Land Use Plan Update-1996

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Division of Coastal Management
Pasquo tank County
Land Use Plan Unda to
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SVNRPSE Planning Inc.
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CERTIFIED BY CRC
MAY 24, 1996

PASQUOTANK COUNTY LAND USE PLAN UPDATE
April, 1996
Pasquotank County Board of Commissioners
Zee B. Lamb, Chairman
rHorace C. Pritchard, Vice Chairman
Jimmie Dixon W. C. Witherspoon
Patsy McGee Hugh Clinkscales
Davis M. Sawyer
Pasquotank County Planning Board
Una E. Green, Chairman
John Savage, Vice Chairman
David Harris Cecil Temple
Bill Lehmann Warren Meads
wLeon
Brothers
Land Use Plan Update Adhoc Members
�I
Don Baker, County Extension Director
Rodney Johnson, Project Coordinator
Dwane Hinson, District Conservationist
Randy Keaton, County Manager
Rodney Bunch, Planning Director
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The preparation of this report was financed in part through a grant provided by the North Carolina
Coastal Management Program, through funds provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the Office of Ocean and Coastal Resource Management,
National Oceanic and Atmospheric Administration.

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Table of Contents
Page
Introduction 1
Land Use Planning Need 2
Overview of County Trends
4
Natural Communities
4
Existing Land Use Analysis
5
Population Trends
7
Economic Factors
10
Housing
12
Public Facilities
12
Hazard Mitigation 18
Magnitude of Risk 19
Flood Potential 19
Development at Risk 21
Evacuation and Post Disaster Recovery 22
Issues and Policies 23
Current Land Use Regulation 23
Issue Identification 24
Policy and Procedures 25
Future Land Use and Growth Management 36
Future Land Use Classification 36
Action Program 39
Appendix One 44

1
INTRODUCTION
This Land Use Plan is intended to provide direction for new development in the unincorporated
areas of Pasquotank County during the next ten years. It is the consensus document for guiding
decisions concerning growth and it is a document that will change over time. There will be
amendments. However, the aim is to encourage development patterns that utilize land wisely by
conserving natural resources and preserving the heritage of the County. In brief, this Plan contains:
projections for the anticipated population growth and accompanying land development.
a Future Land Use (Land Classification) Map depicting where urban growth can be
accommodated.
policies to guide decisions by county government concerning the type and intensity of
development.
a program of recommended actions for county government to undertake.
This document is divided into five sections and appendices. The four main sections of the plan that
follow this introduction are:
Overview of County Trends
Issues and Policies
Storm Hazard Mitigation and Post Disaster Recovery
Future Land Use and Growth Management
Matters requiring clarification of this plan or decisions based on this plan shall be submitted to the
Pasquotank County Planning Board for their review and interpretation. The decision of the
Planning Board shall be the proper interpretation of this plan, provided that the person requesting
the interpretation may appeal the issue to the Pasquotank County Board of Commissioners. The
foregoing shall apply in those cases of Pasquotank County government decision -making and shall
not affect the statutory authority for land use plan consistency determinations as provided by the
1974 Coastal Area Management Act, G.S. 113A-100 et seq.
The authors of this document acknowledge the efforts by a number of people in helping complete
the plan. In particular, members of the Land Use Planning Committee (Planning Board and Land
Use Plan Update Adhoc Members) spent many hours of their own time volunteering information
and insight that proved invaluable. Special thanks to these men and women who are opinion
leaders in the County.

2
Land Use Planning Need
A land use plan for coastal counties including Pasquotank County is required by the North
Carolina Coastal Area Management Act of 1974. The State of North Carolina recognizes that
for future development is for Pasquotank County
planning growth and prudent counties such as
given the changes that growth will bring both positive and negative. One significant change is the
spread of more intensive urban land uses into many areas of unincorporated Pasquotank County
spurred by a faster rate of population growth.
Therate of growth over the past five ears in unincorporated Pasquotank Count is placing
to gro p y rpo q y p g
significantly higher demands on the County budget to build new facilities especially schools. This
rate of growth is projected to continue over the next ten years. Moreover, a strong local economy
could escalate further the rate of population growth as more jobs become available. After studying
growth trends the authors of this plan believe that the County's rate of population growth will
exceed the North Carolina Office of State Planning projection of 3,200 people. The authors of this
plan believe that 5,000 people will be added to the County's population in the next ten years with
the majority of the new residents residing in unincorporated areas adjacent to:
US 17 North in Newland and Providence Townships
US 17 South in Mt. Hermon Township
ST. RD. 34 in Nixontown Township
Growth and development on a smaller scale will also spread to other areas throughout the County.
Pressures will mount on agriculture and forest land for conversion to residential uses. There will
be new industries and projects such as the new prison in Pasquotank County Commerce Park. All
this activity will spawn more commercial development along the County's major arterials. The
challenge of the next ten years for Pasquotank County government is to absorb new growth
Instead demands
economically without sacrificing the rural ways. of rushing to meet all the of new
residents, those people should be called upon to adapt to Pasquotank County's way of life and
reduce their preconceived view points of government's role in providing for all their needs.
Other fast growing counties have been inundated with the demands of new residents. Business and
real estate interests pressured local governments to spend more for additional services to attract
more jobs. In response governments raised taxes in an attempt to keep pace with service demands.
Ironically, ad valorum taxes generated by sprawling single family subdivisions fall short of the
amount needed to pay for the service and facilities.
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Conversely, existing residents often resist changes in their community. There are conflicts between
those advocating growth and those fearing the growth genie being let out of the bottle.
Communities have been successful in absorbing growth where there has been greater participation
by the general public. Constructive citizen participation in the decision -making process has a
moderating effect. A more participatory approach to the review and approval process for
development is being practiced pro -actively by several counties in North Carolina and Virginia.
The heritage (rural ways of life) of these counties is being conserved while new development is
being constructed at a scale and in a manner that is compatible with long standing community
values. Agriculture was the first "industry" in the County and conversion of highly productive
cropland to urban uses threatens the rural way of life which is so much a part of the life style
valued in Pasquotank County. Beginning a participatory process in Pasquotank County can go a
long way towards preserving the rural ways of life by conserving the land. The authors of this plan
recommend a gradual approach whereby interested county residents are given the opportunity to
get more involved in the planning for the community. It follows that those people are more aware
and better able to respond constructively to a proposed development. With the broader
involvement, the county officials will in turn make more informed decisions thereby conserving the
land for its best long term use.
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OVERVIEW OF COUNTY TRENDS
This section is a brief overview of the background information used in preparing this plan. Several
topics of particular importance are natural communities of special concern, population trends, the
economy, housing trends, public facilities, and existing land uses. Each of theses topics is
discussed in more detail in this section.
Natural Communities
Certain natural communities are of particular interest in the preparation of this land use plan
because they are areas of environmental concern. Conversion of environmentally sensitive natural
communities threaten the ability of the natural environment to support our economic and social
activities. Appendix One is a tabulation of the acreage of land that was covered by natural
communities as recorded during 1988 from satellite imagery and provided to the State of North
Carolina for a study of the Albemarle region. This tabulation together with the infrared
photography maintained by the Center for Geographic Research served as a benchmark for
tracking land use conversions in Pasquotank and surrounding counties.
This effort was undertaken by the State of North Carolina in order to determine the magnitude of
natural land use changes. The North Carolina Legislature recognized the relative importance of
natural communities and the dwindling amount by enacting a number of special protective
requirements for coastal wetlands, estuarine waters, public trust waters, estuarine shorelines and
outstanding resource waters. All the wetlands are nursery grounds for many of the important
marine fishes which have commercial or recreational value. Neighboring coastal states have
experienced radical land use changes along their shorelines and loss of their coastal wetlands
resulting in the diminution of their coastal fisheries. In North Carolina the construction allowed
along the shorelines and adjacent to the rivers in the coastal region is regulated by CAMA.
Pasquotank County has the authority through zoning to regulate the general types and intensities of
development on the adjacent uplands. Therefore, coordination of Pasquotank County's general
land use regulatory functions with CAMA's site specific permitting requirements is essential. An
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example of the need for cooperation is the regulation of activities along estuarine shorelines.
Estuarine shorelines are defined by CAMA to be the dry land up to 75 feet from the waters edge
abutting Estuarine Waters. Estuarine Waters in Pasquotank County extend to the Route 158 bridge
along the Pasquotank River and up the Little River just South of the US Highway 17 bridge.
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Figure One is a general map of the County showing the location of the estuarine shorelines.
Permits are required by CAMA for any development within the 75 foot zone in an attempt to buffer
the estuary from the deleterious effects of runoff. Policy direction for these permits is based on the
local jurisdictions adopted land use plan. One obvious concern to Pasquotank County is the
erosion of certain estuarine shorelines in Pasquotank County. While efforts are being made by
farmers to stem this erosion, the loss of land during storm events continues to plague farmers and
other land owners.
There is also a need for cooperation in regulating development upstream of the estuaries. Activities
along these waterways designated as Public Trust Waters by CAMA often cause sedimentation
which is carried downstream into the estuaries with sometimes deleterious effects. Public Trust
Waters as defined by CAMA extend upstream of Estuarine Waters to the limits of navigation.
Public Trust Waters extend the entire stretch of the Pasquotank River within Pasquotank County.
CAMA does not have authority to regulate upland land use decisions along the Pasquotank River.
Pasquotank County's has the authority and it regulates the density and coverage of development in
the watershed and zoned areas.
Existing Land Use Analysis
This section describes trends in the conversion of land. Existing uses of land were surveyed
between November, 1993 and March, 1994. The following categories of land use were recorded
by windshield survey: commercial, institutional, industrial, multifamily residential, single family
residential and recreational. Analysis of data and conversations with key county personnel
uncovered several important trends in land use. Until the 1990's farmers had been converting
much of the County's natural areas in the Dismal Swamp to croplands. In the early 1980's forest
lands covered 42 percent of the county. By the late 1980's the percentage of forest land had been
reduced to 24 percent while cropland had increased from 30 percent to 49 percent. The conversion
of the Dismal Swamp to cropland slowed with the enactment of stricter federal and state wetlands
regulation. According to state and federal soil conservation and agricultural extension agents, the
conversion has halted during the last few years.
Ironically, agricultural land is now being converted to urban uses. Urban land uses increased
slowly during the 1980's from roughly 2.5 percent to 3 percent. In the 1990's agricultural land
uses adjacent to highways and silvicultural areas with water amenities are being converted to single
family subdivisions.
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PASQUOTANK COUNTY LAND
USE
PREPARED 6Y.
SYNAPSE! PLANNING, INC.
DATE:
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PLAN UPDATE (19 9 5)
+ ckson State Rd 2 Suite 294
Jacksonville, FL 32259
DATE;
B-11-5
11-95
DATE:
3-30-95
FILE NAME:
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Figure Two is a map depicting existing land uses as recorded in 1994. By examining the map, one
can see that urban land uses in the unincorporated area exhibit a random pattern with small
subdivisions dispersed along county roads separated by large areas of row crops and forest land.
Larger subdivision are located adjacent to major arterials, in particular US 17 extending North and
West of Elizabeth City. Commercial land uses extend along stretches of major arterials such as US
17. Institutional land uses are scattered throughout the county in proximity to commercial and
residential land uses.
Of the urban land uses recorded by windshield survey and depicted on the map, single family
residential uses are the most widespread. Another expanding use of land is commercial which
presently extend along major US 17. Other commercial uses are located at crossroads in
widespread areas of the county. Institutional uses were also recorded during the survey. The
majority of the institutional lands are associated with the U. S. Coast Guard Base and the Elizabeth
City airport facilities. Industrial uses that were recorded during the survey occupy larger single use
` tracts of land. Finally, multifamily land uses occupy only a few scattered parcels of land.
IPopulation Trends
Historically, the population of Pasquotank County has increased slowly. In 1980, the rate of
growth began increasing. The total population of the County exceeded 30,000 people in the mid
1980's due primarily to influx of new residents. Table One is a listing of the total population and
percentage increase per decade beginning with the 1950 US Census.
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1950
24,347
1960
25,630
5.3 %
1970
26,824
4.7%
1980
28,462
6.1 %
1990
31,298
10 %
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FIGURE TWO
EXISTING LAND USE MAP
L E G E N D
SINGLE FAMILY RESIDENTIAL
' MULTIFAMILY RESIDENTIAL
• COMMERCIAL
4 INDUSTRIAL
• INSTITUTIONAL
® RECREATIONAL
® GO HIGHLY PRODUCTIVE
_ AGRICULTURAL SOILS
PASQUOTANX COUNTY
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PLAN UPDATE (1995)
PREPARED BY:
SYNAPSEI PLANNING, INC.
445-26 State Rd 13. Suite 294
� emMl°.� 32259
DATE: 9-6-95
DATE, a-11-95
DATE: '-Q1.dw
FILE NAME: PA501.tlwg

