation.     Their  definitions  are ranked

    3           ~~~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" areas should include areas

               developing or anticipating development which will eventually require

            I~~~~~~~~~~~~~~~~~~~

                                                                                   122

               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, fores-

               try, mineral extraction and  widely dispersed  housing.    Public water

    I          ~~~and sewer  will not  be provi ded  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". Public or private services, like water and sewer, should not

               be provided in this land classification.

     I              ~~~~The  five  land  classifications  and  land classification map are

    *           ~~~intended to serve as a visual definition of the policies stated in this

               plan  (Figure  14).    The  five  land use classifications, as they are

               applied in the Belhaven planning area, are discussed below.

               DEVELOPED

     I              ~~~~The  Developed  land  classification  is  intended  for  continued

               intensive development and redevelopment of urban areas. It includes

               areas already developed as urban in character and include mixed land

               uses such as residential, commercial) industrial, institutional and

               other uses at high to  moderate  densities.    Town  services including

    I           ~~~water, sewer,  public roads and police and fire protection are provided

               to some extent within the Developed class.

                    In the planning area, much of the land located within the Town

               limits is classifie d as Developed. Exceptions include the undeveloped

               waterfront industrial section and several pockets of undeveloped areas

               in  the  center  of  Town.   Approximately 95 percent of the structures

                                                                             123

                                      Figure 14

                                LAND CLASSIFICATION MAP

                             ~~~~~~~~~~r                   U.       ~.S. 264

                  I ;                  Submerged Vessel

    through a grant  provided by the North Carolina                         Surface Waters

               1-                                                      QRural
    CRC disagrees with Transition

    classification, see pg . 125.

                                                                                  124

                 within this boundary are served by sewer service. Ninety-three percent

    I             ~~~~of the residents are provided water service.

                 TRANSITION

                      The Transition class is categorized by 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

    I             ~~~future.   They will  also serve  as the  overflow sites for development

                 when additional lands are needed  to  accommodate  growth.    They will

                 eventually become a part of the urban area.

                      The Transition classification includes the area located in the

                 northern section of Town, whif-h is currently agricultural land and

    I             ~~~~light residential  development.  Additional concentrations exist on the

                 peninsula between Battalina and Tooley's Creeks and along the southern

                 portion of Highway 264 coming into Town.* Trends over the past five

    *             ~~~~years have shown most of the Town's residential growth occurring in the

                 northern existing residential areas and along the waterfront. General-

    I             ~~~~ly, these areas are  well suited  for future  development if  water and

                 sewer lines are extended. The land use analysis showed that the soils

                 within the transition areas are generally unsuitable for septic

                 tanks.    Most  of  this  area,  however,  is  in the lowest  risk zone

                 for the Flood Prevention Ordinance.

     I                 ~~~~~The relationship between the  Developed and  Transition classes is

                  important in a predominantly rural area like eastern Beaufort County.

                 Local land use planning efforts and public investments will be target-

                 ted to the land within these classes. Available vacant land within the

                 developed class should be considered for development prior to using

                 public dollars within to extend services to the transition class.

                                                                      125

        *It should be noted that the Coastal Resources Commission (CRC)

    disagrees with the Transition classification of the peninsula between

    Tooley's and Battalina creeks. Although the Town's 1976 and 1980 Land

    Use Plans were certified by the CRC with this area in the Transition

    classification, the CRC now in 1987 believes the area should appropri-

    ately be classified Conservation. Town officials however, do not feel

    the community can reasonably abrogate a long-standing pre-CAMA agree-

    ment between the Town and property-owners in the area by changing the

    area's  land  classification.    Thus,  although  the  area  appears as

    Transition on the Classification Map, the CRC has stated that when

    development requests for the area are reviewed, the Tooley's Creek area

    will be considered as being in the Conservation land classification

    for permit purposes.

    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 Belhaven planning area, there are no areas

    classified as "community".

    RURAL

         The "Rural" classification is designed for undeveloped areas which

    may be used for low intensity,  non-urban  uses.    Urban  services are

    typically  not  needed  in  the  Rural  class  due to the dispersion of

    development within these areas. Generally, these are lands identified

    as appropriate locations for agricultural production, mineral extrac-

                                                                                        126

                 tion, or  forestry activities.   A~reas  with significant limitations to

    I            ~~~make development  hazardous or  economicalIly unfeasible  should also be

                 placed in the Rural classification.

