CAMA Land Development Plan-1980

i
,.i

CONTENTS
CHECKLIST
I. DATA COLLECTION AND ANALYSIS
II. DEVELOPMENT POLICIES
III. LAND CLASSIFICATION
IV. ASSESSMENT OF PLAN EFFECTIVENESS
V. INTERGOVERNMENTAL COORDINATION
VI. PUBLIC PARTICIPATION
u � �

SECTION I
DATA COLLECTION AND ANALYSIS

INFORMATION BASE
This plan is an updated version of Belhaven's first CAMA land use plan
which was prepared in'1976.
Section I contains a description of existing conditions within Belhaven
and its extraterritorial jurisdiction. . Topics covered in this section in-
elude population,' economy, land use, a -list of. current Town plans, policies
and.regulations, an identification of constraints to development and the
estimated demand for community facilities over the next ten years.
The data base was compiled largely through a review of secondary
sources, i.e., published information regarding the material cited above.
This method was supplemented by interviews' with the. City Manager and other
local officials. Special topics such as .the material.dealing with com-
mercial fishing and' historic preservation � were based upon interviews with
state officials and -personnel from the Mid -East Commission and other as
appropriate.
Throughout this report, the.approach has been to identify changes which
have occurred.in Belhaven since the 1976 plan was prepared, particularly
changes of such a nature as ,to require.a basic re -orientation of the Town's
Plan.
The major conclusion of the review of existing conditions is that the
population of Belhaven seems to be growing again. This is in contrast to
the several -decades -long decline .reported in the 1976 plan. This phenomenon
is, of course, subject to verification.by the 1980 Census which was conduct-
ed -during the 'course' of this study.. Second, manufacturing..employment seems
to. have increased in the planning area. over the past five years, thus -sup-
porting the estimated population. increase. "Employing .the same methodology
for future population estimates used in the 1976 plan', the third major

conclusion is ,that the future population of the Town MfI11 exceed the earlier
forecast by a substantial percentage. Finally, and p--haps most important-
ly, there appears to be a new .,interest in assisting art stimulating growth
by the Town itself. This is evidenced by the decision to undertake a com-
munity development program, by statements of interest `n seeking new indus-
tries for the waterfront, and by the Town's applicatia- for Growth Center
designation under the Balanced Growth Policy Act.
-2-

'f +G,Iesvilk
svinr '' w 158 ucksoo s f,`T 1 ♦Ant _ � p olYiu Sm yuos� \ Q It `� v Q i .
3 : , 7 Pausi 9 a
e1" f .ForkW2 elaoi:
` oD svilk - amden
S ahfj ll woodland ^oI,Unio , is 7 `\ Iidi Elitl6eth Citpf :.'. , +
! sage 4 �H RE 1. fyk 0 D •,1 1 �. ,ate'% , 3F R �
`Ahoskie M,neusvlrc' 6 Saint /onNi • el rdere o, /%'�•-
r' Brysetown 4Y t 1 t 421 s ~ 10 �... Ryles- ) CnaDeno� C 13/ - j 41 ': hV r
Rt 4" 4 •r0e Ilk \ ¢h Spwre e O ►S ' 13 9 34 . '_ �c Old
/1 PE Q I ��r�p
Or 301 2 ? \o� � � � � } •- � � � � � � ' in all I \ Il rveesrrp �°�
\a \o Auhnda o Ilsville f T ner �.^ Nilooton t • f`.
}}J F A A'SHiie= ] F2 Men , J. 3 f 1 !f- �.
Ro�obel ;�, 11 ] 10 0 Mentord C \G�4 I*-, \ ��
J ° °,, 4 = KtnDr s = Cannon 13 � C14 YVANI 4 , .+
..gyp Enfield to fe `
1 258 42 i RoSkyhak 1 t0;/ Durants Neck
Wad. h.
s r\ Burde 1 p
- O tewrslon a I Mount Gould 3 „rre.;r7 �-`~ `�/tre.en•ee h. Scotland Netk �e Askewville \s -
hitakers- ` . - 4 t ;< Y%odvilt 2 �� Ashton Hancock �v„•re- �S•�� , h.
� =s 6 �-- D ? �, i *3 S - SOta.tld
Roslrt,ih fit P Imyn , 45 ' v ' • 2 3 17.v..wrh.
13 _ l s , canaoa Dry S Midway tn.nnouw Edentt)q+ �l�marle
l tleDoro
C�y -6 . g 'E R 1d r E
! * Lawrence. /N^C ood 6 \ `E 1 �,�/,��,. Mori
rant—� ) a' ` W' gull say . Fortl
/" Newfoundla
11 e�ett 6 Speel Oak C11Y 90 uilsn `,,.`�. 12 ' IS _ «/ -
1' - E D G-E sC -O B E ' • 4 Q_ �, GrRbi `. ,. y_'Macke L s ... S _ a, s 8:
�� S la 42 amilto I, 17 - I kasint Grove Colts
+1 i utseas is a } ' I4 3'� Riuer' Woodard ` •� ,r SCUpptrnOn ] 1
It fA,OARD id hasslll �/ �"1\ %/ /WestOYt Creswll °°filly 94
Tu6oro 7 Prmavi6e 7 t /. r✓ \�=• \
I1 r 11 Gold Point = s.l ! y ♦ S 3 Rop Cher /
43 * `( 7 42 I / 3 Everett iS ° 7 v'illlamStOn., �Deraerf/ P ymOuth ' Ser�...r ►lec, Frying Pa r
13 4 R l imesville a /`. a d s* WAS H I N G T 0 N���eN,D.e. Sr. ►6. landing
6a ottersonvillt r! 1
• Y OrlllO! COAST met * I ~ /
PinefoDs 258 6 !.� 6 etnel t l r 1 A - r - 1 Phelps Lake 21 ��✓
124 t j 42 •_\• / oA\ , ` S Best Crass 17 t6 1i Hinson ,� 3 , T Y R R E L L'.•
t
t / a ! i i� y - — 99 Wenona Py eke — _ — �uum Neck V
ales6eld a ` risD / ,7 \, 11 Stokes 71
%_",ialklan 13 �O 1 30 \ - /� S �✓ ,,
e %' Fountain Bru33 so L• 7 r , I\ r 10 L°4r• , g(dkenny j
p`I / jJ2
ta� Today 12 43 R�� SP,ctow:� /�1, B E l� 1 U F2 t 0 R ` � �%��
2r>a `f, •armville 6 _ ree viUe`Tf v10 264 6-- I n: p,nk \ L1 , D
4 7k _ 'ra ] levchriue /7 1 I 96
)IK WalstDnb ell An.0 2 l• f .. SOU7NERN ` _ S lorroGo°a'a Fairfield
264A 68 _:[• 5lmpson -�1 �j\,`.,; _
9 3 13 7 3 Grime an , - x Yates. z �� * '�-.�- - 1 13 =� P / I T ° `'Be- �• 264 7 Marlamuskeef
r 1 '� inlervillt 11 ChQc9wi sly \ !. lake'
2w /� �~ Scranton
r UsitMaury t 4 Black Ja k l ` � h t 92 ath t winsle dvd e^� '� ad
3 7 Row IK3 t yyr .% ry Nure 'ar6 �.
3 S,1 IOL,��-.---�.3 Ranso i ^' -� kdesvillt;' `, •1
4 EOr rAyden Shelmerdi a Ol ;\ �O 6 - n �cw' .\� ` 12 ew Holland
mo q •� BayvierA_ C. •• bbb
+ Snow Hill i3 °aavk'1 11
l i11 • to a G - - r r�+ Guu Rock .
r Hooke o 13 �a 3 �• Cat ftEF nl Rvue, s i • \, wan Quarter-;
t Calico r Wdmar Poi�n�t -� s Pamlico Beadi' - v Roar Bay', ! �' ............ '
] • 1 M' ° 40r1 \ ;/Iij
� _
- 258 ,Grit -on Co, Lrossra s "�
! Bonnenon ! ` NArt Wuotlff uFUG1 r
'Y 4 ! 9 11, a: \`Bloult CEeek s y".` JpJOuln�r `� --N , akr1E h.
\� y 11►,y Creek`•) owUna�- �'= i
Dawson / ''�I 4 Ed if 4 1i GI_ rh GRf6rc�`- s
r sin ers S Vancebao \
in ^ t ; 55 orC$auwell - 2 Aurora Royal ----I,l 1/� `•:�. \ �-04 I�
a 4 :: - \, real r y Mobucken �. \ !
inston+l ° Ceylon'�
•,eMNw.�oa•' T . l , ryviR6 SMesic �:\ °'QO'i
Dover
Ri IO 1 C A V C\ N 1 kin ,/' 1( rcasnCorns C .Le°a
` SS a IFork ` \ fAty Cove City a ,spec �, I Maribe = 'ringemere
OAR '"�" I + - 4 .Bay.R.: aA,. h.
E N 0 I R�. 3 '.J2 "A-= 4 ss BeyDoro Florence`
�r in -"� �' . A OIYm;I3 7 10new^jl� / � - • \
i
Cn ! ` \Tu carom+ `-a e6nrigeton Ica �sout At'�ar. �' ( /'
T New Bef 7 1 55'(�D,�emes�ilyaviPatsmoull
rRhemsr A M L O / R°`1aa/PlasantHill ,<� 58 Trenton �'� I liPink HBI 4 + ti 4 .«' ntal/ - i`NE R. S �''` Arapalgt �-_ �'./ _-.— :::_. _. West Bay i ' ----_-ec�`-`-.i
�. _ _ .- .CeOar Island
c a _ 41 .icon(Co� --- t ,Pltloeksvlle liver 4 aneiro % y
r 2 \ r!! \ South River 0° -Lola Su•ask tole
to�HOFMANN CROATAN Croetaq j , kF�l�Be jeso - ; l �� JO`! rA CEDAR
I1 •, caNrshl"hternmon 4 12 Ott 7
Petersburg 1. `, \ -i .--/y m 6 Lake , 0•,•: ••ir( ` r •p �( a b�•
tullydl! s :"< r \, - _���' Long �• <'�<S S •tr - , J: Atlantic S%
Maysville L lake 1:Havelock r s
le 24 cnundi' FOREST NA41N 4L t ! s 3 t^ v./' Drum J.kl
`i Belgrade .ear Lulls n �� - I S Seakvel
r t lee Lake . "North Marl*.
G.� •.� -
-= yma t Catheri r '--. <,' to oke -]
-- fountain Lake - �-- Ihs i�°� Marlowe ; III.- t R REGIONAL LOCATION
'r 25E r' 1 , C F R ST ] T E t Wifhstor
rpin ' Catherine Uke 4 •\ Kellum :'' v 1 k.p �i A d�.. p O, <
+ •:: S , /, vhns Ntw Crl' 6� "Z
' latks nville k': Sily' rd a \el I S Me.inr a.rov�^nM�s\-rA Morehead° 7j;' 6e+CE;t}y/1 wee
0 N , L 0 /We. P.k1 eY l 4 ��`=
1 r 53 WIG. y.P,r4 NnDert �e � Ocean Sfm I a.�,� i!
•eek •� <S"- Ca Bocce 'Pine Kno; �g�i.• s a Baurorf t
IE , ,�' r 4 , rye , G,,,na . I ' e- Beau ferry:' �VILLL��iS ��ORIiS .;
11 fiery Green �7 , . - 4 ,■
_ S Atknuc a Markel
Swansbor S ? Brw < 3 fr. M«.,, °
• s 7 58 Sauer Path Bacn EnIGINEERS PLArtERS ARCF?JTEC TS I.
CAvr LiF.1nE Infirm rMedo•r Geeu••0 !��! SIFtVEYOpS • GE S ii
•� ' VtfOna Mar:AI tASf Emerald Beach Nor„.ol Aroo Sr f6. !
I me le Hill Z - _
■ wwye nrel Islt
is - _ 7. . -Bear Info! J „ ►. CAP( tOOKOLnil GANG AAPC& W SAWIOM KG COlk1A6A aa0 ll
• � + urwrNnu �

4
POPULATION
Belhaven's 1976 CAMA Land Use Plan contained an exhaustive description
of the Town's population structure (pp. 15-27). A review of that material
reveals no errors of fact nor of interpretation.
Since 1976, some new information has become *available which would sub-
stantially change the picture presented in 1976. That picture is one of a
relatively stable population over the past, forty years. More specifically,
the Town's population has varied within a narrow range since 1940 as shown
in Table 1.
TABLE 1
TOWN OF BELHAVEN
POPULATION SINCE 1940
Year: 1940 1950 1960 1970 1978
Population:. 2,360 2,528 2,386 2,259 2,390*
* 1978 estimate prepared by N. C. Department of Administration
The estimated population increase from 1970 to 1978 can be interpreted
as indicating'a new period of growth for the Town (no annexations occurred
during this period). On the other hand, some analysts have commented that
state agency estimates of municipal populations tend to be optimistic, i.e.,
that they are characteristically higher than actual -head counts produce.
As the 1980 U.S. Census is being conducted at this writing, it seems point
less to debate the precise figure here. What is important is the order of
magnitude and the direction of change. In March 1980, the Town's electrical
-3-

system had a total of 953 active residential accounts: Assuming that this
figure represents the maximum number of dwellings in Town and further assum-
ing a range of 2.7 - 3.0 persons per household, the Town's likely population
range is 2,573 2,859. This range is consistent with the upward trend
reported by the N. C. Department of Administration and is consistent also
with a national trend of increasing rural populations. Finally, it is con-
sistent with recent projections for Beaufort County: Over the past forty
years, Belhaven's population has averaged 6.55% of the County's population.
Population projections for Beaufort County prepared'by the N. C. Department
of Natural Resources and Community Development show a 1980 population range
of 39,600 - 41,600. At the historical rate, Belhaven's 1980 share would.be
in the range.of 2,599 - 2,725. The conclusion is that Belhaven's population
has grown measurably since 1970 and probably is higher now than at any time
in the past forty years.
SEASONAL POPULATION CHANGES
Many North Carolina coastal communities experience public service over-
loads during the summer when the normal population doubles or triples with
the influx of tourists. Streets become overcrowded both with pedestrians
and automobiles, sewer systems become overloaded, and water supply systems
prove inadequate to meet temporary demands.
Belhaven to date has not experienced major population fluctuations
during.any season.. The one exception to this is during the annual Fourth of
July celebration when the local fireworks display attracts visitors for a
single day from nearby communities. The major problem is traffic congestion
and inadequate restaurant seating.capacity.
The Town still has only one motel. A second motel, planned in conjunc-
tion with a marina at the N.C. 92 bridge over Pantego Creek, has not been
developed as anticipated in 1976.
The 19.76 Plan discusses seasonal population changes, concluding that
there is no major.problem for Belhaven (p. 97). That assessment is still
correct.
-4-

ECONOMY
The 1976 plan identified Belhaven's economic structure as a classic
case of geographic determinism: "Since the Town is in a predominantly rural
area with excellent water resources, it is understandable that the local
basic economic activities revolve around farming, commercial fishing, and
lumbering...". In Addition, manufacturing and tourism are present. Finally
the retail trade sector appears relatively strong because of the Town's dis-
tance from other urban centers.
Changes in Belhaven's economy since `1976 are virtually imperceptible.
Commercial fishing and associated activities still dominate the economy.,
Seafood processing, for instance, is the single largest industry by number
of persons employed. Manufacturing firms located 'in the Belhaven area are
listed in Table 2.
Taking the average value for each size class, manufacturing employment
in the Belhaven area is estimated at 503. This estimate cannot be directly
compared with the estimates contained in the 1976 plan due to differences in
firms covered and methodology. The present data do suggest, however, that
manufacturing has.at least remained stable over the past five years, and has
probably increased slightly with the opening of the Coastline Sports Wear
Company. It represents a.distinct improvement over manufacturing employment
for all of Pan tego Township in 1970 when only 427 manufacturing jobs were
reported.
Commercial fishing and related activities (crab and seafood processing
and packing) deserve some additional discussion due to their prominence i.n
Belhaven'.s economy.. Estimates by the N. C. Division of Marine Fisheries put
"on -boat" employment in Belhaven at approximately 120 about half of whom are.
engaged specifically in crabbing. Processing and packing firms employ 60-75
persons on a full-time basis and approximately 350 at the height of the
season (July - August). Belhaven is listed as the "hailing port" for forty
-5

TABLE 2
MANUFACTURING FIRMS
BELHAVEN, NORTH CAROLINA
1979
Employment
1 '
Firm Product Class
Adams Logging. Pine, Pulpwood A
Blue Channel Company Crabmeat F
Baker Crab Company Crabmeat E
Belhaven Feed Mill Feed, Fertilizer B'
Belhaven Fish & Oyster Company Crabmeat E
Harris Furniture Company Furniture B
Coastline Sports Wear Sweatshirts E*.
Coastal Concrete Concrete B
Gwinn Engineering Company Dredges A
Sea Safari Seafood p
Fred Smithwich Pulpwood, Pine B
Younce & Ralph Pine Logs, Lumber D
* Closed. in September, 1980
Employment Code: A =.1-4; B = 5-9;.0 = 10-19; D = 20-49; E = 50-99;
F 100-249.
Source: Directory.of North Carolina Manufacturing Firms, 1979.
4

1
commercial fishing vessels greater than thirty feet in length.
Processing and packing firms are particularly important as part-time
employers because they employ a large percentage of minority persons and
persons without skills required for other industries.
Assuming a minimum wage of $3.00 per hour and an 8-hour work day, the
height -of -season payroll would be on the order of t200,000 per month for
land -side employment. 'Estimates for on -boat payroll are not available:
many of the fishermen are owner -operators or are in partnerships.
Belhaven's fishing industry is estimated to account for 90% of the
commercial catch in Beaufort County. Further, the processing and packing
plants serve not only local fishermen but those in nearby counties. Crabs,
particularly, are trucked into Belhaven from Hyde, Tyrrell, Pamlico, and
occasionally, from Carteret Counties. No records are kept on these inflows
from other counties. Thus, Belhaven's.true contribution to North Carolina's
fishing industry cannot be described from available data. The poundage and
value of fish and crab landings are shown on Table 3.
-TABLE 3
BEAUFORT COUNTY.
COMMERCIAL FISHING LANDINGS
Year Poundage Value
1960 4,212,000 $ 320,799
1973 2,971,600 773,498
1975 3,801,800 916,736
1976 5,963,900 2,202,949
1977 5,864,900 1,983,360
1978 4,736,900 1,525,051
Source: N. C. Division of Marine Fisheries.

Blue crabs traditionally account for over. 50% of the poundage and about one-
third of the value of landings reported for Beaufort County. The decline in
poundage and total value of landings in 1977-1978 is primarily the result of
harsh winters which depleted the populations of certain species, particular-
ly shrimp and crab.
.Tourism is a somewhat significant. element in Belhaven's economy. The
Town's location on U.S. 264 (the "Historic Albemarle Tour Highway") and near
the Intracoastal Waterway make it a natural stopping point for tourists
arriving by boat and by automobile. Food, fuel, and overnight accommoda-
tions are available as are marine repair services. No recent data are
available to describe local employment or dollar amount of sales resulting
from tourism in Belhaven. Data from state agencies are not disaggregated
below the county level. Any further analysis of the tourism industry will
have to await results of the 1980 Census or.a special survey conducted by
the Town.
Similarly, no data.ar.e available on the economic impact of Beaufort
County's:phosphate mining upon Belhaven:

EXISTING LAND. USE
The 1976 land use survey was updated in March, 1980. Briefly, the
latter revealed only minor changes in the land use pattern. These consisted
of the develoment of vacant. residential lots, the installation of a number
of mobile homes, and a small amount of new commercial development along U.S.
264 Alternate near the western corporate limit. The survey also indicated
the construction of *a new post office 'behind Town Hall, and the development
M of a community center building on Pungo Street. No new residential subdivi-
sions have been opened since 1975 nor have any new shopping centers been
constructed.
Problems of land use compatibility are still as -described in the 1976
plan .(pp. 69-77).
Problems and implications of unplanned development are also described
in the 1976 plan (pp. 69-77). No new problems have arisen since.that time.
Areas likely to experience a change of predominant land use include
.potential commercial strips along West Main Street and along U.S. 264A. Re-
development of part of the Pantego Creek waterfront is the second area like-
ly to change use in coming years. This is discussed fully in Section II,
Development Policies.
Areas of environmental concern are identified in Section II, Develop-
ment Policies. These include coastal wetlands, estuarine shorelines, and
public trust waters.

RESIDENTIAL LAND USE
I�� � ��'+• ,fie ; f.,Yy \� � - ��JI''+_J!t j;A:�J,[ �� Ii� �/�7
,ice !7 r
�f.) _07
�"
Or
AIT It,
N
CmECK
• />� ! • ��,� � ,N r�l • �!! t•t Opp
•

BELHAVEN
NORTH CARD LINA
COMMERCIAL LAND USE
ft
CRUX
�0

INDUSTRIAL LAND USE
INCLUDES:
MANUFACTURING
TRANSPORTATION
COMMUNICATIONS
UTILITIES
WHOLESALING ZX"'
O
CRf
~ CREEK
r
ci's
Oa
l
F
F
.

177 '77'.iT n:
BELHAVEN
NORTH CAROLINA
GOVERNMENTAL & INSTITUTIONAL LAND USE
INCLUDES:
SOCIAL
CULTURAL
ENTERTAINMENT
RECREATION
OTHER PUBLIC AND SE. --PUBLIC USES
rmfs or

CURRENT PLANS, POLICIES, REGULATIONS
PLANS
Local planning documents pre -dating 1976 are listed in the 1976 CAMA
plan (p. 78). Since 1976, three other plans have been prepared. These are
listed below:
Addendum to the 1976 Land Development Plan (1978):
Prepared by N.C. DNRCD, the "Addendum" was a supplement to the 1976
CAMA plan intended to help the Town maintain its eligibility to receive
HUD planning assistance funds.
Public Improvements Program (1979):
Prepared by Mid -East Commission. A twenty year list of capital
improvement needs in the Town.
Waterfront Improvements Program (1979):
Prepared by Mid -East Commission. Proposals for revitalization of the
Pantego Creek waterfront in Belhaven.
Plans prepared by state agencies which impact the Belhaven planning
area are listed below.
North Carolina Airport System Plan ("NCASP")
NCASP is prepared by.NCDOT, Aeronautics Division. The plan presents
recommendations concerning the type, location, and timing of airport
development needed to establish a balanced system of public airports in
North Carolina over the next twenty years.