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County is entering a period of increased population growth. The rate of population
Pasquotank C y g pe pop gr p p
growth is presently over one percent annually. In 1990 there were 14,694 males and 16,604
females in Pasquotank County. Since 1990 the population of Pasquotank County has increased to
32,820 (1.2% per annum) as of July, 1994 according to the North Carolina Office of State
Pasquotank
Planning. Within the Albemarle Region, Dare County is the only county to exceed
County in total population increase during the decade of the 1980's.
In order to prepare a land use plan, it is vital to predict the number of new residents and the
general location where new residents will choose to live. The State of North Carolina projects
population for Pasquotank County and Elizabeth City. However, these total projections are not
broken down into townships which is useful in determining where new residents will choose to
live. The authors of this plan believe that the 3,200 figure predicted by the Office of State Planning
is to conservative given recent growth trends in the County, Table Two is the projected distribution
of the future population increase by township. The cumulative total of the increase is approximately
5,000 people by the Year 2005 based on recent building permit activity. The Pasquotank County
Planning and Inspections Department records building permits on a monthly basis by township.
Since 1990 the level of building has increased in relationship to the population growth. Over the
last five years, population growth rates for the unincorporated area have exceeded 1.5% which
extended over the next ten years will mean 5,000 new residents.
Table Two • ftiected Population Growth (Total and Percentage) by Township
Mt. Hermon 1,250 25%
Newland 825 16.5%
Nixontown 1,450 29%
Providence 1,200 24%
Salem 275 5.5%
Total 5,000 100%
Overall, the most significant fact about this growth is the increasing number of people choosing to
live in unincorporated areas of the County. Since the 1980's rural areas have been developing at a
faster rate than Elizabeth City even taken into consideration annexations. More recently Elizabeth
City has not been as aggressive in annexing growth areas of the county due to limited capacity in
the facilities and services..

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Economic Factors Related to Growth
Pasquotank County's economic base has been anchored by three key elements: manufacturing, the
military and farming. The service sectors benefit from the growth in government expenditures and
employment especially at the US Coast Guard Base. The driving forces behind growth in
Pasquotank County has been employment in the three key sectors but changes are evident. Major
employers are listed in Table Three as reported by the Chamber of Commerce for the year 1994.
US Coast Guard
Albemarle Hospital
COA
Elizabeth City State
Elizabeth City Cotton Mills
Elizabeth City
Farm Fresh
DCL Furniture
Food Lion
Friskies Inc.
North Carolina Power
NCDOT
T-COM
J. W. Jones Lumber
DESCO
Hockmeyer Equipment Co.
Pell Paper Box Company
Pasquotank County
Grietzer, Inc.
Pro-Gro Products
Hoffer Flow, Inc.
Roanoke Bible College
Source: Chamber of Commerce
797 military / 600 civilian
746
135
382
95
270
50
180
116
95
50
89
61
100
58
47
38
160
32
30
50
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Employment for Pas uotank Count h risen from 10 712 in 1980 to 13 905 in 19
q Y as 90 with the
employment base becoming more service oriented. Table Four compares the percentage of
employees in the various industrial groups for 1980 and 1990. Three sectors: manufacturing,
farming and transportation/communications/public facilities sectors declined, while construction,
trade and service sectors increased
Table Four: Industry 1980 Percentage
1990 Percentage
Government
35 %
35.5 %
Trade
28 %
29.8 %
Services
12.2 %
13.3%
Manufacturing
10 %
7.2 %
Construction
5.4 %
5.9 %
Fin. / Ins./ Real Estate
3.9 %
3.9%
Farming
3 %
2.4 %
Trans./Com./Public Facilities
2.5 %
2 %
Source: Chamber of Commerce
Earned income is another economic indicator. Table Five is a listing from the Chamber of
Commerce of earned income by group showing an
increase of 137% in the decade of the 1980's.
The government sector's earnings were the largest
single grouping in 1980 and 1990 with total
earnings more than twice the service sector (the second largest category).
Table Five: Industry 1980
Earnings
1990 Earningsg
Government
$74,012,000
$106,559,000
Trade
$33,772,000
$41,622,000
Services
$33,658,000
$45,549,000
Manufacturing
$20,567,000
$20,349,000
Construction
$13,525,000
$15,491,000
Fin. / Ins. / Real Estate
$ 9,140,000
$11,924,000
Farming
$ 1,487,000
$4,557,000
Transportation / Com. / Facilities
$ 8,709,000
$9,636,000
Overall, the economy of Pasquotank is very stable due in large part to healthy employment in the
governmental, wholesale/retail trades and manufacturing sectors. Unemployment rates, retail sales,
personal income, salaries and wages, land and capital output are other indicators of economic
strength which are addressed in Appendix Three.