                      Nearly all of the land outside the town limits falls into this

                 classification. Presently, th..is land is used for agriculture and

                 forestry activities, but is not restricted to these uses. Spillover

    *            ~~~development from the transition and developed classes will be welcomed.

    *            ~~~~The Town has no special restrictions  on development i n this area.

                 COJNSERVATION

                      The "Conservation" class provides for the effective long term

                 management of significant, limited or irreplaceable resources. This

    I            ~~~includes,  as  a  minimum,  all  of  the  statutorily defined A~ECs.  In

                 Belhaven, this involves the estuarine waters, the estuarine shorelines,

                 public trust waters, and coastal wetlands.

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

                 to provide for careful and cautious management of the uses allowed in

    I            ~~~~it.   Preservation, on the other hand, implies total restriction of all

                 uses in an effort to keep  the  natural  environment  intact.   Through

                 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 sensi-

    I            ~~~tive natural and cultural  resources and  the freedom  of landowners to

    *            ~~~utilize their property to its best use.

                      The Town of Belhaven allows these specific uses in the Conserva-

                 tion class:

                                                                           127

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

    pilings, bridges and bridge approaches if shown not to cause a detri-

    ment to the AEC or Conservation lands.

              2.   Necessary utility  service lines,  such as water, sewer,

    electrical, natural gas, etc., when demonstrated that the lines will

    not terminate on the land designated as Conservation and the environ-

    mental integrity of the Conservation area will not be violated.

              3.    Bulkheading,  when  construction  of  bulkhead  can  be

    conducted  without   significantly  altering   the  ecological  system,

    and in  compliance  with  existing  federal,  state  and  local regula-

    tions.

    Iions.    4.  Revetments, culverts, groins and navigational aids.

             5.    Marinas,  provided  that  they  are  in compliance with

    size and water quality requirements set by state.

    In  conjunction  with  the  Policy  Statements  section  of  this plan,

    each application  for a "developed" use in the Conservation classifica-

    tion shall be reviewed on a case-by-case basis.

                                                                                    128

                           RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION

                     As required by the Coastal Resources Commission, 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

    I           ~~~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 Belhaven

                planning area is occurring on the fringes of the Belhaven Town limits.

    I           ~~~This is  the area where basic services such as water, sewer and commun-

    *           ~~~ity support services are available  or  might  be  feasible  within the

                planning period.   These classes are designed to accommodate all inten-

                sive land uses, including residential, commercial, industrial, trans-

                portation and community facilities. Hazardous or offensive uses, such

                as land application systems, electrical generating facilities, air-

                ports, and noxious industries will not be permitted in the classes.

    I           ~~~RURAL CLASS

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

                designated to provide for low intensity uses including agriculture,

                forest management, and mineral extraction. Residences may be located

                within the rural class where urban services are not required and where

    I           ~~~natural  resources  will  not  be permanently impaired.  Offensive land

                uses, such as land application systems and airports will be limited to

                this class.

            I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~4

                                                                                   129

               CONSERVA~T ION 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. Development in the estuarine

    I          ~~~system should be limited to uses such as piers, bulkheads, marinas, and

               other water-dependent uses (See description of Conservation classifica-

                tion above). Policy statements under Resource Protection and Resource

               Production and Management address Belhaven's intentions for development

                in fragile  areas.   The protection  of natural  resources and specifi-

    I          ~~~cally, water quality, is reflected in each policy statement.

                                                                                    130

                                    INTER60VERNMENTAL COORDINATION

                     The land   use  plan is a tool for coordinating numerous policies,

                standards,  regulations and  other governmental  activities.   The plan

                provides the framework for budgeting, planning, and the provision and

    I           ~~~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  Belhaven  area.   The

    *           ~~~implementation of  policies in  the land use plan requires coordination

                between the local government and the State and Federal governments.

    I           ~~~Enforcement 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.

                     Belhaven has worked to ensure compatibility between the Beaufort

                County and Belhaven Land Use Plans. There appeared to be no inconsis-

                tencies between the policies in each plan. A good working relationship

    I           ~~~exists between  the Town  of Belhaven  and Beaufort County.  During its

                development period,  the  plan    was  continuously  evaluated  for its

                consistencies between State and Federal regulation.