NCASP. identifies two airports in Beaufort County. The first, Warren Field, is
located in Washington, approximately 30 miles west of Belhaven. Because of
its distance it is of little or'no direct concern to the Town. The second
is proposed for construction in the Belhaven-Pantego area. This would be a
general utility class field with a 3,000 foot runway. No specific site for
the airport has been selected nor has the runway orientation been
established. These features would be determined through an Airport Master
Plan. Construction is not likely to be justified before 1986-1990, according to
NCASP. The feasibility of the airport, however, must be established by a Master
Plan, the preparation of which could begin at the discretion of the governing
bodies of Beaufort County, Belhaven, and Pantego.
North Carolina Rail Plan
The State of North.Caroli,na (NCDOT) has initiated a statewide planning program
for railroad service in response to the federal Railroad Revitalization and
Regulatory Reform Act ("4R").of 1976. The 4R Act authorized planning
assistance funds to states for the purpose of determining current and future
rail service needs. The Act also authorized financial. assistance both to
states and, through the states, -to railroad companies for railroad systems
rehabilitation, operating subsidies, and outright purchase of lines subject
to abandonment.
Belhaven is served by the Norfolk Southern Railroad via a branch line from
Pinetown. The line terminates in Belhaven.
The significance of the Rail Plan is that it identifies a number of "Light
density" (low traffic, unprofitable).rail lines across the state. Some of these _
carry so little traffic as to make them candidates for abandonment - cessation
of.service - under, -the liberalized abandonment procedures set forth in the 4R
Act.

The Belhaven branch is a light density line carrying 100,000-300,000 gross tone
miles of traffic per year.. In spite of the low density of traffic the Belhaven
line has not yet been proposed for studies leading to abandonment. This could
happen, however, if one or more of the railroads current customers goes out of
business or shifts to another mode of freight transportation.
Statewide Comprehensive Outdoor Recreation Plan ("SCORP")
The purpose of SCORP is to provide the Governor and General Assembly with a tool
to assist them in examining and selecting investment alternatives for outdoor
recreational.facilities. The scope of the plan is to maintain an inventory of
existing recreational facilities in North Carolina; to determinie current and
future demand for such facilities; to analyze the capabilities of various
providers of recreational opportunities to meet these needs; and to make
recommendations as to actions which would most effectively meet these needs.
Standards for various types of facilities, including local facilities, are set
forth as a guide for more detailed planning at the lcoal level. SCORP is
updated regularly by NRCD.
SCORP contains no proposals for land acquisition or facility development'. within
the Belhaven planning area. It does describe the two major state outdoor
recreation areas in Beaufort County - Goose Creek State Park and Goose Creek
Wildlife Mana%emcnt 'Area. Both of these are of significance to Belhaven
residents as outdoor recreation resources, but are of no consequence to the Town
in the land use planning context.
Transportation Improvement Program
This is a statewide schedule of highway improvement projects to be undertaken
during the seven year period 1980-1986. No new highway construction nor major
rehabilitation projects are proposed for the Belhaven planning area during the
planning period 1980-1986.
-12

URBAN SERVICE POLICIES
Urban service policies are discussed in the 1976 CAMA plan (pp. 78-82).
There have been no changes in these policies since 1976.
LAND DEVELOPMENT REGULATIONS
Local development regulations are listed in the 1976 plan (p. 83). Since 1976,
the Town has qualified as the permit -letting agency for minor
developments within Areas'of Environmental Concern. The Town has designated
a part-time officer for review of applications and approval -disapproval
decisions. The Town's permit -letting program has been approved by NRM
FEDERAL AND STATE REGULATIONS
Federal and state regulations which affect the use -of land and water in the
planning area are included in the appendix.
- i J

CONSTRAINTS:
LAND SUITABILITY
HAZARD AREAS
Man-made and natural hazard areas in the Belhaven planning area are
discussed in Section II of this report.'
SOILS LIMITATIONS
Areas with.soil limitations for urban development were described in the
1976 plan '(pp. 85-86). No better soil information has become available
since then. Briefly the 1976 plan notes that much of the planning area is
characterized by soils with moderate to severe limitations for septic tanks
and landfills. Drainage throughout the planning area is poor.
SOURCES OF WATER SUPPLY
Belhaven's water is taken from two wells. As noted• in the 1976 plan
(pp. 87,92) the wells have a combined capacity of 1,000,000 GPD.
STEEP SLOPES
There are no s.ites in the planning area where the ground slope exceeds
12%.
FRAGILE AREAS
Wetlands: Wetlands occur'on*both the north and south banks of Pantego
Creek and to the east along the Pungo River and its tributaries.
Frontal Dunes: There are no sand dunes in the Belhaven planning area.
Beaches:.. A few iso.lated beaches exist along the creeks of the planning
area.

FRAGILE AREAS (continued)
Wildlife Habitat: The wetlands provide habitat for waterbirds,
reptiles, amphibians, and small mammals. The wetlands also serve as
nursery habitat for fish.
Scenic and High Points: There are no high points in the planning area.
Pantego Creek, as.seen from the Belhaven waterfront, is a visual asset
to the Town. Wynn''s Gut, a small inlet from the Creek into the Central
Business District has much potential for development of a park to help
beautify the Central Business District.
Complex Natural Areas: There are no complex natural areas in the plan
ning area as defined by the Coastal Resources Commission.
Estuarine Water: The Pungo River, east -of Belhaven, is saline and thus
qualifies`as estuarine water. Pantego Creek is classified as inland
water.
Public. Trust Water: All surface water in the planning area is classi-
fied as public trust water.
Fragile Areas: There are no other fragile areas. in the planning area.
Areas Sustaining Remnant Species: There ar- ^^ known remnant plant and
animal species in the planning area.
Registered Natural Landmarks: There are no --_-istered natural land-
marks -in the.planning area..
Unique Geological Formations: There are no :_-,que geological forma-
tions in the planning area.

AREAS WITH RESOURCE POTENTIAL
Much of Beaufort County is underlain by phosphate -bearing sediments.
These are being mined at Lee's Creek by Texas Gulf Corporation. The 1976
plan for Beaufort County indicates that such deposits are also found in the
Belhaven area. In 1971, Dresser Minerals, a mining firm, identified
phosphate deposits underwater in Pantego Creek. There appears to have been
no action yet toward initiating mining activity in the Belhaven area.
Since 1976, peat deposits of potentially commercial significance have
been found in several eastern counties including the northeastern sector of
Beaufort County. Information available to date.from NRCD indicates that
such deposits may lie just north of the Belhaven planning area along the
Beaufort -Hyde boundary. In late 1980, tentative plans for a.methanol
producing plant, using peat as a fuel, were announced by a private
corporation. The exact site for the plant has not yet been established.

CONSTRAINTS:
CAPACITY OF EXISTING COMMUNITY FACILITIES
WATER AND SEWER SERVICE AREAS
There have been no major extensions of Belhaven's water and sewer
service areas in the past five years. Thus, the service areas are still the
same as shown on the 1976 plan (p. 94). For planning purposes, the Belhaven
treatment facilities study area includes Pantego and runs as far west
Yeatsville.
DESIGN CAPACITIES
Design capacities for the Town's water and sewer systems are described
in the 1976 plan.(p. 92). There have been no expansions of either treatment
capacities nor of treated water storage since 1976.'
Consumption'of treated water is still. only about 50% of capacity, i.e.
peak' consumption. is. now approximately 250,000 .GPD.
The. -sewage treatment plant, for the most part, still. operates at about
80% of.its design flow capacity..Engineering.studies are currently in
progress toward two goals: (1).pre-treatment of industrial wastes from sea
food processing pl.ants and(2) reduction of storm water inflow to the
sanitary sewer system. Accomplishment of these goals would mean a reliable
100,000 GPD surplus above peak flows.

ESTIMATED DEMAND
The 1976 plan indicated that Belhaven would continue to lose population
through the end of this century (p. 100). Projections were as follows:
TABLE 4
POPULATION PROJECTIONS
BELHAVEN, NORTH CAROLINA
1980-2000
1980 1990 2000
2,134 2.113 2,031
Source: 1976 CAMA Land Use Plan
As noted, the Town's population is now estimated to be considerably in
excess of that forecast for 1980, suggesting an uptrend -for the next decade
and possibly longer.* Assuming that Belhaven maintains its 40-year share
of Beaufort County's population, the following estimates are offered for
1990 and 2000.
TABLE 5
POPULATION PROJECTIONS
BEAUFORT COUNTY AND BELHAVEN
1980 1990 2000
Beaufort County 39,600 - 41,600 44,100 - 46,300 48,000 - 50,500
Belhaven 2,599 - 2,725 2,889 - 3,033 3,144--3,308
Source: Beaufort County projections by N. C. Division of Environmental
Management; Belhaven projections by Williams & Works
* Preliminary data,from the 1980 census put Belhaven's population at 2,462.
This figure is subject to revision.

The projection for Belhaven thus shows increase of 290 308 people
over the next ten years, approximately 100 new families. -
Both the existing sewage treatment plant and water supply system are
capable of handling this :growth without expansion. Similarly, the road
system in Belhaven is. capable of accommodating the increased traffic.
Vacant residential land in the planning area is currently estimated at
approximately 150 acres. This'is more than adequate to house the anticipa-
ted population growth at densities as low.as one.dwelling unit per acre.
Expected densities, however, are likely to be at least two units per acre
thus providing a surplus residential land but allowing for a choice of

. 11

LAND USE ISSUES AND POLICIES'
The most prominent feature of virtually every land use plan is the
plan map itself, showing proposals for new streets community facilities,
and the land use pattern to be developed in coming years.
The land classification maps and others showing the location of Areas
of Environmental Concern fulfill this function in CAMA and, typically, they
receive the bulk of attention from elected officials and the general public
during the plan design and review process. Those maps, however, do not by
any means constitute the entire plan. They are merely graphic represen-
tations of certain goals, objectives, and policies adopted by the community
as the real guides to future development.
The Coastal Resources Commission recognizes the limitations of maps.as
policy documents and requires that communities covered by the Act specify
their development policies, in written form, for several broad topics:
Resource protection
Resource production and management
Economic and community development
The Commission has attempted to distinguish a number of sub -topics
within the above categories for ease and clarity both in preparation and in
reading. In Belhaven, however, and doubtless in many other communities,
such distinctions are difficult to make. The issues simply do not break
down easily and it over -simplifies a very complex situation to attempt to
do so. Accordingly, some liberties are taken here with the Commission's
suggested outline, but still remaining within the general framework set out
above.
�1
W
-z0-

GOALS AND OBJECTIVES
The 1976 CAMA Land Use Plan spells out Belhaven's development goals with
respect to the following areas of community interest.
Economic Growth and Development Goal:
To obtain orderly and quality development of the economic sector of the
Town.
Health and Welfare Goal:
To provide adequate health and welfare services to all in the community.
Housing Goal:
To preserve and enhance existing residential neighborhoods and insure
the orderly development of new residential areas.
Governmental Operations Goal:
To obtain more efficient and effective governmental services according
to.acceptable cost -benefit considerations.
= Social, Cultural and Recreational Opportunities Goal:
To provide, preserve, and enhance the social, cultural, and recreational
facilities of the community.
General Environmental Goal:
To provide a physical environment that is livable, aesthetically
pleasing, healthful and blight free.
The 1976 Plan then sets forth a list of objectives - specific activities -
intended to connote progress toward goal achievement., These will not'be recited
here for the sake of brevity. It is sufficient for the purposes of this plan
update to note that the Belhaven Planning Board and Town governing body reaffirm
those goals and objectives for the 1980-1990 period.