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Housing
The housing market in Pasquotank County has remained stable over the decade with a fall in
vacancy rates. Pasquotank County has a limited variety of housing types because most of the
multi -family housing is located in Elizabeth City and a large portion of the renter occupied housing
is located in the City. Table Six presents housing totals from the 1980 and 1990 Census.
Importantly, the total number of housing units increased 18 percent in the decade of the 1980's.
Table Six: Housing Characteristics 1980 1990
Total Units 10,457 12,298
Vacancy Units 734 914
Vacancy Rate 7.2 % 6.8 %
Source: US Census
Public Facilities
Pasquotank County government provides potable water, solid waste disposal, law enforcement,
fire and emergency services. The County is also responsible for new school construction. Besides
the County there are three other water supply systems; namely, Elizabeth City, an Inter -County
system and South Mills. Table Seven is a listing of the average, peak and total capacities for each
of the systems.
Table Coven • Potable Water Supply and Usage in Million Gallons per day MD)
ISuppliers Average Peak Plant Capaci
County
1.1
1.6
2.4
Elizabeth City
2.03
2.5
5.0
Inter -County
0.08
0.11
0.06
South Mills
0.28
0.35
0.432
Source: Pasquotank County
Of particular interest is the location of water lines. Figure Three is a map of the potable water
distribution network operated by the County and South Mills. It shows the various sizes of the
water lines ( 6 inch, 8 inch and 10 inch) with the main lines being 10 inch lines. Water lines
extended by individuals and subdivision developers that are less the 6 inches are not shown.
jAverage household usage is 233 gallons per day which is within normal ranges.
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Wastewater treatment is handled on an individual basis within the County via septic tanks and
package plants. The City's system is presently operating at its plant capacity of 2.5 MGD. The
County has recently constructed a sewage waste treatment plant to serve the new industrial park on
US 17 North. However, there are no plans to expand the plant to serve the residential and
commercial developments along the US 17 North growth corridor. The only central sewage system
in the County is operated by Elizabeth City and in some areas sewer lines extend into portions of
the extraterritorial jurisdiction (ETn.
Services provided by the County are operating within their capacity. The Pasquotank County
Sheriffs Department has twenty full time officers. Fire protection and emergency services are
handled in the County by a volunteer force of over 160 people in five separate facilities. The ISO
fire rating for the County is 9-6 except for Salem Township which is 9. There are interlocal
agreements for City and County fire and rescue response.
School enrollment has begun to overload many of the schools in the County. Several key
expenditures are being planned by the County to increase the level of service school construction.
There are 6,180 students in the school system. School enrollment has increased with the overall
increase in the County population. The school construction portion of the County budget is the
largest capital item in the annual budget. On February 2, 1995, a $24 million expansion program
was passed by the County Commission for additions and renovations to elementary schools and to
construct a second middle school. This program is in response to enrollment exceeding the capacity
at many of the schools. Table Eight on the following page is a listing of enrollment capacity by
school for 1994-95.
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PASQ V ®TTyy 1 LTA91V LUPDATE
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PREPnREDSYNAPSEI PLANNING, INC,"DATE.
44�26 Stote RE 32 Sulte 2
44o 26 St. R }2259
9-8-95
DATE: 8-11-95
DATE: 3-30-95
V L 1 1 �J 1
FILE NAME:
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Table Eight: School Enrollment 1994-95 (Capacity)
• Central Elementary
420
(120%)
• P. W. Moore Elementary
503
(113%)
• Northside Elementary
626
(119%)
• Pasquotank Elementary
512
(93%)
• I C. Sawyer (K-3)
370
(99%)
• Sheep -Harney Elementary
622
(108%)
• Weeksville Elementary
428
(119%)
• H.L. Trigg Center (4-6)
261
(121 %)
• Elizabeth City Middle School (7-8)
975
(108%)
• Northeastern High School
1658
(111%)
Source: Pasquotank County School Board
An alternative for school construction to bonding programs using general fund revenues is being
applied in states such as Florida. These states have enacted legislation that promotes a revenue
generating device termed impact fees. Under such a fee arrangement new households are required
to contribute directly to offset the capital needs of their children. The impact fee is calculated to pay
for the increment of capital expenditure. The fee for a new home would be collected along with the
building permit. The funds are used for construction of new classrooms in the district where
growth is creating the demand for more classrooms.
All county roadways are operating at acceptable levels of service for the average daily traffic
situations. Peak hour congestion is being experienced along US 17 within Elizabeth City. The
North Carolina Department of Transportation is responsible for road maintenance and construction.
Their traffic forecasting section has determined that the general road system is adequate to handle
projected traffic volumes for the next ten years at state projected rates of growth. The NCDOT has
announced plans to relieve congestion in Elizabeth City by constructing a bypass. The project is in
the corridor selection stage and the corridor has been selected as shown on Figure Four. The next
step is the preparation of an environmental impact statement.

101
The future demand for public facilities and services will come in growth areas.
Cooperative agreements with Elizabeth City have kept service levels high in the extraterritorial
jurisdictional areas (ETJ) where urban development was concentrated in the past. However,
growth, subdivision development in particular is spreading beyond the ETJ. Two large
subdivisions (Mt. Hermon Village and Pear Tree Place) are sprawling over farm lands far removed
from developed areas. The growth trends of the 90's are much different. More expansive
developments are occurring in areas removed from central urbanized areas surrounding Elizabeth
City. Such trends are much more costly for Pasquotank County government. More of the burden is
falling on the County to extend public facilities (water lines) and provide services (police, fire and
emergency medical).
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HAZARD MITIGATION
The purpose of this section is to further the coordination of land use planning and regulation with
emergency operational planning. A major need is to make better, more informed decisions
concerning development in areas subject to flooding. The natural hazards most likely to cause
flooding include hurricanes and northeasters. The objective is to reduce the risk to life and
property. The watershed/water supply management plan prepared in 1993 sets out means to
coordinate land use planning and emergency operational planning within a small but vital area.
The watershed plan address long term issues while the emergency operational plan is very
immediate in focus. An immediate problem addressed in the emergency operational plan is spills of
hazardous chemicals and other materials including radioactive wastes. These types of events are
also related to the location of land uses which generate, store or transport hazardous materials.
The County's Office of Emergency Management in accordance with the Pasquotank County
Emergency Operations Plan defines the method and means of response in fulfilling the
responsibilities stipulated in North Carolina General Statutes, Chapter 166. The Emergency
Operations Plan addresses:
Direction and Control
Resource Management
Law Enforcement
Emergency Medical
Damage Recovery
Restoration of Essential Services
Vital Facilities
Public Notification (warning)
Evacuation
Fire/Hazardous Materials
Shelter Care
The Pasquotank County Emergency Operations Plan is for both Pasquotank and Camden Counties
in response to a pending or actual disaster. There is a four phase approach for the management of
disasters. The four phases are mitigation, preparedness, response and recovery. Mitigation is one
of the intents of the National Flood Insurance Program which requires the adoption of flood plain
regulations for land uses. Pasquotank County has chosen to participate in this program and has
recently amended its flood plain regulations consistent with the federal regulations. Recovery from
a storm event is augmented by land use planning which anticipates the aftermath of a catastrophe
such as additional space in the County landfill to accommodate storm debris. Understanding the
potential magnitude of the hurricane threat is vital to land use and disaster mitigation planning. The
disaster potential is a function of several factors including magnitude of the risk, flood potential
and assessment of the existing development at risk in the County.