                      The Town of Belhaven intervds to foster intergovernmental coordi-

                nation by working with State and Federal agencies to implement policies

    I           ~~~to improve  water quality,  as well as carry out goals for the agricul-

                ture and commercial fishing  industries.    In  addition, Belhaven will

                work with the N.C. Department of Cultural Resources in protecting and

                enhancing its heritage. Coordination between the Division of Coastal

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

                                                                                  131
    I
                   permitting process for development in areas classified as wetlands.
                   1l additional efforts will be made to promote cooperation between
                   the State, Federal, County and Belhaven governments.
    I
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                                                                                       132
                                             APPENDIX    A
                                               ARTICLE V

              AN ORDINANCE REGULATING THE EXTENSION OF WATER AND SANITARY SEWER SERVICE WITHIN
     I      ~ ~AND OUTSIDE THE CORPORATE LIMITS OF THE TOWN OF BELHAVEN.

                  Be it Ordained by the Board of Aldermen of the Town of Belhaven as follows:

                  Section 1. APPLICATION FOR AND APPROVAL OF EXTENSIONS REQUIRED.

                  A. From and after the effective date of this Ordinance, any property owner, or
    I      ~ ~owners, desiring water or-sanitary sewer service shall apply in writing to the Board
              of Aldermen requesting the extension of water or sanitary sewer service or both. No
              request for the extension of services shall be considered unless submitted in writing
              in accordance with the requirements of this Ordinance.
                  B. The Town may require the applicant to submit as part of the written appli-
              cation such information, plans, or other data as may be required to adequately
              determine if the requirements of this Ordinance are to be met.

                  C. Wshen application is made for water and sewer extensions to serve an area
    I       ~ ~or development project that is planned as part of a larger project or subdivision,
              all of which is not to be developed at the time application is made, the owner or
              owners shall submit plans in suffic ient detail in order to determine the size and typ
              facilities which will be necessary to serve the entire development or subdivision

                  D. No extension to the water or sanitary sewer system of the Town of Belhaven
              shall be made and no application shall be approved except in accordance with the
              requirements of this Ordinance.

     I            ~~~Section 2,  GENERAL EXTENSION REQUIREMENTS.

                  All extensions of either water or sanitary sewer service shall be governed by
    I       ~ ~~the following:

                  (a) The minimum distance for any extension of a water main or sanitary sewer
              main shall be determined by the Board of Aldermen. In general, the minimum distance
              folxtnions shallve tonvle pattd bokorin the case of wantar eer extensio from mainhoet
              folxtnione shalve tonvle pantd bokorin the case of santar eer exenions from mainhoet
    *         ~~~manhole.

                   (b) The size of water mains and sanitary sewer mains to be installed and the
              other required system facilities shall be determined by the Board of Aldermen in
              accordance with the recognized standards and accepted engineering practices and

                  Section 3. FINANCING EXTENSIONS WITHIN CORPORATE LIMITS.

                  A. Extensions to Approved Subdivisions or Developed Property.

    U             ~~~~(1)  When application is received requesting the extension of water or sanitary
              sewer service or both to serve property within the corporate limits which is develo
              or has been previously approved as a subdivision, or where streets have previously

                                                                                      1 33
    I    ~dedicated and accepted by the Town, and where such area is not part of a new sub-
           division which has not been approved by the Town, the Town Clerk or other person
           designated by the Board of Aldermen shall estimate the cost of the project and
    I    ~present the application for such extension, the estimated cost and other required
           information to the Board of Aldermen for their consideration. If the application is
           approved by the Board of Aldermen and subject to the availability of funds, the Town
    I    ~will install or have installed by contract under its supervision the extensions
          which have been approved , and such extension shall be financed in accordance with
           this subsection.

               (2) When an approved water or sanitary sewer extension project has been com-
           pleted and the total cost thereof has been determined, seventy-five percent of the
           total cost of such water or sanitary sewer extension or both shall be assessed
    I    ~against the property owners whose property abuts upon such extension at an equal
           rate per front foot in accordance wit h and under the authority granted to the Town
           by G.S. 160-241 through G.S. 160-248. The remaining twenty-five percent of the total
    I    ~cost of such extensions shall be borne by the Town from funds appropriated for this
           purpose.