A reading of the Town'-s goals and objectives reveals, however, that some
relate to the central concerns of the Coastal Area Management Act in only a
marginal way. Few of them, further, are sufficient in their present form to
serve.as statments of policy on the specific fields of interest required by the
Coastal Resources Commission as part of this update.
DEVELOPMENT POLICIES: 1980-1990
Accordingly, -the Town sets forth the following policy statements to guide
development in the Belhaven Planning area over the coming ten years.
RESOURCE PROTECTION
AREAS OF ENVIRONMENTAL CONCERN
The Town recognizes that one of the central concerns of the Coastal Area
Managmen.t Act is, properly, -the identification and protection of certain lands
and waters designated as "Areas of Environmental Concern". Government interven-
tion in the market place with respect to AEC's is necessary to assure the proper
functioning of the physical and biological systems of the coastal area.
It must be observed, however, that many AEC's are attractive for develop-
ment of various sorts. Further, the task of AEC definitions, both conceptually
and on. the ground, is as yet incomplete. This implies that the locations of
AEC's and the potential uses to which they might be put' are to some extent
unknown. The effect of that state of affairs is to subject both Town government
and private property owners to often considerable delay and confusion in
determining the feasibility of development proposals.
Belhaven is in a particularly difficult situation with respect to AEC's:
the largest blocks of vacant land in Town are believed to consist at least
partially of AEC's. Unless these areas can be developed for typically urban
uses, new development will be forced to take place outside the Town limits,
producing.considerable strip development and re.quiring.the extension of public
services years before they might otherwise be needed.
nn

The Belhaven Planning Area contains three types of AEC's: coastal
wetlands, estuarine erodible areas, and public trust waters
COASTAL.WETLANDS
Coastal wetlands (marshes) extend along the north bank of Pantego Creek
from the western edge of the planning area (above the NC 92 bridge) to Haslin
Street Extension (near Pungo District Hospital).' Coastal wetlands.also occur at
the eastern end of Town on the two peninsulas surrounding Tooley's Creek.
Portions of these areas were classified as "Transition" land on the 1976 Land
Classification Map and approved as such by the Commission. This classification
does not negate the.existence of AEC's., however, and thus a conflict exists
between the Land Classification and AEC Maps. A third expanse of coastal
wetland occurs along the south bank of Pantego Creek.
The 1976 plan describes uses appropriate for coastal wetlands: These
include utility easements, fishing piers, docks and agricultural uses except
those -involving 'excavation or filling which. affects, estuarine or .other navigable
waters.
The 1976'.plan and the North Carolina Administrative Code also identify'
Inappropriate uses of coastal wetlands. These include restaurants, businesses,
residences, apartments, motels and hotels, trailer parks, offices, parking lots,
factories, spoil and dump sites, wastewater lagoons, public and private roads.
This is a very restrictive list for. AEC's with in -town locations. As
noted, Belhaven's major vacant land blocks.lie along Pantego Creek. Part of
this area.is covered by spartina cynosuroides, thus making. it a coastal wetland
AEC., Some parts have been used for *industrial. and other urban purposes in years
past. Previous use of'these areas renders questionable their present and future
significance as natural areas. More importantly, the wetlands west of Haslin
Street represent.a major resource for future industrial development.
Development policy alternatives for this area include the following: (1) public
acquisition for open space uses; (2) prohibition of private development through
regulation; (3) regulated development within such parts of the area as
I.
-23-

are actually within an AEC; 'and (4) action by the Coastal Resources Commission
to remove the AEC designation from the area.
The Town does not contemplate acquisition for several reasons. First, the
acquisition and maintenance costs -are beyond the Town's financial capability.
Second, open space use of the property would be an under -utilization of land
suitable for industrial uses.
Prohibition of development through regulation would force intensive uses
to -be oriented solely toward the railroad and.Main Street. .This would result
in a much smaller area available for development, perhaps precluding it alto-
gether for some.uses, such as those requiring access to the water for trans
portation.purposes.
Regulated development under existing AEC regulations is possible depend-
ing upon the land and water requirements of. the individual firm. These are
not presently known, however.
Removal of the AEC designation from marshland between N.C. 92 and Haslin
Street is the preferred solution. It is consistent with the 1976 Land Classi-
fication Map approved by the Coastal Resources Commission. and with the
suitability of the site for, industrial development in terms of utilities,
transportation, and zoning policy.
To summarize, Belhaven has little recourse but to seek the development
and redevelopment of the waterfront for urban uses, particularly industrial
uses. Prohibition of such development would result in the Town's foregoing
the benefits of industrial development or forcing it to inland locations..
The latter would be no solution at all if the.two types of locations are not
interchangeable for a given development proposal.
The precise type of industry to be sought cannot be stated at this time,
but it is the Town's objective to identify firms which can make maximum use
of the existing facilities: highway, water, and rail transportation..
-24-

They should also be relatively "dry" in terms of water consumption and
wastewater discharges. The latter must be capable of treatment by the
Town's trea=ent plant, with pre-treatment if .necessary, provided by the
firm itself.
For wetlands in the. eastern part of Town, residential uses are most
appropriate due to the nature of adjacent land use. These areas, too, can be
served by existing public water and sewer systems.
In September 1980, a representative of the Office of Coastal Management and
the Town Manager conducted an on -site inspection of both areas to define
precisely the extent of AEC coverage. The result of this survey was the
delineation of a relative small AEC along the Pantego Creek waterfront. It was
noted that the presence of the AEC did not necessarily preclude development of
the property, but that a permit would be required and that any proposed site
plan may be subject to revision depending upon the findings of the permit
officer.
Coastal wetlands were determined to exist on both peninsulas surrounding
Tooley's Creek. Again, development is not- necessarily precluded but it is
subject to the issuance of permits.
In both cases, it is the position of the Town that if the property owners
can obtain the required permits, development should proceed in accordance with
the land classification map contained in this plan.
ESTUARINE S-ORELINES
This :s the second type of AEC found in the Belhaven planning area.
Althc:._n characterized as dry land, estuarine shorelines are included as
AEC's beca::_e of their close association with the estuary itself. The
estuarine s-oreline extends landward for a distance of 75 feet from mean
high tide ::-normal water level.
-25-

Estuarine shoreline as an AEC has been defines along the Pungo River as far
west as the breakwater. This area is now occupied ty scattered residences, and a
marina at the head of Battalina Creek. The area has been zoned principally for
residential development.
Policy alternatives for development of estuarine shorelines include: '(1)
prohibition of all construction through regulation.; (2) public acqui
sit ion of the shoreline; or (3) limited use of the shoreline under AEC
regulations. A complete prohibition of construction seems unnecessarily
restrictive and perhaps not legally possible. The Town does not have the
resources to research the legal implications. Toc, it may unduly restrict
access to the water. Acquisition is beyond the Torn's financial capability,
though the Town would consider acceptance of dedications from property owners if
maintenance funds were available. Limited use of'a-he shoreline is consistent
with state policy on this type of AEC. It is also an inexpensive method of
shoreline management and technically effective.
It is the policy of the Town of Belhaven to z7low development within
estuarine shorelines in accordance with the Zoninc Ordinance of the Town of
Belhaven and the use standards as set forth in 15 uCAC 7H .0209 (e), and
reprinted here.
USE STANDARDS FOR ESTUARINE S-ORELINES
„ ..
(1) All development projects, proposals, and desins shall substantially pre-
serve and not weaken or eliminate natural barriers to erosion, including
but not limited to, peat marshland, resistan.t clay shorelines, cypress
gum protective fringe areas adjacent to vuln=_-able shorelines.
(2) All development projects, proposals, and des'ais shall limit the construc-
tion of. impervious surfaces and areas not all --wing natural drainage to
only so much as is necessary to adequately se -vice the major purpose or
use for which the lot is to be developed. Imcervious surfaces shall not.
exceed 30 percent of the AEC area of the lot, unless the applicant can
show that a limitation will allow no practic_use to be made of the lot.
(3) All development projects, proposals, and des' ns shall comply with the
following mandatory standards of the North Celina Sedimentation Pollu-
tion Control Act of 1973:
-26-

(A) All development projects, proposals; and designs shall provide for
a buffer zone along the margin of the estuarine water which is
sufficient to confine visible siltation within 25 percent of the
buffer zone nearest the land disturbing development.
(B) No development project proposal or. design shall permit an angle for
graded slopes or fill which is greater than an angle which can be
retained by vegetative cover or other adequate erosion -control devices
or structures.
(C) All development projects, proposals, and designs which involve un-
covering more than one.acre of 'land shall plant a ground cover
sufficient to restrain erosion within 30 working days of .completion
of the grading;.provided that this shall not apply to clearing land
for the purpose of forming a reservoir later to be inundated.
(4) Development shall not have a significant adverse impact on estuarine
resources.
(5) Development shall not significantly interfere with existing public rights
of access to, or use of, navigable waters or public resources.
(6) No major public facility shall be permitted if such facility is likely to
require extraordinary public expenditures-.for.maintenance and continued
. .use, unless it can be.shown that the public purpose served by the facility
outweighs the required public expenditures for construction, maintenance,
and continued use. For the purpose of this standard*, "public facility"
shall mean a project which is paid for in any part by public funds.
(7) -In those instances where ground absorption sewage disposal systems may
legally be -placed less .than 100 feet from the mean or normal high water
mark of any.water.s classified as S.A., such systems shall be permitted only
(A) The nitrification fines are'separated from the seasonal high ground
water by a minimum of,30 inches of suitable or provisionally suitable
soil; and
(B) It meets all of the other applicable laws and rules for ground absorp-
tion sewage disposal systems adopted by the North Carolina division of
health services and the North Carolina division of. environmental
management.
(8) Development shall not cause major or irreversible damage to valuable,
documented historic, architectural or�archaeological resources.
` -27-

PUBLIC TRUST WATER
All surface water in the Belhaven Planning Area is public trust water and
thus is an AEC. This includes Pantego Creek, Battalina Creek, Tooley Creek,
Wynne's Gut, Shoemaker Creek, and.the Pungo River.
The Zoning Ordinance does not deal adequately with the use of water -covered
areas; it is aimed primarily at the use of land even though the land adjoins
water. The zoning.ordinance thus requires some adjustment to make this
distinction. Pending such a revision, it is the policy of the Town of Belhaven
to allow development only of water dependent uses within the public trust water
AEC. These uses include:
Utility Easements
Culverts
Docks
Groins
Wharfs
Navigational Aids
Boat Ramps
Mooring Pilings
Bridges and Bridge Approaches
Access Channels
Revetments
Drainage•Ditches
Bulkheads
In addition to the above and consistent with the zoning ordinance it is the
policy of the Town to' allow the development of certain water related uses on
docks and wharfs otherwise permitted. Such uses include:
Restaurants
Retail Sale of Seafood
Amusement Halls
Gift Shops
Marine and Fuel and Oil Sales
Boat and Motor Works
Fishing tackle
Boat Sales
• -9R-

In addition to Areas of Environmental Concern, there are several other
constraints to development within the Belhaven Planning Area. The 1976 CAMA
plan identifies several of these including(I) hazardous areas, (2) flood
prone areas, and (3) areas with soil limitations.
HAZARD AREAS
The old air strip north of Town has been abandoned and plowed under for
agricultural use. Thus, no hazard is present from this source.
Several oil and petroleum product storage areas are located within the
.Town. These are located close to other structures which would be threatened
in the event of explosion and.fire. Future zoning policy will be to dis-
courage the expansion of hazardous uses in locations close to residential
areas and the central business district. The Town will also seek to identi-
fy suitable locations for the development of new uses requiring storage of
explosive and/or flammable products. An industrial park between Main Street
and.Pantego Creek east of N.C. 92 may be appropriate for the development
and/or'relocation of such uses.
FLOODING
Parts of the Belhaven Planning Area are subject to flooding. The areas
involved:- the entire i ncorpor ated 'area and much.of the unincorporated area
- were mapped in the 1976 Plan as "coastal flood plain" AEC's. The AEC
classification has since been rescinded by the Coastal Resources Commission,
but the area is still subject to flooding.
Alternatives for dealing with the flooding issue include (1) insurance
to cover losses incurred- an after -the -fact technique; and (2) preventative
measures- such as the construction of a dike and floodgate system.
The policy of Belhaven is to allow development within these areas if it
conforms to the standards of the Federal Insurance Administration (FIA) for
coastal high hazard areas and safety during``the flood surge from a 100 year
storm.
_Z9-