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Magnitude of Risk
Gales and hurricane force winds are extremely destructive is low lying, exposed locations. Often
the most dangerous, life threatening situation involves mobile homes which are not tied down.
High winds are associated with hurricanes and tornadoes. Tornadoes occurring in clusters can
result in significant destruction and can be associated with hurricanes. This discussion will center
on hurricanes which can reek the most havoc. Hurricanes are classified by the Saffir/Simpson
Hurricane Scale.
'
ateggry Storm Pressure(inches) Winds (mph) Damage
1 28.94 74-96 Minimal
'
2 28.5 to 28.91 96-110 Moderate
3 27.91 to 28.47 111-130 Extensive
4 27.17 to 27.88 131-155 Extreme
5 < 27.17 > 135 Catastrophic
Because of Pasquotank County's location, a hurricane approaching from South to East will expose
much of the county to winds that would damage buildings, overturn mobile homes, down power
' lines and trees as well as destroy crops. The most dangerous situation would arise when the eye of
a category 5 hurricane passes over the county from the South. Life threatening situations would
' arise if people do not evacuate their homes to higher ground. Because the roads would be
congested with automobile traffic, early warning and evacuation would necessary.
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Flood Potential
Flooding will be extensive in low lying areas along Albemarle Sound as well as the Pasquotank
and Little Rivers during any hurricane event. The extent of flooding associated with the category of
hurricane has been predicted by the Federal Emergency Management Agency in the Eastern North
Carolina Hurricane Evacuation Study. Figure Five is a depiction of the storm surge inundation
areas in Pasquotank County excerpted from this Study prepared by the US Army Corps of
Engineers.
1

FIGURE FIVE
STORM SURGE INUNDATION AREAS MAP
L E G E N D
Category 1 and 2 storms
and Category 3, 4 and 5 storms
PASQUOTANK COUNTY LAND
PLAN UPDATE (1995)
USE
PREPARED9V.
SYNAPSEI PLANNING, INC.
440 St•t• Rd 13. SNt• 294
Jock•anMI., FL 32259
DATE:
9-8-95
DATE_
8-11-95
DATE:
3-30-95
FILE NAME:
PASal.dwg

21
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Other low lying areas besides the continuous zones shown on the Figure Five are subject to
flooding. The Pasquotank County Planning Department has copies of the Flood Insurance rate
maps showing the areas subject to flooding. Construction in these areas is regulated by the County
in order to minimize the damages from wind and water. The most common requirement is the
raising of floor levels and specific regulations on the actual construction of buildings.
Development at Risk
While Pasquotank County's inland location provides a measure of protection from the bulldozer
type storm surges experienced on the Outer Banks, areas along the Albemarle shoreline in Salem
Township would still be inundated. The topography of this area of Pasquotank County is relatively
flat. Because there is very little vertical topographic relief, a rise in Albemarle Sound's water level
of only a few feet will flood large areas. Fortunately the predominant land areas are mainly
agricultural operations and natural areas. Presently less than five percent of the developed area in
the county is at risk. The most extensive property damages would result from the storm surge
inundating the developing subdivisions of Glen Cove, Brickhouse Point, Bateman Estates and
Newbegun subdivision. The areas of the greatest risk includes the community of Weeksville.
The best flood preventative measures are guidelines that direct development to locations away from
the most exposed shorelines along Albemarle Sound and reduce the density of development
allowed in the flood surge inundation areas. The county needs to regulate the location and the
intensity of development in areas along Albemarle Sound which are exposed directly to storm
surges. The majority of the developments existing in the storm surge inundation areas in the county
are not zoned with the exception of the Knobbs Creek drainage basin. Recent storm disasters in
Miami, Florida; Charleston, South Carolina and along the Mississippi River have demonstrated the
need to avoid allowing incompatible land uses and unsafe structures to be constructed. Options
need to be investigated that would give the county the additional authority to regulate the location of
building in these areas of greatest risk.
One promising means is the amendment of the zoning ordinance to include an open use district for
storm surge inundation areas. The open use district would allow urban land uses which meet
performance standards for building sites and construction. The performance standards would
encourage innovation rather than the very rigid yard and building setbacks. A major area of
coordination between land use planning and emergency operational planning is the assessment of
building codes and practices.
1

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Paved roads, buildings and other improvements associated with urban development cause changes
in the hydroperiod of streams and rivers. Impervious material such as concrete, asphalt and roofs
do not allow rain water to percolate into the ground. Consequently, areas downstream from new
development experience higher flood levels if drainage structures are not designed to detain runoff.
Development in the flood zones needs to have regulatory measures that encourage the redesign of
development which minimizes impervious area and positive drainage.
Evacuation and Post Disaster Recovery Plans
US 17 through Pasquotank County is the principal evacuation route residents and tourists will
travel to escape a severe hurricane. Therefore its capacity as measured by the level of service must
be safeguarded so that in the event of an emergency, the roadway will be able to handle an orderly
and coordinated evacuation. Traffic control points identified in the plan will be manned and
evacuation shelters checked prior to an evacuation order being announced. Section M of the
Pasquotank County Emergency Operations Plan contains a detailed outline of the steps, both short
term and long term, to be taken in the aftermath of a hurricane or other major emergency. Recovery
operations will be coordinated form the Emergency Operations Center. Public assistance damage
survey teams will handle financial assistance requests. Post disaster recovery will be handled by
jointly developed (Elizabeth City, Camden and Pasquotank County) standard operating procedures
for essential services. The Control Group organized as a part of the emergency operations planning
effort for handling post disaster operations in both the counties is composed of six members
including: the county managers and commission chairmen of both counties, the mayor and city
manager of Elizabeth City, and the emergency management coordinator. The roles of each of these
members as well as the other key personnel are listed on pages BP 9 through 23 of the Operations
Plan. The post -disaster control group's responsibilities that has been delegated to the Director of
Planning and Inspections include: directing the repair, replacement or relocation of infrastructure,
establishing moratoriums, prioritizing permit requests, and permitting building repairs. The
permitting of construction will be handled consistent with existing regulations and procedures.
Longer hours of operation and part-time help will be necessary to handle the workload.
The aftermath of a storm taxes government in other ways. At present, the County is seeking a
permit to construct a land clearing and inert debris landfill. The projections used in determining the
area needed for this facility accommodate the tremendous amount of storm debris and construction
waste that will be generated in the aftermath of a hurricane. While the exact amount can not be
accurately predicted, the landfill should include additional area for disposing storm debris.
Household garbage would continue to be transferred to Bertie County.

23
ISSUES AND POLICIES
This section is a description of current land use regulations within unincorporated Pasquotank
County. Also included in this section is a discussion of critical issues and policy recommendations
for future land development regulation.
Current Land Use Regulation
' Pasquotank County's predominate land use is agricultural. Only two percent of the County is
urban. Consequently, much of the land planning has been in support of the farming interests. The
' regulation of urban land uses has evolved slowly. The County has had a Planning and Inspections
Department for less than a decade during which the staff has grown in response to the passage of
' ordinances regulating subdivisions and other specific types of land development. Zoning which
regulates the use of land has been enacted for a portion of the county. Figure Six depicts the zoned
areas of the County as well as the watershed management areas. In addition, the County has a
flood plain management ordinance and subdivision regulations. Manufactured home communities
are regulated. Also, the County has established a safe housing requirement and administers this
' provision through its minimum housing ordinance. The following table lists the ordinances which
are currently being administered by the Planning and Inspections Department.
'Ordinanceyr Date A
' Minimum Housing Ordinance Countywide 1989
Subdivision Regulations Countywide 1966
'
Address Display Ordinance
Countywide
Countywide
1990
1980
Manufactured Home/Rental Community
Statutory Vested Rights
Countywide
1991
'
Zoning Ordinance
Urbanizing Areas
1992
Allowable Manufactured Home Ordinance
Countywide
1992
Abandoned and Junk Vehicles
Countywide
1990
Automobile Graveyards and Junk Yards
County -wide
1987
Watershed Management Plan /
Pasquotank River
1994
Water Supply Ordinance
Watershed
Flood Damage Prevention
Countywide
1987
The 1987 Land Use Plan Update did recommend adoption of a zoning ordinance.
The Plan also
'
recommended preservation of the Dismal Swamp but the conversion of the Dismal Swamp to
1]