               (3) Any property owner or owners sthall have the opportunity to pay his or
    I    ~their proportionate share of the cost of such extensions after the assessment roll
           is confirmed rather than paying his or their share in equal annual installments with
    *     ~interest as required by the statute.

               B. Extensions to Proposed Development or Subdivisions.

               (1) When an application is received requesting the extension of water or sani-
           tary sewer service or both to proposed development or subdivisions within the cor-
           porate limits which have not been approved by the Board of Aldermen, the Town Clerk
           or other person designated by the Board of Aldermen, shall estimate the cost of the
           project and present the application for such extension, the estimated cost and other
           required information to the Board of Aldermen for their consideration. If the
           application is approved, and subject to the availability of funds, the Town will
           install or have installed by contract under its supervision such extensions which
           shall be financed in accordance with this subsection.

               (2)  Prior to the beginning of any construction, the property owner oowers
           shall advance to the Town funds in an amount equal to seventy-five percent of the
           total estimated cost of the proposed extensions. Upon receipt of such funds, a
           written contract shall be entered into by and between the Town of Belhaven and the
           property owner or owners, under which the Town will use such funds upon the following
           terms and conditions:
     I       ~ ~~(a)  The funds shall be deposited in a special account of the T own for which a
           separate accounting will be made.

               (b) At the time construction of the extension is completed and the total cost
           thereof is determined, if the amount deposited exceeds seventy-five percent of the
           total cost, that portion in excess of the amount deposited will be refunded to the
           owner or owners without interest. If the amount deposited is less than seventy-five
          .percent of the total cost, the. owner or owners shall pay such additional amount to
           the Town and this condition shall be a part of the written contract.

              (c) In lieu of depositing funds, the owner or owners may provide a surety bond
          or some other form of security that will insure payment to the Town of the owner or
          owners' proportionate share of the cost of extension in accordance with this Ordinance.

              (d) No refund or reimbursement of funds shall be made to the owner or owners
          who pay seventy-five percent of the total cost of extension under the requirements of
          this subsection except as provided for in paragraph (b) above.

              C. Facilities Excluded in Determining Owners' Share of Cost.

              (1) When the Town of Belhaven deterriines that it is advisable to install
          larger size facilities than are necessary to serve *the property requesting such
          extension, the difference in the cost of the larger size facilities over ~and above
          the cost of the facilities required to serve the property requesting such extension
          shall be paid for by the Town of Belhaven and excluded from the total cost to be
          shared by the property owner and the Town as provided for herein.

              (2) Fire hydrants, pumping stations, outfall lines, and other facilities in-
          stalled for general public use shall be paid for by the Town of Belhaven and ex-
          cluded from the total cost to be shared by the property owner and the Town as pro-
      5vided for herein.

              D. Exceptions Authorized.

              (1) Nothing in this Ordinance shall prevent the Board of Aldermen from extend-
          ing water or sanitary sewer mains or both within the corporate limits on their own
          motion without receipt of an application from property owners, and to assess the cost
    I    ~of such extensions in accordance with subsection A of Section 3 of this Ordinance when,
          in the opinion of the Board of Aldermen, the general public interest demands such
    3 ~extension of service.

              (2) Nothing in this Ordinance shall require payments or assessments for the
          extension of water or sanitary sewer mains or both, which are to be extended by
    I    ~William C. Olsen and Associates Engineers and Architects, Raleigh, North Carolina,
          under contract number 414 for water and 401 for sewer, and included under EDA number
          03-1-00051P and HUD number PFL NC 89.

     I,       ~~Section 4.  FINANCING EXTENSIONS OUTSIDE CORPORATE LIMITS.

              A. All applications for water and sewer extensions outside the corporate limits
          shall be made in the same manner and under the same requirements as provided for in
          Sections I and 2 of this Ordinance.

              B. If an application is approved by the Board of Aldermen, the owner or owners
          shall be required to pay for the entire cost of all extensions. Provided, the Town may
          participate to the extent agreed upon by the Board of Aldermen in the cost of larger
          size mains which are in excess of the size mains required to serve the project. No
    I    ~reimbursement shall be made upon annexation and all water and sewer lines connected
          to the Town system and located outside the corporate limits shall become the property
          of the Town at the time such facilities are connected.