Belhaven has qualified for flood insurance subsidies from FIA and will
maintain that coverage through building code and zoning ordinance provisions
designed to assure location and construction standards consistent with FIA
regulations.
Construction of a dike to prevent flooding in the central business
district from Wynn's Gut is technically feasible and in fact such a plan has
been prepared by the Corps of .Engineers. During FY 1981 the Town will review
this plan and seek financial assistance from state and federal agencies to
implement the plan.
CULTURAL AND HISTORIC RESOURCES
'The Belhaven Planning area contains no buildings or sites listed in the
National Register of Historic Places.
There are no known sites of archaeological significance in the planning
area, but there has never been a thorough examination.of the area for this
purpose. The Town has encouraged the North Carolina Department of Cultural
Resources to conduct such a'study as funds become available.
In 1979, the Mid East Commission conducted a windshield survey of the
region, including Belhaven, to identify properties with architectural and/or
historic merit. Some of those so identified may, upon further research, prove
to be of sufficient value to nominate for inclusion in the National Register.
The Commission's consultant found twenty properties in Belhaven with features
qualifying them for inclusion in the regional inventory and further research.
These are illustrated on the "Historic Buildings Inventory" map.
All twenty are located in the Main Street`- Water Street corridor, the.
_ majority lying east of Pamlico Street. Most are residences and can be assumed
structurally sound since they are in use. Three are churches. One industrial
property, The Interstate Cooperage Company, is in ruins, likely beyond repair
for any use. None are in imminent danger of destruction though two (Brooks and
Credle houses) on Main Street are in the long-term path of commercial expansion
from the central business district.
-30-

The cluster of inventory properties east of Pamlico Street presents the
Town with possible justification for establishing .a historic district in the
zoning ordinance to provide for their protection.- It is not within the scope
of this plan to pass upon the architectural or historic value of any of these
properties.
It is appropriate, however, to point out that the Main Street - Water
Street areaAoes have a distinct character in terms of residential building
style, visual .relationship to the .river, and in terms of scale. The area is
strongly reminisicent of the early 19th century "walking city a pedestrian -
scale city with narrow lots, predominantly 2-story construction, well-defined
walkways,`and proximity to the central business distr.ict''and industrial activity,
on the waterfront. Its location and character are.definitely urban, but the
urbanness is softened by heavy fol,iage, distance 'from the most heavily travelled
streets, and, of course, by the influence of.the river..
Creation of a historic zoning district here is one way of assuring the
maintenance of the area in its present forma The North Carolina General
Statutes authorize such districts and the issuance of "Certificates of
Appropriateness" for all construction within the district. It is recommended
that the Town explore this possibility in depth during the next fiscal year.
The.`study.should include a.more detailed inventory of architecturally signi-
ficant.buildings, possible district boundaries, alternatives for ordinance
administration, design and preservation objectives, and district regulations.
In'fiscal year 1981 the Town will request grant funds and technical
assistance to further research the properties identified in the 1979 Historic
Buildings Inventory and to prepare a draft historic zoning district. A
historic district, of course, is not. mandatory. If such a district is not
created, the Town.will discourge the spread of commercial and industrial
development eastward into the Front Street - Main Street area as a matter of
routine zoning policy. If necessary, community development funds may be
sought to ensure its long-term viability as a residential neighborhood. These
funds would be used,. as appropriate, for the maintenance of basic public
services and for structural rehabilitation of residences.
-31-

BELHAVEN
NORTH CARO LINA
OA
G
Proposed c t• s CREEK
District \� 410
Y

In the coastal area, there are archeological and cultural resources of
great importance which are underwater: shipwrecks, docks.and wharves, etc. The
N.C. Division of Archives and History offers the following advice to coastal
communities:
Underwater cultural resources often hold a wealth of information due to
excellent artifact preservation and their normally undisturbed condition.
Exploration and study of historic waterfronts., abandoned or wrecked
vessels, etc., can shed light on many aspects of maritime history
associated with this planning area which might otherwise be unknown.
Therefore, the understanding and proper management of these irreplaceable
cultural resources is extremely important to prevent their loss during
future development.
Disturbance of submerged bottom lands, particularly during new
channel dredging and extensive waterfront development, should
consider possible effects to underwater cultural resources during
the earliest states of planning. In areas that have been used
historically for maritime activities, domumentary investigations
should be initiated to determine whether an underwater
archaeological survey is necessary. Known shipwrecks, many of which
are plotted on USGS maps or Coastal Geodetic Survey charts, should
be avaided or.investigated and assessed for historical significance
prior to final planning stages.
The Division of Archives and History has noted the presence of a "known
historic shipwreck" in Battaliria Creek. To prevent the possibility of damage to
this wreck in the event of a development proposal for this area, the local
permit officer has-been advised of the Division's interest and will act in
accordance with applicable regulations. State and federal regulations governing
development proposals which may impact sites and structures of historic,
archeological, and cultural merit are listed in the appendix.
-32-

HURRICANE AND FLOOD EVACUATION NEEDS
Coastal North Carolina is frequently affected by hurricane -induced
flooding. The barrier island chain is occasionally overwashed and bridges to
the mainland have been rendered useless by storm water. Belhaven is.on the
mainland dozens of miles from the open ocean. The Town is in no danger of being
cut-off from high ground as are communities further to the east. This safety is
a matter of degree, however. Storm induced flooding of a degree requiring
evacuation is a possibility though one oflow probability. These conditions
suggest the need for hurricane warning procedures and for evacuation.plans.
For Belhaven, the options include (1) no.plan at all, (2) preparation of
a plan independent of the other units. of government, and (3) joining Beaufort
County and its other municipalities in the Beaufort County Hurricane Evacua-
tion Plan.
The first alternative is simply dangerous. The second denies the benefits
available .from a county -wide system. Accordingly the Town has selected option
3 and joined the other units in the county evacuation plan.
The purpose of the plan -is to provide for.an orderly and coordinated
evacuation of threatened areas. It establishes a system for alerting public
officials the evacuation of the public when necessary, and the designation of
shelters for evacuees.
Under the plan, the Mayor of Belhaven is a member of the "Control Group
whose responsibility is to gxercise overall direction and control of evacuation
operations. and to institute other actions deemed necessary during a hurricane
emergency.
-J 'J-

RESOURCE PRODUCTION AND MANAGEMENT.
The 1976 CAMA plan discusses the economic base of the Belhaven Planning
Area at length. It identifies the relative importance of agriculture, forestry,
fishing, and tourism. Commercial fishing and associated processing and packing
of seafood products emerged. as the strongest components of the Belhaven economy.
Town policy with respect to natural resource production and management
recognizes the close relationship between Belhaven resident's economic
'livelihood and the land and water resources of -the area.
I1PRODUCTIVE AGRICULTURAL LAND
Several thousand acres of land in the northern part of the planning area
are in agricultural use at this time. Principal crops are corn and wheat.
There is nothing unique about these crops. They are grown throughout eastern
North Carolina. Conversion of the land to non -farm uses would not irreparably
damage the Town's economy nor deprive the state of some products which cannot be
produced elsewhere.
Agricultural production per se is not a development issue for Belhaven in
the same sense as, say, commercial fishing and substandard housing. It is more
•properly an issue for state and county. government. Agricultural production,
therefore, is. not amenable to policy alternatives analysis by the Town since
these are pre-empted by higher levels of government. Indirectly, of course,
agriculture has economic implications for the Town through employment and
property taxes generated by agricultural service industries. This is thought
to.be a separate issue, one of overall economic development, rather than
agricultural.
Nevertheless, Town policy does tend :to encourage continued agricultural
production in the planning area through the Land Classification Map, zoning
ordinance, and utility extension policies. Much of the unincorporated portion
of the planning area is classified as rural. on the Land Classification Map
thereby giving agriculture a high priority ,for use of these areas. Utility
44-

extensions into Rural areas (and reclassification of the land) would be made
only in response.to public health problems or upon clear showing of market
demand that there is an insufficient quantity of land within the Town to
accommodate the proposed development.
COMMERCIAL FOREST LAND
There is no commercial forest land in the Belhaven Planning Area. Some
timber is produced from family farms. 'Since 1976 several hundred acres of
wooded land west of U.S. 264 were cleared for field crops. This is consistent
with the rural classification of land in this area. No further policy state-
ments appear necessary with respect to.commercial forestry.
MINERAL PRODUCTION AREAS
There are no major mineral extraction operations in the Belhaven Planning
area.. A small concrete plant has opened in' the unincorporated part of the
.planning area.on U.S. 264 Alternate. It occupies a site of approximately 2
acres in an area classified as Rural on the 1976 Land Classification Map. Its
location in - a rural area is consistent with the definition of that class found
in 15 NCAC 7B .0204. No further policy statements appear necessary with respect
to mineral' production
t
COMMERCIAL AND RECREATIONAL FISHERIES
As noted elsewhere in this report, commercial fishing and associated indus-
tries are the strongest components of Belhaven's economy. Recreational fishing
is also important in the community as an attraction for tourists.
It is the policy of the Town to take whatever steps are appropriate to
maintain the vitality of the fishing industry in Belhaven. The Town's water-
front along Pantego Creek is obviously a factor in the industry's future.
The Town must insure the safe passage of fishing vessels to and from the docks
and it must insure`the availability of public services and space on the land
side to.accommodate fishing per se and related businesses.

Analysis of the present situation suggests that fishing and related
businesses need additional space on the waterfront to allow proper operations at
present levels of activity and to allow future expansion. A half dozen firms
are now crowded onto less than five hundred feet of frontage east of Pamlico
Street. The shortage of land not only prohibits on -site expansion but also Ii
produces congestion in the form of inadequate parking space and difficult
maneuvers for trucks which serve the firm's inland transportation needs.
Additional land may also be required for construction of industrial wastewater
pretreatment facilities, depending upon EPA requirements. Expansion of the
fishing and related business area to the east is undesirable due to the adverse
effects on the adjoining residential area. Expansion immediately to the west is
blocked by the hospital.property and the public boar ramp area at Wynn's Gut.
Clearly,'the fishing industry's problems cannot be settled in this
document.' Muchmore detailed work is required. Toward this end, the Town of
Belhaven offers to sponsor a•community forum aimed at identifying problems,
considering alternative solutions, and generating interest in designing a
cooperative private -public sector solution. Specifically, it is proposed that
the, owners of waterfront businesses consider the development of a consolidated
"Port of Belhaven" west of the hospital as part of the proposed waterfront
industrial park.
I .;
-36-

ECONOMIC AND COMMUNITY DEVELOPMENT.
The 1976 plan indicated rather conservative prospects for new growth and
development in the Belhaven planning area. This was the result of:
- Population projections showing continued decline through the
year 2000;
- Rigid interpretation of the land classification system;
- Inability of the Town to finance major sewer and water system
improvements.
in this updated plan the Town takes a more pro -growth posture based upon
the following factors:
Population seems to be growing again in contrast to the previous
long period of decline.
The Town has gained some new manufacturing jobs in the past five years.
The Town is engaged in a 11201" wastewater..treatment facility study.
- The enthusiastic reception of the Town's'communi'ty development program
indicates the feasibility.of efforts to restore blighted areas of the
.Town to usefulness and attractiveness..
In taking .a pro -growth stance, a number of specific issues. arise. Funda-
-mental to all is the Town's application for designation as a Growth Center under;
the•North Carolina Balanced Growth Policy Act. If designated, it is assumed
that the Town will receive a high priority for financial assistance from the
state and federal governments'to the proposed projects.
TYPE AND LOCATION OF DESIRED INDUSTRY
Virtually any growth in Belhaven must be supported by new jobs. These
must be located in Belhaven or its immediate environs due to the Town's great
distance from other populated centers along.the Pamlico River.