24
1
' agriculture continued until recently. With the loss of the natural buffering that natural areas afford,
the County needs to control non -point water pollution associated with land clearing during
development and urban runoff after development. Besides regulations there have been several
planning studies that were completed during the past eight years since the last land use plan was
adopted The studies that have had an affect on land use decisions include; Performance of, and
Lined Trench Se to is Systems on Wet. Clayey Soils in Northeastern North Carolina. 1993,
Albemarle Commission as well as Water and Wastewater Facilities Development Report. 1993,
Elizabeth City Department of Public Works. Appendix Four is a detailed assessment of the policy
recommendations in the 1987 Land Use Plan Update and their affect on county decision making.
Issue Identification
During the preparation of this plan the following list of issues were determined to be the most
critical over the next ten years. These problems or opportunities were identified by members of the
community from both the public and private sector. The issues then served as a focus of the policy
formulation phase of the planning effort.
• Safeguarding industrial park sites from encroachment by incompatible land uses
• Making farmland productivity a consideration in land use and zoning decisions
• Adopting a five year capital improvements program
• Controlling runoff (quality and quantity) from new development
• Continuing support for CDBG projects
• Safeguarding public waterfront access from encroachment by non -water dependent land uses
• Discouraging urban sprawl by zoning to protect highway capacity
• Adopting access controls in cooperation with the NCDOT
• More effective storm hazard mitigation and post disaster planning
• Safeguarding historical and archaeological treasures
• Determining the threat posed by hazardous wastes being transported through the County on its
roadways and waterways
• Designating environmentally fragile areas as conservation zones.
• Formalizing the cooperation with the Elizabeth City in regulating land uses within the flight
approaches to the Coast Guard Air Station.
1 • Supporting state and federal programs that protect the environment or enhance the quality
of life.
1

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1
11
1
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1
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Policies and Procedures
Pasquotank County will remain predominantly a rural county beyond Year 2005. Urbanizing areas
in the County are for the most part zoned. These areas are depicted on Figure Six. However, the
balance of the unincorporated areas of Pasquotank County will remain natural or under cultivation.
The policy statements included in this section recognized the need to set measurable guidelines for
development and the fact that farmland does not need to have setbacks for yards, minimum lot
coverage and prescribed uses. The Land Use Planning Committee who devised these policies
considered more sophisticated regulations such as those used in urban areas of North Carolina.
However, they chose a more flexible approach designed to target specific areas where urban
development pressures are greatest. This plan does recommend increased regulation in areas which
have a high probability of storm damage. Also, this plan emphasizes the need for residents to be
made aware of developments proposed for their neighborhood. Constructive dialogue leading to
positive changes in development plans is an approach which will be encouraged A modest change
in the decision -making process in the County is recommended to encourage more public
participation in the review of projects by the Planning Board. Finally, consistency with the policies
in this plan will serve as the objective yardstick to analyze and make decisions related to proposed
new developments.
The compilation of information contained in this plan applied to decision making will result in
better development and growth management. The policies acknowledge the interwoven nature of
local, state and federal regulation. Generally, policies address:
Intrinsic suitability of land for development
Stormwater runoff and potable water supply
Fragile lands and local resource protection
Manmade hazards and hazardous waste
Storm hazard mitigation and evacuation
Cultural and historical resource protection
Conserving productive agricultural and silviculture
Urban development impacts and control of runoff
Land development, redevelopment and public participation
Recognizing the value of estuaries
Accessibility to waterfront
Energy facility siting
Capital improvements programming
Controlling highway access
Safeguarding industrial sites
Adequate public facilities and services
Support of federal and state programs

..................... .
FIGURE SIX
AREAS WITH LAND DEVELOPMENT REGULATIONS MAP
;< LEGEND
Zoning Jurisdiction
t = U. Watershed Regulations
Overlapping Jurisdiction
.. ........
TO 117NSHIP AIAP w
Lrrw
Arm
IfBSJURld SOUND
-
. ..... .. ... ...... .. .. .... -. - .... ... ... ..
.................. .. .. ..... ..
.. .. ....
....
P A S Q U O TANK COUNTY LAND USE
PREPARED SYNAPSEI PLANNING, INC.
95
DATE:
8-11
PLAN UPDATE
(1995)
4 ckson State Rd 2 Suite 294
Jacksonville, FL 32259
DATE:
3-30-95
FILE NAME:
PASQt.dwg

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1
IIssue: Land Suitability and Natural Constraints on Development
The scope and importance of this issue is summarized as follows. Most property in Pasquotank
County has significant soil limitations for septic tank drainfields due to the high clay content of the
soil and the high water table. Also, approximately 40 percent of the land area in the County lies
within some sort of flood plain designation based on maps prepared by FEMA.
Conservation Policies:
• It is the policy of Pasquotank County government to require District Health Department septic
tank permit prior to issuing a building permit.
• It is the policy of Pasquotank County government to ensure that new development is protected
from flood hazard through the administration of the county flood plain ordinance and continued
participation in the National Flood Insurance Program.
• It is the policy of Pasquotank County government to use soil information in determining the
allowable density and intensity of development in areas where the soils have severe limitations
for septic tank drainf fields.
Issue: Stormwater Runoff and Potable Water Supply
Potable water supplies need to be conserved in order to assure the availability for future
populations. At present potable water is obtained from the groundwater aquifer. Also water is
withdrawn from the Pasquotank River in case of emergencies. While Elizabeth City which is the
largest supplier has not used their emergency intake located on the Pasquotank River in the past
three years, state law required the passage of a watershed/water supply management plan and
ordinance for portions of Providence and Newland Townships which are within the Pasquotank
River watershed. This ordinance enacted by the county also controls stormwater runoff associated
with agriculture as well as dense residential and commercial development.
Conservation Policy:
• It is the policy of Pasquotank County government to enforce the provisions of the
Watershed/Water Supply Ordinance within the Pasquotank River watershed and to encourage
the use of best management practices for agriculture and land development.

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IIssue: Fragile Lands and Localized Resource Protection
Wetlands cover a significant portion of Pasquotank County's land area and are habitat for
important marine and wildlife species. Many of the recreational and commercially important fish
and shellfish species spend a portion of their life cycle in the tributaries of the Little and
Pasquotank Rivers with the headwaters being the Dismal Swamp. The harvesting of these fish and
shellfish add to the local economies of the Albemarle region. Activities associated with the
development of land affect adjacent rivers and wetlands directly and indirectly often polluting the
water. It is important to minimize the direct destruction of the remaining area of the Dismal Swamp
and indirect pollution of all the county's wetlands found to be vital to the natural ecosystem
IConservation Policies:
• It is the policy of Pasquotank County government to conserve the remaining portion of the
Dismal Swamp lying within the County by supporting state and federal efforts to preserve the
swamp's unique ecological functions of aquifer recharge and wildlife habitat.
interests
• It is the policy of Pasquotank County government to comment concerning the overall
of county residents on CAMA dredge and fill permits for projects which would be detrimental
to rivers and wetlands lying within or adjacent to unincorporated portions of the County.
• It is the policy of Pasquotank County government to support CAMA restriction of development
on Albemarle Sound Islands as well as dredging of marshlands for bulkhead installation along
Albemarle Sound.
Issue: Manmade Hazards and Hazardous Waste Management
There are significant manmade hazards to the cultural and natural environment. The most alarming
are the threats. to life and property posed by hazardous waste spills. Hazardous waste spills are
As be
associated with the transportation and storage of petrochemicals. the county grows there will
more storage facilities and there location needs to be regulated. The approach zones for flight
operations at the US Coast Guard Air Station are in the path of sprawling development located in
the County. Elizabeth City has a measure of extraterritorial control via an ACUZ type zoning
ii
ordinance provision for permitting the location of compatible land uses.
1