              C. Prior to the beginning of any construction, the owner or owners shall deposit
          with the Town funds in an amount equal to the total estimated cost of such extensions.

                                                                                        1.35
         Upon receipt of such funds, a written contract shall be entered into by and between
     -   the Town of Belhaven and the property ow(per or owners in accordance with the require-
         ments of this Ordinance. Such contract shall provide that in the event the amount of
         the total funds deposited exceeds the amount of the total extension cost when com-
         pleted that portion in excess of the total extension cost will be refunded to the
         owner or owners without interest. Such contract shall also provide that if the amount
         deposited is less than the total cost, the owner or owners shall pay such additional
         amount to the Town of Belhaven.
             D. In lieu of depositing funds the owner or owners may execute a surety bond
         guaranteeing payment for such extension or the owner or owners may have such extension
         work performed under private contract with the approval of the Board of-Aldermen,
         provided the work is to be performed in accordance with all construction 'requirements
     I   of the Town of Belhaven and subject to inspection and approval of the Town.
             E. In the event the property for which application has been made for water or
         sewer service is contiguous to the corporate limits and the owner or owners of such
     I   property agree to annexation and in the event such property is annexed to the Town of
         Belhaven, extensions may be made to such property and the cost thereof financed in
         accordance with the requirements of Section 3A or 3D of this Ordinance, whichever is
         applicable.
             Section 5. SPECIFICATIONS, OWNERSHIP.

    I       ~~Any water mains or sanitary sewer mains extended under the provisions of this
         Ordinance shall be installed and constructed in accordance with the approved plans,
         specifications and other requirements of the Town of Belhaven. All facilities in-
     ..  stalled under the provisions of this Ordinance, whether within or outside the corporate
         limits,shall become the sole property of the Town of Belhaven and under its juris-
         diction and control for any and all purposes whatsoever at the time such facilities are
     Iconnected to the Town system.  When required, the property owner or owners shall grant
         to the Town such utility eastments as the Town may require. In addition, a deed to
          the Town for water and/or sewer facilities installed which are located outside the
         corporate limits, the cost of which is borne by individual property owners, shall be
         executed prior to the time any extensions provided for in this Ordinance are connected
          to the Town systems.

     I       ~~Section 6.  ADDITIONAL SUBDIVISION IMPROVEMENT REQUIREMENT.

     *       ~~The Board of Aldermen may in its discretion as a condition under which water
         or sewer service or both will be extended, require the owner or owners of a proposed
         subdivision to enter into an agreement to improve the proposed streets therein at their
         own expense and in accordance with the ordinances then in force governing the
      I'  acceptance of public streets for the Town of Belhaven.  If required, this section shall
          apply to subdivisions which are located either within or outside the corporate limits
          of the Town of Belhaven.

     I       ~~Section 7.  CONFLICTING ORDINANCES REPJEALED.

             All ordinances or parts of ordinances in conflict with the provisions of this
    I    ~Ordinance are hereby repealed.

     *        ~~Section 8.  EFFECTIVE DATE

              This Ordinance shall be in full force and effect from and after the 6th day
    I    ~of March, 1968.

                       --                  ~~~~~APPENDIX B                                136

                              FEDERAL DEVELOPMENT REGULATIONS

                     Agiency                       Licenses and Permits

             Army Corps  of Engineers                 -   Permits required under
               (DEPARTMENT OF DEFENSE)             Sections 9 and 10 of the
            I                                    ~ ~~~~~~~~~~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 bridges, 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.

            I~~~~~~~~~~~ -Deep water port permits.

              Geological Survey                  -  Permits required for of f-
    I       ~ ~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 I! of the Energy
                                                  Reorganization Act of
                                                   1974.

                                                                            137

    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
                                        7C (b) of the Natural
                                        Gas Act of 1938.

        Source:  CAMA Land Use Plan Update, Hertford County, NC,
            ?    ~1980.

                                                                            138

                      STATE DEVELOPMENT REGULATIONS

            Aqency                          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).

       Division 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, subdivision, stadiums,
                                        etc. eG.S. 143-215.109).

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

      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-
                                         118).

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

                                                                              139

    DEPARTMENT OF NATURAL RESOURCES  I 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 (6.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
                                        residences (G.S. 130-
                                         160.1).