The basic choices to be made here include identification of areas suitable
for industrial development, the types of industries to be sought, and the level
of involvement by Town governmept in the industrial development effort.
Possible locations 'include the inland area along U.S. 264, the area west of N.C.
92; and the waterfront east of N.C. 92. Industry selection could be haphazard -
essentially, no real selection - or it could be done based upon' a comprehensive
analysis of the Town's resources for specific types of industry. Finally, the
level of activity by the Town could be low - serving merely in a review capacity
over proposals by private developers. Alternately, it could take an active part
in industrial promotion by devoting some of it planning budget to the program.
The best place in the planning area for the development of new, industry is
along the waterfront between N.C. 92 and Haslin Street. This area has,been
zoned for industry, served by water and sewer, and -has access to rail, highway,
and water transportation.
Belhaven will seek to attract new industry to this area, specifically those_
types of firms which can use the energy -efficient rail and water transportation
facilities which are available here. Specific industrial groups to be sought
cannot be stated at this time. However, it would seem appropriate to consider
those related to fishing, agriculture, and perhaps forestry. The Town will ask '
the Economic Development Administration to assist in identifying specific indus-
trial categories suited'to this site through.its "Industry -Community Match"
computer program.
u
PROVISION OF SERVICES
Belhaven's first priority for public service (e.g., water and sewer)
provision is to Developed and Transition areas within the current corporate
limits (see Land Classification Map).- The Town is now engaged in the second
stage of a sewage treatment needs study, including an examination of alterna-
tives for dealing with industrial wastes. The latter element will obviously
affect the Town's ability to maintain existing industries and to attract new
firms: t
The Town's second priority for water and sewer extensions is to serve
development beyond the current corporate limits. Given the slow rate of
-38-

population growth and the possible residential development in the Tooley's Creek
area, it is believed that extensions. beyond the corporate limits will be minimal
in the 1980-1985 period. From 1985 to 1990, extensions into the area between US
264 and 264 Alternate are likely as the last vacant land in Town is developed.
Virtually -any expansion of sewer and water treatment facilities will
require federal and state financial assistance.
DESIRED URBAN GROWTH PATTERN
The policies outlined above imply the Town's desire to achieve a tightly
clustered development pattern, focusing on the central business district. The
alternative is a pattern of dispersal for new development. This would entail
potentially high costs in terms of environmental *damage, agricultural land
losses, and energy consumption for transportation within the planning area.
Finally,. the Town is presently unable to finance major.water and sewer
extensions.
Under the clustered pattern, in -town areas would.be zoned to permit
relatively high density development. Outlying areas.would be reserved for low
density uses without water and sewer services, at least over*the next five
years.
REDEVELOPMENT OF CURRENTLY DEVELOPED AREAS
Belhaven recently began a community development program aimed at rehabili-
tating substandard houses and providing improved public services to blighted
neighborhoods. ,_This program was.initiated in contrast to the "No Action"
alternative under which rehabilitation would be left to the private market. The
likely result of that course would have been no action by the market, either,
and continued decline:in the quality of housing for Belhaven citizens.
Belhaven proposes to.continue this program over the next five years.. In
addition, the Town may. wish to examine the feasibility of applying community
development funds to non-residential areas - the central business district and
the waterfront - to. assure their continued economic usefulness.
L 1W -39- ..

COMMITMENT TO STATE AND FEDERAL PROGRAMS
Erosion Control: Belhaven is. particularly concerned about the erosion of
its eastern waterfront. At one point, Front Street itself lies but a few feet
from the water. Several homes are in danger of losing their foundations due to
wave action. The.Town will request technical assistance from the State of North
Carolina in determining the allowable area to be reclaimed by filling and in
designing appropriate stabilization measures. The alternative, to allow con-
tinued erosion and loss of property, is not a reasonable position for Town
government.
Dredging: Development of an industrial park on the waterfront may require
that the channel be dredged to allow tugs and barges to transport materials to
and from new industries.
Maintenance of existing water -related businesses also will require regular
dredging.
Other: There are no military facilities, highway improvements, or other
port facilities planned for the Belhaven area.
CHANNEL MAINTENANCE
The Town supports the Corps of Engineers' program to maintain and improve
the Intercoastal Waterway as an avenue of commercial and recreational traffic..
Given the Town's heavy economic dependence upon water related industry, there is
no real. alternative to this position. The Town will assist the Corps and State
agencies in maintaining adequate channels in the Belhaven area to the extent
possible. Specifically, the Town will assist, if requested, in obtaining
easements for work and in identifying and obtaining sites for "borrow" material
and.for deposition of "spoil" material.
-40-

TOURISM, WATERFRONT ACCESS
Beaufort County and Belhaven receive substantial economic benefits from
tourism. Yet it is not a fully developed segment of the Town's economy: much
additional economic benefit remains to be captured. The majority of Belhaven's.
tourism is the result of its location on the water. That location produces
opportunities for hunting, fishing, sailing, and other outdoor recreational
pursuits. Thus, the waterfront again figures prominently in Town development
policy. A.second basis for tourism is the Pamlico region's historic heritage.
The Towns of Washington, Bath, and Belhaven all contain buildings and/or .sites
of historical and architectural significance.- These attract many visitors
throughout the year but particularly during the summer.
It is the policy of the Town to promote tourism as an important segment of
the economy. Tourism, the waterfront, historic preservation and urban design
are inextricably bound in Belhaven. As noted elsewhere in this document, the
Town will consider the establishment of historic district in its zoning
ordinance-. A second project would be the preparation of a written history of.
the Town and of the buildings within the historic district. This might be
undertaken by a local historical society rather than by Town government. The
potential for guided walking tours of the historic area should also be evaluated
after building documentation is complete.
Ln addition to the physical linkages between tourism and the water, Town
policy should also be directed to visual linkages. The Town should seek to open
up vistas toward Pantego Creek from city streets. One opportunity for a vista
was lost years ago when the hospital was built at the foot of Allen Street.
The most important view of all — from Pamlico Street in the central
business district - is now partially blocked by industrial buildings at Wynn's
Gut. The development of an industrial park and consolidated fishing port
facilities to the west offers potential for the eventual re -opening of the
Pamlico Street view. A Town park and promenade could be the featured re -use of
the property along with an expanded recreational boat launching ramp.
A,

Energy Facility Siting
As noted, a tentative proposal to construct a methanol plant using peat as
a fuel has been made by a Beaufort County business firm. The methanol would be
distilled from corn grown in this area. No plant site has yet been specified
and it is not known whether it will be located within the Belhaven planning
area. The Town has too little information about this proposal to take any firm
policy stance at this time. In general terms, however, the Town tends to favor
industrial growth to the extent that it can be accommodated within existing
environmental law. Potential use of the railroad to serve this firm should also
help to insure continued service to Belhaven, clearly a favorable factor in the
Town's view. The Town will otherwise have to rely on the appropriate state
agencies to keep it informed of the potential impacts of the proposal.

LAND CLASSIFICATION
A land classification system has been developed as a means of assisting in
the implementation of the policies adopted by the Town. By delineating land
classes on a map, local government and its citizens can specify those areas
where certain policies (local, state and federal) will apply. Although specific
areas are outlined on a land -classification map, it must be remembered that land
classification is merely a tool to help implement policies and not a strict
regulatory mechanism.
The designation of land classes allows the Town to illustrate its policy
statements as to where and to what density it wants growth to occur, and where
it wants to conserve natural and cultural resources by guiding growth.
The land classification system includes five broad classes. These may be
subdivided into more specific land use designations. Any sub -classes which are
used should be able to be aggregated back to the original five broad classes.
The five general land classes are: Developed, transition, community, rural and
conservation.
(1) DEVELOPED
A Purpose. The purpose of the developed class is to provide for
continued intensive development and redevelopment of existing
cities.
(B) Description. Areas to be classified developed include lands
currently developed for urban purposes at, or approaching a density
of 500 dwellings per square mile that are provided.with usual
municipal or public services including at least public water,
sewer, recreational facilities, police and fire protection. Areas
which exceed the minimum density but which do not have public
sewer service may best be divided into a separate class to
indicate that although they have a developed character, they will
need sewers in the future.
(2) TRANSITION
A urpose. The purpose of the transition class to provide for
future intensive urban development.within the ensuing ten years
on lands that are most suitable and that will be scheduled for
provision of necessary public utilities and services. The transi-
tion lands also provide for additional growth when additional
lands in the developed class are not available or when they are
severely limited for development.

(B) Description.
( i) Lands to be classified transition.may include: (1) lands
currently having urban.services, and (2) other lands
necessary to accommodate the urban.population and economic
growth anticipated within the planning jurisdiction over the
ensuing ten year period.
( ii) Lands classified transition to help meet the demand for
developable anticipated population and economic growth must:
(1) be served by public water, sewer, and other urban -
services including public streets, and (2) be generally free
from severe physical limitations for urban development. In
addition, the transition class should not include: (1)
lands of high potential for agriculture, forestry, or
mineral extraction, or land falling within extensive rural
areas being managed commercially for these uses, when other
lands are available; (2) lands where urban development might
result in major or irreversible damage to natural systems or
processes of more than local concern.
(iii) ' In determining the amount 'of additional transition lands
necessary to meet projected urban population and economic
growth, the Town may utilize estimates of average future
urban population density that are based upon local land
policy, existing patterns and trends of urban development,
and densities :specified in local zoning, if any; an estimate
of additional Transition class lands should be based upon a
guideline density of 2,000 persons or 500 dwellings per.
square mile.
(C) Discussion. The developed and transition classes should be the
only lands under active consideration.for intensive urban develop-
ment requiring urban services.. The area within these classes is
where detailed local- land use and public investment planning must
occur: State and Federal expenditures on projects associated with
urban development water, sewer, urban street systems, etc. wJ
i a to these areas. Large amounts of vacant land suitable
or urban development within the Developed class should be taken
wh into account en calculating the amount of additional lands needed
to accommodate projected growth. The total area shown as Transi-
tion should be equal to the land needed for proposed population
increases that can not be accommodated in -the vacant developed
.areas. The designation of Transition lands will be a very
difficult and political process. -Counties and municipalities with
declining populations may show some limited transition lands as an
inducement for future growth.. As will.be the case in all areas,
however, the amount of transition lands shown should remain within
reasonable limits, taking into account any significant amounts of
undeveloped lands within the developed class.
(3) Community.
(A) Purpose. The purpose of the community class is to provide for
clustered land development to help meet housing, shopping, employ-
ment, and.public service needs within the rural areas of the
county.