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Hazard Mitigation Policies:
• It is the policy of Pasquotank County government to continue cooperation with Elizabeth City
for the protection of the, f light approaches to the US Coast Guard Air Station. An interlocal
agreement will be sought with the City to formalize this process by January 1997.
• It is the policy of Pasquotank County government to inspect and regulate the storage of
hazardous wastes at sites in the county. Permits for land uses which will involve storage of
petrochemicals proposed adjacent to waterways and wetlands shall not be permitted without
minimizing the effects of potential spills.
Issue: Storm Hazard Mitigation and Evacuation
Pasquotank County is a low lying area with the potential for significant storm damage. Hazard
mitigation are actions which would reduce the impact of any disaster including evacuation and
cleanup. Pasquotank County has prepared mitigation plans through their office of the Emergency
Management Coordination on a very modest budget with an ever increasing workload.
Storm Hazard Mitigation Policies:
• It is the policy of Pasquotank County government to support the Emergency Management
Agency via funding, equipment and facilities including the preparation of post disaster recovery
plans and coordination with other county, state and federal agencies in emergency events.
• It is the policy of Pasquotank County government to reconstruct failed water lines within the
County service area and aid reconstruction of water lines in other service areas on a critical
need basis.
• It is the policy of Pasquotank County government to allow small package treatment systems
that accommodate residential, commercial and industrial development in locations removed
from the most vulnerable storm inundation areas.
• It is the policy of Pasquotank County government to continue participation in the National
Flood Insurance Program and to guide land development away from high hazard areas.
I
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IIssue: Urban Development Impacts
Unplanned and indiscriminate development can threaten the basic fabric of a community. This type
of development undermines the ability of the natural environment to support man's activities.
Urban sprawl indiscriminately gobbles up productive farm land and results in overloading of
public facilities. Pasquotank County is not currently extending water lines into undeveloped areas
and has no immediate plans to do so. Within the county water system service area, new
subdivisions must be connected at the expense of the developer including any costs for upgrading
the service to meet standards.
IResource Protection Policy:
• It is the policy of Pasquotank County government to direct urban development into areas
intrinsically suitable for development via the extension of services and approval of future
capital projects.
• It is the policy of Pasquotank County to advertise the agendas of the Planning Board meetings.
Issue: Cultural and Historical Resource Protection
The scope and importance of the colonial period in the county is significant. The North Carolina
Division of Archives inventoried sites and structures statewide. They have identified several of the
sites which are located in unincorporated Pasquotank County. These treasures need safeguarding
from being destroyed by ill -planned development. Knowledge concerning the importance of these
features or structures will help mitigate such future destruction if this knowledge is readily
available.
Resource Protection Policy:
• It is the policy of Pasquotank County government to encourage the preservation of the
historically significant structures and sites by serving as a clearinghouse for information. The
county planning department will maintain a listing and locational index of these sites.
• It is the policy of Pasquotank County government to continue to levy an occupancy tax for the
purpose of generating funds to sponsor tourist oriented events and activities.
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Issue: Accessibility while Protecting Public Trust Waters
There are very few non -water dependent uses in public trust waters of Pasquotank County and no
floating home developments at present along Albemarle Sound. Dry storage of boats has been
occurring mostly in Elizabeth City. Within unincorporated areas of the County there are small
Iisolated marinas that pose only minimal threats to surface waters.
Resource Protection Policy:
• It is the policy of Pasquotank County government to ensure water dependent development
activities such as marinas including upland marinas occur in compliance with state and federal
regulations and to discourage non -water dependent uses especially floating home developments
in public trust waters.
IIssue: Productive Agricultural and Silviculture Lands
The scope and importance of this issue is that future development, unless directed away from
productive agricultural and silviculture lands could threaten the continuation of family farms which
are the basis for the agricultural economy of the County. The basic need is to conserve Pasquotank
County's productive lands thereby promoting agriculture and silviculture as renewable resources.
Resource Protection Policy:
• It is the policy of Pasquotank County government to discourage the conversion of active,
productive farm land and forest land to urban development.
Issue: Industrial and Economic Development
The County is constructing an industrial park in Providence Township. Other land within the
unincorporated limits of the County may be suitable for industrial development where sufficient
potable water and adequate sewage treatment can be provided or extended to commercial and
industrial developments. These sites need safeguarding from being converted to other uses by
either zoning or project/subdivision review procedures. An inventory of theses site is also needed
to be circulated.

32
Economic Development Policies:
• It is the policy of Pasquotank County government to safeguard areas suitable for industrial
development from encroachment by competing land uses.
• It is the policy of Pasquotank County government to encourage industries to locate in the
Pasquotank County Commerce Park where centralized facilities are located.
• It is the policy of Pasquotank County government to continue support of the Elizabeth City l
Pasquotank County Industrial Development Authority.
Issue: Adequate Levels of Service
The county provides potable water, solid waste disposal, funds the construction of schools and
other capital improvements that service existing and new development. County residents are also
blessed with a quality of life that includes a number of outdoor recreational opportunities. These
same opportunities attract tourist and weekend visitors from other parts of North Carolina and
Virginia. Growth demands can overtax county government's ability to provide services if allowed
to occur without consideration for the cost-effectiveness of providing services.
ICommunity Development Policies:
• It is the policy of Pasquotank County government to provide adequate levels of service for
public facilities and services in the most efficient manner.
• It is the policy of Pasquotank County government to conserve the natural and cultural resources
of value for recreational enjoyment and social systems support of County residents and
tourists.
Issue: Land Development and Public Participation
The Board of County Commissioners adopted zoning for urbanizing portions of the county. The
potential development of other areas in the County may warrant overseeing the density and
intensity of land development with more flexible regulations. Other alternatives need to be
instituted which allow for the involvement of area residents in the review and approval of
development proposals through a preliminary project review procedure which encourages the
mitigation of offsite impacts.

1
33
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Community Development Policies:
• It is the policy of Pasquotank County government to adopt this land use plan update including
the future land classification map and follow the adopted plan.
It is the policy of Pasquotank County government to establish a preliminary project review
procedure which requires that development proposed in the unincorporated area of the county
be consistent with this land use plan.
• It is the policy of Pasquotank County government to conduct an annual review of the areas
presently zoned and the zoning regulations to assure that urban development that is occurring is
compatible with the area and is supportable by county services.
Issue: Redevelopment
A number of low-income County residents live in areas which have substandard housing and
community services. While these pockets of poverty are eligible for federal and state programs, the
County is pursuing grants to pave roads and improve drainage that will spur redevelopment. There
are also actions which the county can take besides these programs that cleanup very distressed
areas. The most effective actions are requiring safe and secure construction which will better
withstand natural hazards. A review of building codes and construction practices is a first step.
Community Development Policies:
• It is the policy of Pasquotank County government to enforce the North Carolina Building
Codes and conduct periodic reviews of the regulations and construction practices.
• It is the policy of Pasquotank County government to pursue Community Development Block
Grants as well as other economic and community revitalization initiatives to redevelop specific
target areas in the County.
Issue: Support of State and Federal Programs
The County is supported by a number of federal and state programs, which contribute financial and
technical assistance for a variety of county initiatives. Some of the programs are mandatory while
participation in other programs has been initiated voluntarily. The more visible programs are the
maintenance and improvement of state and federal highways and agricultural extension services.

34
Community Development Policy:
• It is the policy of Pasquotank County government to support state and federal programs which
lead to improvements of the quality of life of County residents and lessen the burdens of
county government such as: highway construction and maintenance, channel maintenance,
aviation enhancement, environmental protection, education, health and human services.
Issue: Energy Facility Siting
The siting of energy development of support facilities is very remote according to past studies.
Hazardous chemical wastes are of concern and there are no records of the amount and nature of
nuclear and chemical hazardous wastes transported along the county's highways and waterways.
The Emergency Management office is seeking funding necessary to conduct a transportation study
to determine the potential threat from hazardous wastes being transmitted through the county.
1 Community Development Policy:
• It is the policy of Pasquotank County government to support the Emergency Management
Agency via funding, equipment and facilities.
Issue: Fiscal/Capital Improvements Programming
Pasquotank County is facing new and greater demands which warrant sound fiscal management
and capital improvements programming. Economic development will be halted if the County is
unable to fund police, fire and emergency services, construct new schools, extend water lines, and
provide for solid waste disposal.
Community Development Policies:
• It is the policy of Pasquotank County government to program capital projects on a five year
basis.
• It is the policy of Pasquotank County government to undertake a review of all development
fees to determine if the fees being charged offset the cost to the county in time and materials.