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

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

                                                                                                           140

                 APPENDIX C

    U            ~~CITIZEN  iNVOLVEMENT NEWSPAPER ARTICLES

                  Washington Daily News - 1-29-86

                                Belhaven!Plalnihng  B9ard

                                Assesses Lan"d Use Goals
                                  BELHAVEN - The Belhaven           In a checklist format, each 1981
                                planning board has decided to  policy and implementation
                                work harder at meeting its goals  strategywasanalyzedtodetermine
                                and to remove the "vagueness"   how well the town has moved for.
                                ftom the land use policies in place  ward in reaching each goal Out of
                                for the past five years.          16 implementation strategies, 11,
                                  The town's planning board met   or 69 percent, had been either par-
                                Monday night to discuss the lane  tially or completely fulfilled. The
                                use plan which is being updated   board was asked to evaluate each.
                                this year. The meeting focused on   policy for its content and clarity.
                                the policies and goals set in the  Each policy dealt with the issues of
                                1981 land use plan and how well  resource protection, production or
                                theimplementation procedures for  management and economic de-
                                each policy have been carried out   velopment.
                                since that time. The board con.
                                eluded that the goals and policies  se he planninag board also discus
                                set forth in the 1981 plan are too ed othereas of intert for their
                                "vague" for interpretation for the  upcomingplan.Theshipwrecks lo-
                                98e plain                         cated off of the waterfront, consi-
                                  The land use plan update is a  dered to be a significant cultural
                                document used to assess and guide  resource, were the subject of con-
                                development. Each of 20 counties  troversy. Planning board members
                                covered by North Carolina's Coas.  requested that Information on the
                                tal Area Management Act must up,  historical value of each wreck be
                                date its land use plan every five  gathered. Also, the economic feasi-
                                years. Municipalities, like   bilit, ofadiketokeepoutfloodwa-
                                Belhaven, have the option of up.   was from the downtown section
                                dating their plans as well        was debated.
             -i                                _  I[  r   r i u ,    Six planning board members
                                                                  were present at the meeting, as
                                                                  wellas two town council members.
                              ions V    ;Tim Johnson, town manager, pres-
                                                                  ided at the meeting.

      I

      I

    WASHINGTON DAILY NEWS                                                                                  141
    2-20-86

                   Industrial Recruitment

                   Concern Of Planners

                     BELHAVEN - The Belhaven  lems facing the town for this year's
                   Planning Board has decided that  update.
                   although water quality is impor-    Water quality and wetland re-
                   tant to the growth of the commun-   sources  are important  to
                   ity, industrial recruitment should  Belhaven's commercial fishing
                   take a front seat over additional  and recreation industries. Estab-
                   town efforts to maintain water  lishment of policies related to im-
                   quality.                           proving water quality were an im-
                     In proposing policy for the  portant concern to the board, but
                   town's 1986 land use plan list  no strategies for implementing
                   night, the planning board included  new policies were formed.
                   policies to protect natural re-    Ms. Phillips noted that "the
                   sources and the region's supply of  effectiveness of each policy is mea-
                   groundwater. The board did not  sured by the actions taken to sup-
                   approve new initiatives on {water  port and carry it out."
                   quality.                      -      The N.C. Coastal Resources
                    The board also elected not to pur.  Commission requires that water
                   sue establishment of an historic  quality be addressed. Belhaven
                   district in the town. TIhere are  can decide whether to emphasize it
                   approximately 17 structures listed  in the plan. In general, it was deter-
                   on the State and National Registers  mined that water quality is secon-
                   of Historic Places, but the board  dary to industrial development in
                   noted that there was hot wide-  thetown. WilburLogan, a planning
                   spread support for or interest in an  board member, noted that the plan
                   historic district at this time.    should not have any statements
                    Belhaven is updating its Coastal  which might discourage industry
                   Area Management Act Land Use  in any way.
                   Ptah.'The plarining bqard, plus ab..  ' The board decided'to table sever-
                   6outeight concerned.ci'tizens, met  al decisioins 'con~cerning water
                   last night with consiilting planner  quality until the next meeting to
                   Lynn Phillips of the Mid-East  allow more time to consider each of
                  Commission, who provided tech.  the implementation strategies sug-
                  nical information on which the  gested.
                  board based its'decisions.           The board also examined the
                    The board also elected John   safe placement of septic tanks in
                  Jones as its chairman. Jones noted  area soil. The best way to prevent
                  that non-point pollution is one of  contanjination of water supplies is
                  the greatest environmental prob-  to require all potential users to
                                                    hook up to the town's wastewater
                                                  '  treatment plant. Town Manager
                                                    Tim Johnson said that it will prob-
                                                    ably be possible to extend sewer
                                                    lines to all developed areas witlhin
                                                    the one-mile extraterritorial .limit
                                                    within the next two years. The
                                                    town's wastewater treatment facil-
                                                    ity is currently in the planning
                                                    stages for a 201 Facilities Program
                                                    to upgrade and expand the ex-
                                                    isting facility.
                                                      The plan is being developed and
                                                    public opinion is still encouraged
                                                    on,each policy recommendation.
                                                    The board will meet again at 7:30
                                                    p.m.' March 19 in the Belhaven
                                                    Town Hall.