(B) Description. Lands to be classified community are those areas
within the rural areas of planning jurisdictions characterized by a
small grouping of mixed land uses, (residences, general store,
church, school, etc.), and which are suitable and appropriate for
small clusters of rural development not requiring municipal sewer
service.
(C) Discussion. It should be stressed that the community class applies
to clustered rural development which usually occurs at crossroads.
Some "communities" that nonetheless should not be classified
developed or transition may have, or may require, public services
to correct an existing condition or to avert an anticipated public
health problem. Many of these communities might have their own
water system because the density of the development precludes
having both private wells and septic tanks. Due to the small size
of most communities, it might suffice to identify them by a symbol
on the land classification map.
(4) Rural
(A)
Purpose. The purpose of the rural class is to provide for
agriculture, forest management, mineral -extraction and other low
intensity uses. Residences may be located within "rural" areas
where urban services are not required and where natural resources
will not be permanently impaired.
(B)
Description. Lands that can be identified as appropriate for
resource management and allied uses include lands with high
potential for agriculture, forestry, or mineral extraction; lands
with one or more limitations that would.make development costly and
hazardous; and lands containing irreplaceable, limited, or
significant natural, recreational or scenic resources not otherwise
classified.
(C)
Discussion. The rural class is the broadest of the five classes.
In order to manage these lands effectively local governments will
be encouraged to create sub -classes within the rural class. For
example, the rural class could be subdivided into two classes,
rural -production to provide for the effective management -of large
agricultural, forestry, and mineral extraction areas, etc., and
rural -residential for low density rural residences.
(5) Conservation
(A) Purpose. The purpose of the conservation class is to provide for
effective long-term management of significant limited or irreplace-
able areas. This management.may be needed because of its natural,
cultural, recreational, productive or scenic values. These areas
should not be identified as transition lands in the future.
(B) Description. The conservation class should be applied to lands
that contain: major wetlands; essentially undeveloped shorelands
that are unique, fragile, or hazardous for development; necessary
wildlife habitat or areas that have a high probability for provid-
ing necessary habitat conditions; publicly owned water supply water
sheds and aquifers; and forest lands that are undeveloped and will
remain undeveloped for commercial purposes.
AE'

Land Classes
Devclopuld
Purpose
To provide for continued'inten-
sive development and redevelop-
ment of existing cities %.
SUMMARY OF LAND CLASSIFICATIONS
Characteristic!-.
Lands currently developed for urban
purposes_ with urban services available
Transition To provide for future Intensive Lands being developed for urban pur-
urban development nit lands. that poses but which do not yet have usual
are most suitable and that areurban services, lands necessary to
exist likely to be scheduled accommodate population growth for the
far provision of tecessary, next .Len year period, l.ttuds which
public utilities and services can be readily serviced with usual
urban services, lands generally free
from severe physical limitations for.
development
Conmunity To provide for clustered mix
uses to help shopping, housing,
veil loymeni and public service
needs within the surrounding
area
Rural
Conservation
To provide for agriculture,
forest nw nagenent, mineral ex-
tractions and virious, low
intensity uses on larcic sites
including residences where urban
services are not required and
natural resources will not be
unduly impaired
To provide for effective long-
term manageiimit of tracts of .
land consistent with their sig-
nificant, limited, or
Irreplaceable natural,
recreational, productive or
scenic resources with the intent
ilim they will not be Went i f ie(i
as Transitlon lands In the
immediate future
Services
Usual municipal or public services
including water, sewer, recreation
facilities, police, and fire
protection
Usual municipal or public services
to be made available at the time
of development or soon thereafter
Lands characterized by a rletster.af Limited municipal type services
residential and commercial land such as fire protection, etc.
uses in rural areas may have public water but no
Lands identified as apj-t#,t!rt:.iri:
locations for natural t .,uI*I*b
management and allied ure•:, lands
With one or more 1 imi tat ie.toss that
would make development costly and
hazardous
Lands that contain major wetlands,
necessary vilIdlife habitats,.
publicly owned water -supply watersheds
and acquifers, lands providing siq-
ni f icant recharge to groundwater, and
lands which contain significant natural
scenic, recreational or productive
resources
public sewer system:. Pul,lIf.
:.ewers possible only to c.irriseL
;III exis[ing or projected tmblie
health hazard
Private septic tanks vat we l is .
ether %ervices such its restu•!
squids, police and fire pro-
tection, etc.
No services and limited access
only

1
e*
16
4addeveloped
i O , o O 0
° e p e e o° a rf[f111
on O°O O 00.°ep 0 C 0 O OesO`�^7�p�/�\�° O°°
p 0 °°°O°O O p p 00 ° °e p0°° a°p°00000 O O e° ° Oe O°O //'
0 ° 00 0 O O O 00 p 0 0 0 0 O O
° eo °p°o°e o pO ep°°°°O°p p e°°pOO ° °p°p a qO ` [� r1, i�
pO000°cape ° e ee°area eoapO °eo ppO 'Monse 1�� io��
transition
rura
L
01
'0000
•' •
. :•..:
^.�: •� � .t,. ;t.
<<...
Ise};��::'
.::::::.,
•;
r.
VIN
community
Under the.latnd classification system all land will be placed Into oneot firs classes.
{.r.••..;
The Community class will include existing clustered rural
residential and commercial areas such as erossroadi developments.
These areas may require a public water system but public sewers
should not be allowed.
The Developed class will include existing urban area which
are currently supplied with a lull range of public services Including
The Rural class will identify those lands good for agriculture.
forestry. mining, and other land uses such as rural housing
water and fewer latilithn.
deperpfing on private wells and vplie tanks.
° s • p
The Trentillon class will itlQnlily'thpla aleos with lantl gotrd
Is jrbiin devth-mnenl which will he supplied with public serv.tes ' _
nommlale luturt pupulslion and economic growth,
,........ ..'•..
A
The Commotion class will Idaniily those ores: which due to .
their significant, limrttrl, at irreplaceable nalutal. reertalloatal, 01
scenic resources need to he protected.

LAND CLASSIFICATION MAP
AND
RELATIONSHIP TO DEVELOPMENT POLICIES
The 1980 Land Classification Map contains numerous changes from the 1976
map. These changes do not imply extensive new development over the past five
years nor the extension of water and sewer services' to new areas.- The changes
proposed here reflect two complementary ideas: (1) the Coastal Resources
Commission's revised criteria for mapping the various classes of land, and (2) a
re -interpretation of the existing land use pattern.
The 1976 map was based upon a strict application of the commission's then
current guidelines relating current and future population and services to the
various classes. The result of that process was a map which tended to illus-
trate ground coverage by structures rather than the use of land. Residential
areas were mapped often without reference.to yards, storage areas, home garden
plots and accessory uses of the:property. Vacant lots within otherwise develop-
ed blocks were -classified .as transitional. Commercial areas were mapped without
reference to required,off-street parking and loading space. Open space in
public ownership (e.g. a park) was shown as transitional when, in fact, it was
developed..for a low intensity open space use.
The 1980 map views the'land use pattern in broader terms. Land within the
Town is mapped largely on a block -by -block basis,�rather than the finer distinc-
tions attempted in 1976. The map also employs the revised classification guide-
lines which acknowledge the presence of some vacant land within developed areas.
Generally, if at least half of a block is in use for urban purposes, and if
Water and sewer are available to that block, the entire block is classified as
developed.
Some large tracts along the. -waterfront are subdivided into transitional and
developed land. These tend to distinguish the actual "in -use" portions of major
-48-•

B L H Ali` k lU ..
NORTH CARO LINA
LAND CLASSIFICATION
1980 \ .
D= DEVELOPED .•. "'
T= TRANSITION \•
R= RURAL
C= CONSERVATION
11 Amended, this the day of S er, 1981
Y
2,

commercial and industrial holdings from those which are aviailable for new
development or expansion of existing firms.*
The relationship between the land classification map and the development
policies is clear and simple. First, the extensive mapping of developed and
transitional land within the current corporate limits is consistent with the
Planning Board's desire to maintain a compact,settlement pattern. By providing
urban services only to areas now within the Town, high density development on
the periphery should be discouraged.
This implies and requires, however, that the Town must be allowed by state
and -federal agencies to develop land which in other parts of the North Carolina
coast might be considered undevelopable for ecological reasons. These areas
include (1) the waterfront west of Haslin Street including any marshland, which
is proposed for industrial development, and (2) the land north of Tooley's
Creek** which is proposed for residential -development. In summary, the Land
Classification Map and Town development policies call for the treatment of these
areas as an urban waterfront and allowing for the development of the land
consistent with that view.
The rural classification of most land north of the current corporate limit
is consistent with Town policy recognizing the importance of agricultural
production to the local economy . It is also consistent with market forces which
have shown virtually no interest in this area for intensive development over the.
past ten years.
South of Pantego Creek`, a ribbon of conservation is shown at the water's
edge. Maps from the Department of Natural Resources and Community Development
indicate the presence of marshland here. As this area is undeveloped'at this
time and lacking utilities, the land should remain in a natural state. However,
like that in Belhaven itself, the maps are of suspect accuracy. Therefore, the
-----------------------------------
* "Available" at least in the sense that they are vacant at this -time.
** Amended by Belhaven Town Council September 21, 1981.
-49-

appropriate state and federal agencies should inspect this area and prepare
accurate maps of the locations of Areas of Environmental Concern.
All other land south of Pantego Creek is classified as rural. This again
is consistent with the policy of not undertaking a major utility extension
program at this time. This area is somewhat different from the northern rural
area in that there have been several expressions of interest in developing year-
round and/or vacation homes here. The Town will evaluate any development pro-
posals in this area -on a case -by -case basis if the area is retained within the
Town's planning jurisdiction. There is some question whether the Town will
'benefit from its continued inclusion. Since the area is unlikely to be annexed
in the foreseeable future, the Town could be saddled with the costs of
regulating development there and never receive any benefit from the expenditure.
This issue will be taken up as part of a re-evaluation of the Town's development
codes. s
r

ASSESSMENT OF PLAN EFFECTIVENESS
The Coastal Area Management Act is one of a myriad of programs of state
and federal "assistance" to local governments. These programs are initiated
with such objectives as maintaining environmental quality, improving housing
conditions, promoting highway safety, economic development, and others.
Their common denominator is the desire to improve the quality of life within
the community in which the program is undertaken.
The.fact that such programs are based upon noble motives does not mean
that all are "good" in some absolute sense. Each program has a cost in terms
of dollars. Some, such as CAMA, also have a cost in terms of restrictions on
the activities of. individuals, e.g. the owner of land in an area of environ-
mental concern: The bill for state and federal assistance to local govern-
ments amounts to many billions of dollars each year. The other costs are not
so easily calculated, but they are known to exist. In many cases we do not
even know precisely who is "paying" the bill.
There is yet another matter which is sometimes'.overlooked in the race to
"assist": is the program effective? That is, did the program bring about
the desired change? The determination of program effectiveness is called
program evaluation. Program evaluation is designed to ask the fundamental
question about program performance: "What difference did the program make?
Beaufort County and the Town of Belhaven,,for instance, may have joint-.
ly established a'goal for their CAMA plans of improving the quality of water
in the Pungo River. Both units would have employed certain strategies and
taken actions over a period of years designed to achieve this goal. Water
quality is measured at the beginning of the planning period and then, say,
five years later. Two questions are now asked:
(1) Has there been any change in water quality during the 5-year.
study period?
a