1
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Issue: Waterfront and Estuarine Access
There are certain privately owned properties which could be developed for recreation and water
access which the County may obtain using CAMA Coastal and Estuarine Beach Access Program
funds. Future populations will demand more publicly owned water access.
Community Development Policy:
• It is the policy of Pasquotank County government to acquire rights of way, fee simple title
and/or easements to allow public access along the navigable waterways.
Issue: Safeguarding Highways by Controlling Access
Widening roadways does not solve the root problem of roadway capacity deterioration. As
highway frontage is developed the proliferation of driveways reduces the level of service. US 17 is
a vital economic artery and the evacuation route in the event of a disaster which needs to have strict
access management guidelines.
Community Development Policies:
• It is the policy of Pasquotank County government to safeguard the county's highways from
obstructions to sight and turning movements that constitute safety hazards as well as work
closely with the North Carolina Department of Transportation in the programming of road
improvements with sufficient rights of way and pavement width.
1
• It is the policy of Pasquotank County government to prepare an access management regulation
with the cooperation of the N. C. Department of Transportation to regulate the number and
location of driveway openings along major county roadways designated as evacuation routes.
1

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1
FUTURE LAND USE AND GROWTH MANAGEMENT
The urban development activity that will occur in Pasquotank County over the next ten years is the
main focus of this plan. This section identifies the intensity of the future urban development and
classifies this development in categories stipulated according to administrative rules promulgated
under the North Carolina Coastal Zone Management Act. There are seven different land
classifications organized by intensity and density of urban development. The Future Land
Classification Map (Figure Seven) depicts the location of these seven land classifications within the
County. This map together with a growth management program for Pasquotank County
government in the form of action steps and key milestones resulted from the two year planning
effort. Annual monitoring is also needed to measure the progress towards accomplishing the plan.
Future Land Use Classification
The density and intensity of land uses are influenced by the provision of services. More intensive
urban land uses (commercial, industrial and suburban residential) need higher levels of service.
County government directs growth by facility extension policies and the actual construction of
facilities which are needed to support urbanized or urbanizing areas. Classifying the density and
intensity of land use for areas within the County has the effect of setting priorities for public
expenditures. It is the first step towards capital improvements programming. Conversely, changes
in the pattern and intensity of land uses which result when an area is growing also create additional
demands on county government to provide services to urban land uses.
Urban areas are classified according to different density and intensity of land uses in the land
classification scheme used in this plan. The categories are developed, limited transitional,
community, rural with service, rural and conservation. Urban or developed areas have
subdivisions with densities over three (3) dwelling units per acre and are served by urban services
supplied by both the county and Elizabeth City. Urbanizing areas which are undergoing a change
from rural to urban are classified limited transitional having some urban services and
development is occurring at average densities of less than three (3) dwelling units per acre.
1

m m m m m m-= m w w w w m m m w m m
FIGURE SEVEN
:-- r::•:
FUTURE
LANK CLASSIFICATION MAP
;i:»i;: _2aixi:.:
.:•:..::?ii:>•. i
L E G E N D
•
i.C;;'r:{{: -
:fii:;
DEVELOPED
LIMITED TRANSITIONAL
:•
You
_ ,�a;.
COMMUNITY
"ti 3
ut}
4i
RURAL WITH SERVICE
ratio'
"•r.;....,{.i?r:�
u r
I
RURAL
s'n k ? :firm'
}'
Q CONSERVATION
riri;�t� -
� -
<?� ^ir •:r }p,:{:
`' ELIZABETH-CITY'S JURISDICTION
rsysuutre.aRarr .. - V ✓ � _. P
PASQUOTANX COUNTY
TOWNSHIP MAP
taus ava I ::
This mop is a generaked representation --• '�'�•'ii' r'
imur .saes
and subject to interpretation due to the scale. -
C j���j COUNTY
� �T �1�j LAND
�T �j PREPARED BY: DATE: 9-6-95
PAS Q U® TANK O U 1 V j j LA D USE SYNAPSE! PLANNING, INC. DgTE: 11-11-95
03-26 State Rd 13, Suite 294
PLAN UPDATE (1995) ackaonwite.F 32259 DATE: S-30-95
FILE NAME: PASQ1.dwq

38
1
The Future Land Use Map depicts a pattern of intense urban development (Developed and Limited
Transitional) surrounding Elizabeth City as the urban core. The most intensely developed
category of land use lies immediately adjacent to the City's ETJ boundary. The two largest areas
development
are Hickory Acres and Pine Lakes. The policies in this plan support the continued of
these urbanizing areas if central sewage can be extended by the Elizabeth City.
The limited transitional category is distinguished in the limited services that are provided to the
development. The major concentrations of limited transition are: North of Newbegun Creek along
the Pasquotank River, Glen Cove southeast of Little Fatty Creek, along Little River between
Symonds Creek and Nixontown, South of Foreman Bundy Road, at J. Bells Acres, at Crosswinds
adjacent to US Coast Guard Base, and the new industrial park off US 17 North. A smaller isolated
area surrounds the industrial complex in Newbegun. This area is the site of major industries which
are some of the largest employers in the county. Limited transitional stretches along US 17 to the
Northwest and Southwest of Elizabeth City. More urban development is projected to occur
between the Pasquotank River and State Road 34 stretching from the US Coast Guard Base to
Newbegun Creek. The remainder of the county will have urbanizing pockets of development (such
as: Mt. Hermon Place, Providence Acres and Pear Tree Place).
Three of the remaining classifications are associated with less intense mainly rural land uses. The
three classification are listed below according to the typical density of residential development
occurring in the various categories.
Community areas have clusters of development in agricultural areas with densities approximately
two dwelling units per acre. The community category is the classification of development where
a mix of land uses, i.e. residential and commercial occurs within a small geographic area which is
most often surrounding crossroads in Pasquotank County. The community areas are scattered
around the county including: Morgan's Corner, Five Corner's, the crossroads of Peartree and
Florida Roads in Weeksville, Hobbs Landing, and Pine Shores on Big Fatty Creek.
Rural with Services areas are mainly agricultural areas which have central water with mainly
farm residences at densities less than one dwelling unit per acre. The second largest designation in
area coverage is rural with services. This land use category extends throughout Nixontown
and Salem townships as well as certain areas of Mt. Hermon, Providence and Newland
Townships. Central water is available in these areas and is supplied by Pasquotank County or
South Mills Water Systems in most of these rural with services areas.

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Rural areas are predominately agricultural and silviculture areas lacking central water having very
low density and dispersed farm residences. The rural category covers the largest amount of
Pasquotank County. The land uses included in this category are agriculture and forestry. The
majority of Providence and Newland Townships are classified rural.
The remaining classification of land in the unincorporated area of the County is conservation
which is generally associated with natural areas. Some development is allowed which is
intrinsically suitable. Conservation areas are the remaining swamps and marshes. CAMA's
areas of environmental concern are also included in this category, many of which are wetland areas
located along the shoreline adjacent to the Albemarle Sound, Pasquotank River and Little River.
IAction Program
This discussion of the action steps for implementing the policies called for in this plan is grouped
by goals. The steps called for under the relevant goal are a set of related actions which will lead to
a preferred outcome. Collectively, these action steps constitute a land use planning program for
growth and development in Pasquotank County over the next ten years. The four main goals are:
• Conserving natural and cultural resources.
• Improving the quality of urban development.
• Coordinating land use decisions and public expenditures.
• Storm hazard mitigation.
Conserving Natural and Cultural Resources
The strategy to reach this goal is to coordinate the county s regulatory functions with state and
' federal environmental and historical oversight responsibilities thereby avoiding duplication of
regulations at the local level. A concerted effort to foster conservation of vital natural and cultural
resources will be the result.

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A. Continue cooperation with the Division of Environmental Management and Division of Land
Resources permitting efforts by coordinating drainage improvement, sedimentation and
control structures reviews during the subdivision approval process.
B. Beginning in April,1996; the Planning Director will begin reviewing all public information
notices issued by the US Army Corps of Engineers and CAMA to assure consistency with
the Future Land Use Plan.
C. Beginning in July, 1996; the Planning Director will maintain a listing and locational index
of historical sites and industrial parks.
Improving the Quality of Urban Development
This goal can be obtained by more knowledgeable actions by county government. At present
Pasquotank County controls density and intensity of development in the zoned areas. While
zoning the entire County is one alternative solution, it is premature. Instituting a process of review
and approval that builds on the existing regulatory agencies technical input and public's practical
input is the recommended strategy for most of the county.
Action Stems:
A. Continue to require District Health Department permit approvals for minimum lot sizes,
drainage improvements and septic tanks as a part of the subdivision review process.
B. Administer the amended flood plain ordinance which requires homes in flood hazard areas be
constructed to withstand some of the damaging aspects of storms and floods.
C. Continue to identify distressed areas for consideration as target areas for CDBG grants.
D. By June,1996; the county will publish Pasquotank County Planning Board agendas.
E. By 1997, the county will undertake an analysis of the fees and charges associated with the
permitting of developments to determine if the costs incurred are being offset by the fees
collected.
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F. During 1998, the Planning Director and Emergency Management Coordinator will complete an
analysis of the land use regulations identifying conflicts with the mitigation and recovery
objectives of the Emergency Operations Plan.
Coordinating Land Use Decision and Public Expenditures
Often decisions by elected bodies are made in reaction to constituency demands to a perceived
crisis. Such decisions take care of the short term symptoms but to often the underlying problems
remain. Urban development places demands on government to extend services. If the decision to
extend services is not made with a consideration to the long term effects of widening a road, all to
often the improvement generates more growth which in turn leads to additional overloads to the
school or the water lines. Coordinating land use decisions with the expenditure of public funds is a
cost effective strategy that is the underlying theme of the following action steps.
Action Steps:
A. By April,1996 the Pasquotank County Commission will adopt the Land Use Plan Update and
follow its policies.
B. For fiscal year 1997, Pasquotank County government shall begin to program capital projects on
a five year basis by adopting a capital improvement program to be updated on an annual
basis.
C. During 1997, Pasquotank County Government shall investigate the application of impact fees as
a means of cost effectively funding capital expenditures for public facilities.
D. During 1997, Pasquotank County government will adopt access management regulations along
the major evacuation routes through the County.