                               I own s rianning board

    U                       ~~~~~~~~~Discusses CAMA Plan                                                     142
                                 BELHAVEN -  Discussing   sites, however. If any residential,
                               opportunities for development,   commercial, or industrial de-
                               the Belhaven Planning Board   velopment considers these sites
                               voted last -night to avoid special  for development, the town sees
                               precautions to preserve several  no need to protect these farm-
    I                      ~    ~~~~~~~~tracts of "prime" agricultural  lands. The lack of adequate land
                               land within the planning area.    for all development types was
                                 The Planning Board discussed  cited as the main purpose for this
                               the 1986 update of the Coastal  policy choice.
    I                      ~    ~~~~~~~~Area Management Act Land Use  In other matters, the board de-
                               Plan. The Land Use Plan is a  cided to discourage open pit min-
                               document to guide and assess de-   ing within the one-mile jurisdic-
                               velopment over a ten-year   tion of the town. Any mining acti-
    I                      ~    ~~~~~~~~period.                 vities proposed will be required
                                 Two pockets of "prime" agri-  to apply for a special use permit.
                               cultural soils exist within the   Each special use permit will be
                               planning area. "Prime" soils  examined individually. The
    I                      ~    ~~~~~~~~have been identified by the Soil  town plans to discourage the ex-
                               Conservation Service as those  traction of peat within its plan-
                               soils with the highest production   ning area. It will not be responsi-
                               yields in the state. In Belhaven,   ble for providing water and sew-
    I                      ~    ~~~~~~~~these soils are located near Duke   er services to any proposed min-
                               Street and outside the town   ing operations.
                               limits to the north of Battalina    The board also agreed that
                               Creek.,                           available sites for future indust-
     I                        ~    ~~~~~~~~Since these lands are currently  rial development are limited.
                               under production, the town en-  Sites that are currently zoned for
                               courages the owners to imple-  industry are located on the Pan-
                               ment the best management prac-  tego Creek waterfront and on the
                               tices, a program currently in  Battalina Creek peninsula. These
                               place under the Soil Conserva-   creeks are considered fragile be-
                               tion Service. Development will  cause they serve as nursery areas
                               not be precluded from thp.,e  for juvenile fish species. Most
                                                                  cett  hs  aesmyhvtypes of industry located adja-
                                                                  negative effect on the fragile
                                                                  nursery areas. It was recom-
                                                                  idsrbecniee.twamended that alternative sites for
                                                                  long-range plan for the town.
                                                                  However, the planning board
                                                                  will discuss it later.
                                                                    The development of marinas
             WASHINGTON DAILY NEWS                               and floating homes will be sup-
             3..20)(Y86O                                         ported, providing their des'ign
              U                                                ~ ~~~~~~~~~~~~~~and size do not violate water
                                                                  quality standards set by the Divi-
                                                                  sion of Environmental Manage-
                                                                  ment officials. Scientific studies
                                                                  have shown marinas to be contri-
              U                                               ~     ~~~~~~~~~~~~~~~~butors to the pollution problems
                                                                  of the waters in which they are
                                                                  located. The zoning ordinance
                                                                  will require slight revisions to re-
                                                                  fleet this policy statement.
                                                                    Several citizens attended the
                                                                  meeting. Most were interested in
                                                                  the possible requirement of sew-
              I                                               ~    ~~~~~~~~~~~~~~~er hook-ups for all out-of-town
                                                                  residents. Board members reas-
                                                                  sured the citizens that this would
                                                                  not be a future requirement.
               I                                                ~     ~~~~~~~~~~~~~~~The next meeting of the plan-
                                                                  ning board is scheduled for April
                                                                  16 at 7:30 p.m. in the council
                                                                  chambers. The agenda will in-
              I                                                  d~~~~~~~~~~~~~~~cude policy statements on eco-
                                                                  niomic and community develop-
                                                                  ment  11 interested members of
              3                                                 ~~~~~~~~~~~~~~~~~~the u,, ..,c are invited to attend.