(2) What caused the change, i.e., was the change brought about
by implementation of the Beaufort County and Belhaven plans?
With respect to the first question, we would hope to find that indeed
.there had been some change in water quality, that the water was now cleaner
as measured by some standards, say, a lower level of phosphorus and a higher.
level of dissolved oxygen.
The second question deals with the possibility that the plans in
question had nothing to do with the improvement in water quality. The im-
provement could have resulted from actions taken several years prior to plan
.adoption, say, the construction of tertiary sewage treatment facilities,
changes in farming methods, and the closing of industrial source of
pollutants. A sound evaluation of plan effectiveness would thus conclude
that the plans were not effective in improving water quality, that we could
have -achieved the improvement without the plans.
This. example, of course, is highly simplified and CAMA is not a simple
program. ..Nevertheless, many residents of coastal.North.Carolina would like
to know "what difference" CAMA has made. The North Carolina General Assembly,
.the executive branch of."state government', and the -federal government also
need to know the extent to which CAMA plans have been effective so that
program modifications can be made if necessary.
USES OF THE CAMA LAND USE PLANS
The obvious first step in assessing plan effectiveness is to identify
the.plan's goals and objectives. These are discussed in an earlier chapter
of this report for the Town of Belhaven. Goals and objectives for the State
as a whole are set forth in the Act itself.
The next step is to determine who uses the plan and for what purpose.
The Coastal Resources Commission has prepared the following statement both

by way of information to coastal area residents and as a guide to the plan
effectiveness element,of this plan update.
The land use plans which are prepared by local governments in the
coastal area are distributed, widely,, and have many uses. Among the users of
the plans are local governments, regional councils of government, state and
federal permitting. agencies and public and private funding and development
groups.
The discussion of policies and the land classification map will serve as
the basic tools for coordinating numerous policies, standards, regulations
and other governmental activities at the local, state and federal levels.
Such coordination may be described by three applications:
-. (a) The policy of discussion and the land classification map encourage
coordination and consistency between local land use policies and
the state and federal governmental decisions and activities .which
affect land uses in the coastal region.
(b) The local land use plans provide a framework for budgeting, plan ,
ning. and for the provision and expansion of community facilities
such as water and sewer systems, schools and roads.
(c) -The local land use plans will aid in better coordination of
regulatory policies and decisions by describing the local land
use policies and designating specific areas for certain types of.
activities.
Local Government Uses.- Counties and municipalities may use the local
Ian d use plans in their day to day business and in planning for the future.
Oftentimes, the land use plan provides guidance in local policy decisions
relating to overall community development. The plans also provide the basis
for development regulations and capital facility planning and budgeting. By
delineating how the community wishes to grow, the land use plans help to
assure the best use of tax dollars as public utilities can be extended to
-54-

the best areas for.growth.
d
Regional Uses - The regional councils of government or planning and
development commissions use the local land use plans as the basis for their
regional plans and in their function as regional clearinghouse for state and
federal funding programs. The local plans can indicate to these regional
decision makers what types* of development. the local community feels are
important and where the development should take place.
State and Federal Government Uses - The local land use plans are used as
a major component in the granting or denial of permits for various develop-
ments within the coastal area. The state and federal agencies must be sure
that their decisions consider the policies which .are set` out by the local
governments in their. plans. The Coastal Area Management Act stipulates that
no development permit may be issued if the development is inconsistent with
the local land use plans. This is also true for decisions relating to the
use of federal or state funds within the coastal counties, and projects being
undertaken by state and federal agencies themselves must also be consistent
with the local plans.
SPECIFIC -USES OF LOCAL LAND USE PLANS IN
PERMIT LETTING AND CONSISTENCY REVIEW
The land use. plans are being reviewed in all CAMA and Dredge and Fill
permit reviews., and in the review of projects which come under the federal
consistency provisions.. There are basically two ways in which the plans can
be used: (1) as the primary reason for denial, that it there are not state
environmental regulations involved, or (2) as a secondary reason for approval
or denial, which when combined with the environmental regulations provide
grounds for a specific action.
To date, the land use plans have been used to.find six projects incon-
sistent. All of these projects involved the placement of structures or fill
A

in freshwater wetlands where no CAMA or dredge and fill permits are required.
In these instances, the local. plans (New Hanover County, Pasquotank County,
and Carolina Beach) designated the areas in question as conservation. All
three plans described the conservation classification as "lands that should
be left essentially in their natural state". The inconsistency determination
brought* about denial of federal permits by the Corps of Engineers. One of
the projects also brought about objections from the Wildlife Resources
Commission as the project involved,the filling of an anadromous fish spawning
area. In this instance, the land use plan was used in conjunction with the
environmental objection to find the project inconsistent.
.In the.state permitting process, the local plans have been used as a
primary reason to deny projects; asthe primary reason to approve a project;
and as a clarifier in cases where there is a problem due to more than one
environmental regulation applying. In many instances. the local land use plan
could have been used in these instances, however the intention of the plan
was unclear.
As. noted, CAMA is not a simple program and it is not limited to Belhaven
and Beaufort County. A true program evaluation as -described in the litera-
ture is,.not possible from only the Town's standpoint. It must be conducted
at the regional or state level by the Coastal Resources Commission.
To date, only one application for a minor .development permit within an
AEC has been filed (and approved): This was for a bulkhead on Pantego Creek,
located on property owned by River Forest Manor. No other development
proposals have been made which required modification due to CAMA plans.
-56-

INTERGOVERNMENTAL COORDINATION
On May 7, 1980, the required meeting of Beaufort County planning agencies
was held to assure consistency between county and municipal plans.
Beaufort County and each municipality within the county was represented by
a delegation of elected officials, appointed officials, and planners.
Plans for the Town of Washington were presented jointly by the Town's
Community Development Director, Mr. Marvin Davis, and by the Town's planning
consultant, Mr. Robert M. Leary.
Beaufort County plans were presented by Mr. John Prevette, Planning
Director.
Belhaven's plan was presented by Mr. Lee Downie, representing the firm of
Williams & Works.
Each participant described the major planning/policy issues under study
within the communityand proposals for dealing with them. .It was noted that
these proposals :were still in draft form at the time of the meeting, but that
significant departures from the drafts were unlikely before submission of plans
to the Coastal Resources Commission in June,-1980.
The conclusion of the participants was that there appeared to be no
conflicts between the plans of the three planning units represented at the
meeting.
r

CITIZEN PARTICIPATION
PLAN.UPDATE
In preparing this plan, citizen participation has been encouraged
through several methods.
p
First, all meetings of the Planning Board are open to the public and
held -at Town Hall. Notice of all meetings is published in the local
newspaper.
Second, the Planning Board submitted a press release to the newspaper.
describing the purpose of the plan update, the major issues to be addressed
by the plan, and an invitation to Belhaven citizens to assist the Board by
providing input to the plan.
The draft plan will be submitted to the newspaper along with an
executive summary highlighting major findings, after review by the Town
Council.
PUBLIC EDUCATION
The Town Manager is the person with principal responsibility for public
education on planning issues. The Manager does this through appearances
before numberous civic groups ,to discuss a variety of planning matters. The
Manager also maintains a close working relationship with the press, supply
ing much information to the public through published interviews and
occasionally, through radio and TV appearances. These activities are vital
elements of the Town's citizen participation program and will be continued
in the future.

CONTINUING EFFORTS
As noted, the draft plan update will be submitted to the local
newspaper for publication.
The Town Manager will -continue his activities as described above.
The Town Council's public hearing will provide a third major method of
public participation.
Other public participation activities will be specifically related to
plan implementation activities as described in the plan. These will
include:
Project area committee work on -future community development
activities.
Waterfront revit'al i zat ion "forum".
- Assistance in creating a: historic zoning district'.
=b9-

V
r
STATE LICENSES AND PERMITS
Agency
Licenses and Permits
Department of Natural Resources and
- Permits to discharge to surface
Community Development
waters or operate waste water
Division of Environmental Management
treatment plants or oil discharge
permits; NPDES Permits,
- (G.S. 143-215
Permits for septic tanks with a
capacity over 3000 gallons/day
(G.S. 143-215.3).
- Permits for withdrawal of surface
or ground waters in capacity use
_
areas (G.S. 143-215.15).
- Permits for air pollution abate-
ment facilities and sources
(G.S. 143-215.108).
— Permits for construction of com-
plex sources; e.g. parking lots,
subdivisions, stadiums, etc.
(G.S. 143-215.109).
- Permits for construction of a
well over 100,000 gallons/day
(G.S. 87-88).
- Permits to dredge and/or fill in
estaurine waters, tidelands, etc.
(G.S. 113-229).
- Permits to undertake development
in Areas of Environmental Concern
(G.S. 113A-118).
NOTE: Minor development permits
are issued by the local
government.
Department of Natural Resources and
- Permits to alter or construct a
Community Development
dam (G.S. 143-215.66).
Division of Earth Resources
- Permits to mine (G.S. 74-51).
- Permits to drill an exploratory
oil or gas well (G.S. 113-381).

- Permits to conduct geogra hical
exploration (G.S. 113-391�.
Sedimentation erosion control
plans for any land disturbing
activity of over one contiguous
acre (G.S'. 113A-54).
I Department of Natural Resources and
- Permits to construct an oil
Community Development
refinery.
Y
Secretary of NRCD
Department of Administration
- Easements to fill where lands
are proposed to be raised above
the normal high water mark of
navigable waters by filling.
(G.S. 146.6 (c)).
Department of Human Resources
— Approval to operate a solid
waste disposal site or facility
(G:S. 130-166.16).
- Approval for construction of
any public water supply facility
that furnishes water to ten or
more residences (G.S. 130-160.1).

FEDERAL LICENSES
AND PERMITS
-Agency
Licenses and Permits
Army Corps of Engineers
- Permits required under
(Department of Defense)
Sections 9 and 10 of the Rivers .
and Harbors of 1899; permits 'to
construct in navigable waters.
Y
- 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 of 1972;
permits to undertake dredging
.
andjor filling activities.
Coast Guard
- Permits for bridges, causeways,
(Department of Transportation)
pipelines over navigable waters;
required under the General.
Bridge Act of 1946 and the
.
Rivers and Harbors Act of 1899.
- Deep water.port permits.
Geological Survey
- Permits required for off -shore.
Bureau of Land Management
drilling.
(Department of Interior)
- Approvals of OCS pipeline
corridor rights -of -way.
Neuclear Regulatory Commission
- Licenses for siting, construc-
tion and operation of nuclear
power plants; required under
the Automic Energy Act of 1954
and Title II of the Energy
Reorganization Act of.1974.
Federal Energy Regulatory.Commfssion
- Permits for construction,
operation and maintenance of
interstate pipelines faci l'i ties
required under the Natural Gas
Act of 1938.
- Orders of interconnection of
electric transmission facilities
under Section 202 (b) of the
IFederal
Power Act.
-62 `

-vv-_

T
FEDERAL AND STATE CONTROLS
AFFECTING HISTORIC AND ARCHEOLOGICAL SITES
1 FEDERAL
National Historic Preservation Act of 1966
The Archeological and Historic Preservation Act of 1974, Public Law 93-291
Executive Order 11593, Protection and Enhancement of the Cultural
Environment, 16 U.S.C. 470 (Supp. 1, 1971)
National Environmental Policy Act, Public Law 91-190, 42 U.S.C.
4321 Et. Seq. (1970)
Community Development Act of 1974, Public Law 93-383: Environmental
Review Procedures for the Community Development Block Grant Program
(40 CFR Part 58)
Procedures for the Protection of Historic and Cultural Properties
(36 CFR Part 800)
Comprehensive Planning Assistance Program (701) as Amended by Public
Law 93-393
The Department of Transportation Act of 1966, Public Law 89-670
Identification and Administration of Cultural Resources: Procedures
of Individual -Federal Agencies
STATE
G.S. 121-12(a) Protection of Properties in the National Register
State Environmental Policy Act, Article 1 of Chapter 113A of the
General Statutes
Executive Order XVI
Indian Antiquities, G.S. 70.1-4
Salvage of Abandoned Shipwrecks and Other Underwater Archeological
*Sites: G.S.'121-22, 23; 143E-62 (1) g, (3)
Archeological Salvage in Highway Construction, G.S. 136-42.1
Provisions -for Cultural Resources -in Dredging and Filling
Operations, G.S. 113-229
-64- 1—"V