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Hazard Mitigation
Pasquotank County is a low lying area with the potential for significant storm damage as well as
hazardous waste spills. Facing the threat of hurricanes and other major storm events means
preparing for the effects of such catastrophes. Other hazardous situations occur if development is
allowed in close proximity to the flight paths of the Coast Guard base. Future development must be
constructed to withstand such storm damage in areas which are less exposed to the destructive
forces of wind and water. Actions taken to reduce the impact of any disaster including evacuation
and cleanup is the essence of hazard mitigation. The key strategy is the recognition of the risk and
taking actions ahead of time to lessen the destruction.
Action Steps:
A. Beginning in April,1996, the Pasquotank County Fire Marshall shall review all permits for
land uses which will involve storage of petrochemicals to ensure that extensive precautions
be taken to minimize the effects of potential spills.
B. Zoning and building permits requests in the area surrounding the air station will continue to be
transmitted to the cityfor comments prior to any decision by the County.
C. Pasquotank County government will continue to support the Emergency Management
Coordination office via funding, equipment and facilities including the preparation of post
disaster recovery plans.
D. Beginning in 1996, the County will commence a study to determine the threat posed by
hazardous wastes being transported through the county on its roadways and waterways
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Evaluating Implementation of the Plan
There are at least two significant milestones which lay ahead for the County over the next ten years:
First, the assimilation of the employees at the state prison located in the Pasquotank
' County Commerce Park.
ISecond, the construction and opening of the US 17 by-pass.
Evaluating the progress of this plan will allow for mid -course corrections. A definition of planning
is the process of applying forethought to solving problems and creating opportunities. Because
planning is a process, it is reiterative. The future will evolve by the combined actions of public and
private organizations including businesses and individuals. An annual review of development
activity is a worthwhile undertaking that gives an indication of the progress towards the goals and
objectives set forth in this plan. In January of each year the Planning Director shall prepare an
annual report including recommended changes in the plan to be presented to the Planning Board
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and County Commission. The report shall contain:
• an analysis of building permit activity (number, type and location) by land use category:
i.e. residential, commercial, and industrial.
1 • a listing of the significant developments.
• the changes in land regulations during the previous year.
' status of completion of the various action steps, especially the particular steps
recommended for completion in the reporting year.
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Appendix One
State of North Carolina
Office of State Planning
Center for Geographic Information and Analysis
James B. Hunt, Jr. Sheron K. Morgan
Governor State Planning Officer
Karen C. Siderefis
Center Director
Land Cover Classification for Pasquotank County, NC
Classification. Acreage
1
0
2
41,005
3
519
4
2,052
5
5
6
87,862
7
2,432
8
20,032
9
4,296
10
0
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3,911
12
479
13
1,303
14
10,175
15
5,600
16
95
17
63
18
3,679
19
1,464
20
106
Total Acres
185,078
Note: Land Cover information from LandSat Thematic -Mapper
scenes of Winter 1987 and 1988. Classified at
NC State University's Computer Graphics Center in 1990.
115 Hillsborough Street 0 Raleigh, North Carolina 27603 0 919-733-2090 0 FAX: [phone]

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LAND USEIAND COVER CATEGORIES
ILANDSAT TM Data: Winter 1987-1988
1. BORDER: Areas corresponding to a digital number (spectral value) of 'zero,
includes pixels outside of the classification area and area obscured by cloud cover.
I2. WATER: Includes lakes, reservoirs, ponds, estuaries and sounds. Also contains
streams or rivers wide enough to be resolved by the Thematic Mapper (TM).
' 3-5. LOW, MEDIUM AND HIGH DENSITY DEVELOPMENT: Residential, commercial and
industrial complexes are included in this division. The three categories correspond
' roughly to areas where structures and/or pavement cover 25% to 50%, 50% to 85%
and >85%, respectively, of the ground area classified.
6. AGRICULTURE, BARE SOIL AND GRASS: Includes cropland and pasture, bare and
I grass covered soils. Contains all land cleared for agricultural or silvicultural
activities. Wide transportation corridors (such as interstate highways with grassy
medians), beach grasses, golf courses, large athletic fields and other grassy features
Iare also found in this class.
7. LOW DENSITY VEGETATION: Areas which have some vegetative cover but are not
I forested. Fallow fields, cleared areas in early successional stages and some
landscaped residential areas are included in this class. Wide utility corriders. (power
and communication), some narrow road systems and weed covered spoil piles along
drainage ditches also occur in this category.
I8. PINE FOREST: Contain medium and high density conifers (predominantly Loblolly
pine) and pocosins with pure stands of pond pine.
I9. BOTTOMLAND HARDWOODS: Hardwood stands are found predominantly in the
riparian zone of streams and rivers. These stands are dominated by deciduous species
such as maples, oak, sweetgum, sycamore, birch and ash.
' 10. HARDWOOD: Stands of hardwood are predominantly in upland areas, on gently
sloping interstream divides, or in drier low lying areas. Stands are dominated by oak,
Ihickory and maple.
11. PINE/HARDWOOD: Stands contain mixed conifer and deciduous hardwood species.
INeither pine nor hardwood comprise greater than 75% of the crown density.
12. DISTURBED LAND: Includes bare (fields which have undergone recent
' disturbances) agricultural fields and clear cuts. This class also contains some
developed areas such as sites being prepared for construction or around quarries.
13. SHADOW AND MIXED PIXELS: In the Piedmont this class includes shadows (usually
I bordering lakes and ponds) while in the Coastal Plain many wet areas with organic
soils (riverine swamp and low marsh) were confused with shadows.
14. RIVERINE SWAMP/LOW MARSH: Include forests occurring along the major
Coastal Plain rivers and their tributaries and on sites associated with nearly
permanent freshwater. These forests usually occur in the flood plains of rivers or on
wet flats. They are dominated by gum -cypress swamp, but also including maple,
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' birch, sycamore, sweetgum and oaks. This class tended to be mixed with low marsh
(Class 13).
15. EVERGREEN HARDWOOD/CONIFER: This class is dominated by evergreen hardwood
shrubs or small trees (magnolias and bay forest) and areas with low density pond or
' loblolly pines.
16. ATLANTIC WHITE CEDAR: Generally even -aged stands of Atlantic White Cedar
which occur on peaty, acidic soils make up this division. In areas where drainage
channels are bordered by pine forest, the mixed pixel response (black waters/pine)
appear to emulate the response of Atlantic White Cedar.
' 17. LOW POCOSIN: Is predominantly areas with organic soils supporting evergreen
shrubs, vines, briars and cane. These areas are more poorly drained than the
Atlantic White Cedar class and support fewer trees.
18. LOW MARSH/RIVERINE SWAMP: Includes regularly flooded marshes dominated
by cordgrass, bulrushes and black needlerush. Soils are generally rich in organic
matter and remain wet most of the year.
19. HIGH MARSH: This category is generally irregularly flooded marshes dominated
by giant cordgrass, cattail and reeds. In general, these areas are slightly less rich in
organic matter.
20. SAND; Contains bare, dry sandy soils. This class is confined to the Coastal Plain
and includes sandy dunes or bare sandy ridges. It also appears in agricultural fields
which have patches of sandy, well -drained soils.
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