                                                                                           143

                WASHINGTON DAILY NEWS, MONDAY, APRIL 28, 1986 - PAGE 5

                                Comment Sought
                                On CAMA Update
                                Of Land Use Plan
                                X BELHAVEN - Citizens will
                                have the opportunity to provide
                                input on the economic and com-
                                munity development issues fac-
                                ing Belhaven at a town meeting
                                scheduled for Wednesday, April
                                30.
                                  The town's Planning Board
                                will meet at 7:30 p.m. in the coun-
                                cil chambers of the Old Town
                                Hall to discuss an update of the
                                Coastal Area Management Act
                                land use plan.
                                  The board will discuss the re-
                                cruiting of industry and potential
                                sites for specific manufacturing
                                types. Members also will discuss
                                the town's obligation to provid4
                                services to future industry.

    I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~

                                                                                              144

                           WASHINGTON DAILY NEWS, TUESDAY, JUNE 17, 1986 - PAGE 5

                           Belhaven Continues Land

                           Use Plan Talks Wednesday
                            BELHAVEN - The Belhaven   use plan is to address policies re-
                           Planning Board will meet at 7:30  lated to development in a town in
                           p.m. Wednesday evening to con-  a 10-year period.
                           tinue discussion on the town's    Wednesday night's agenda in-
                           Land Use Plan update.             eludes discussion on the town's
                            The meeting will be held in the  commitment to citizen involve-
                           town council chambers and is  ment in planning along with
                           open to all interested citizens.    allowable uses within each clas-
                            Since November, the plainning  sification on the land classifica-
                           board has been working on up-  tion map. The map includes five
                          dating the land use plan as re-  classes based on development
                          quired every five years. The land  density.
    I~~

               APPENDIX D                  PERSONAL INVITATION TO PUBLIC MEETINGS

     ~~~In

    MAORI                                                       TOWN COUNCIL:
      Di. C.O. Buyette                                          W.P. O'Neal. Jr., Mayor Pro-Teri
    -Tim MI. Johnson                               -.-James .Hde
                  *                 7..                         ~~~~~~~~~~~~~~~~~~~~~~~~Frank Ambrose. Jr.
     TOWN CLERK                    Mtbfl S~ t89                 Judy E. Allen
    * Deborah M. Hollowell
          *                     ~~~~~~~January 31, 1986

            Mr. Jerry Cox
             Front Street
             Belhaven, NC 27810
            Dear Mr. Ccx:.

      I         ~~~The'Town of Beihaven and the Mid-East Commission are
            currently engaged in updating the 1981 Belhaven Land Use Plan.
            The land use plan is a document used to assess and guide de-
     I    ~velopment.  it will be used by the county CAMA Permit Officers,
            developers and other state and federal agencies to make decisions
     *      ~about development 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 impedi-
            ment 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 Belhaven 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 Februa ry 15?, we will be-
     I    ~gin making policy statements on resource protection in the area.
            Also, we will be discussing the most relevant issues facing
            Belhaven today. The incorporation of your opinion on these
            issues is our goal.

                 The meeting is scheduled for February IS at 7:30 P.M. in
            Town Hall. Subsequent meetings will be held on the third Wed-
     I    ~nesday of each month at the time given above.  We encourage
            you to attend it to provide guidance and direction.

                     1                                                      ~~~~~~~~~~~~~~~~~~~~~~~~~146

    I      ~~January 31, 1986
            page two

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

          *                        ~~~~~~~~Sincerely,

                                      Lynn Phillips, Planner in Charge
          3                        ~~~~~~~Mid-East Commission

            LP/ma
            cc: Tim Johnson, Town manager