Land Use Plan Update-1986

DCM COPY — —VWr ► ` DCM COPY
lease do not remove!!!!!
Division of Coastal Management Copv
TOWN OF BELHAVEN
LAND USE PLAN UPDATE
1986
1 ^ .

1 9 8 6
B E L H A V E N L A N D U S E P L A N
U P D A T E IN
Adopted by the Belhaven Town Council April 6, 1987
Certified by the Coastal Resources Commission July 24, 1987
PREPARED BY:
MID -EAST COMMISSION
P.O. DRAWER 1787
WASHINGTON, NC
The preparation of the plan was financed in part by a grant provided
by the North Carolina Coastal Management Program, through finds
provided by the Coastal Zone Management Act of 1972, as amended, which
is administered by the Office of Ocean and Coastal Resource Management,
National Oceanic and Atmospheric Administration.

1986 BELHAVEN LAND USE PLAN UPDATE
ACKNOWLEDGMENTS
Prepared by:
TOWN COUNCIL
Charles 0. Boyette, Mayor James B. Hodges
W.P. O'Neal, Jr. Frank Ambrose, Jr.
Rhonda M. Flowers Judy E. Allen
PLANNING BOARD
John Jones, Chairman George Baker
Aubrey Hollowell Freddie Sawyer
Wilber Logan Dr. Thomas Vicar
MID -EAST COMMISSION PLANNING AND DEVELOPMENT STAFF
Lynn Roche Phillips, Technical Advisor
Libby Anderson, Technical Advisor
Robert Paciocco, Planner -In -Charge
BELHAVEN IN -KIND ASSISTANCE
Tim Johnson, Town Manager
The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through the Coastal Zone Management Act of 1972, as amended.
The Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration, is also responsible for
funding for this document.

'
TABLE OF CONTENTS
DATA COLLECTION AND ANALYSIS
1
'
Introduction
1
Establishment of the Data Base
2
PRESENT CONDITIONS
3
Present Population and Economy
3
'
Summary
10
'
EXISTING LAND USE
Introduction
11
11
Land Use Summary
11
CURRENT PLANS, POLICIES AND REGULATIONS
17
'
Plans
17
Policies
18
Regulations
20.k.
'
CONSTRAINTS: LAND SUITABILITY
22
Introduction
22
'
PHYSICAL LIMITATIONS FOR DEVELOPMENT
Hazards
22
22
Soils
24
Water Supplies
26
'
Excessive Ground Slope Areas
27
Fragile Areas
28
Areas With Resource Potential
37
'
CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
41
Introduction
41
Water and Sewer
41
'
Solid Waste Collection and Police and Fire
Protection 42
Schools
43
Roads
44
'
Medical Facilities
46
ESTIMATED DEMAND
47
Population and Economy
47
'
Summary
49
REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS
50
'
Resource Protection
51
Resource Production and Management
53
Economic and Community Development
54
'
ISSUES AND POLICY STATEMENTS
56
RESOURCE PROTECTION
57
'
Development in Areas with Constraints
AEC Development
58
61
Other Fragile Areas and AECs
63
Hurricane and Evacuation Needs
66-
'
Protection of Potable Water
66
Use of Septic Tanks
67
Storm Water Runoff
69
1

r
Marina and Floating Home Development
71.
Industrial Impacts around Fragile Areas
72
RESOURCE PROTECTION AND MANAGEMENT
74
Productive Agricultural Land
74
Existing and Potential Mineral Production Areas
76
Commercial and Recreational Fisheries
78
Off -Road Vehicles
79
Impact of Development Types on Resources
80
ECONOMIC AND COMMUNITY DEVELOPMENT
81
Location and Types of Industries Desired
81
Commitment to Providing Services
84
Desired Urban Growth Patterns
85
Redevelopment of Developed Areas
86
Commitment to State and Federal Programs
88
Channel Maintenance and Waterfront Improvement
89�._
Energy Facility Siting and Development
91
Tourism and Beach/Water Access
91
Types, Densities, and Location of Anticipated
Development
93
HURRICANE AND STORM HAZARD MITIGATION
95
Introduction
95
Hazards Map
96
Effects of Storm Components on Hazard Zones
101
Summary
104
Post -Disaster Reconstruction
106
Introduction
106
Immediate Clean -Up
107
Recovery Task Force
109
Schedule for Repair and Reconstruction Over Longer
Period
110
Evacuation Routes and Times
ill
Summary
114
Intergovernmental Coordination
115
Storm Hazard Mitigation and Post -Disaster Reconstruction
Policies
116
PUBLIC PARTICIPATION 118
LAND CLASSIFICATION SYSTEM 121
RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION 12B
INTERGOVERNMENTAL COORDINATION 130
APPENDIX A 132
APPENDIX B 136
APPENDIX C 140
APPENDIX D 145

LIST OF FIGURES
FIGURE NUMER
NAME
PAGE NUMBER
I
Belhaven Planning Area
4
2
Population Change from 1960 to
5
1984 - Belhaven and Beaufort
County
3
Employment by Persons 16 Years
7
and Over by Industry - Belhaven
4
Manufacturing Firms in Belhaven
9
5
Existing Land Use 1986
12k.
6
Area Inundated by Category 1
25
Hurricane
7
Areas of Environmental Concern
30
and Other Fragile Natural Areas
8
Properties Identified as Historic
36
Structures in the Belhaven Area
9
Location of Prime Agricultural
39
Soils
10
Belhaven Area Public School
45
Facilities
11
Population Projections - Belhaven
48
and Beaufort County
12
Areas Inundated by Category
97
1 and 2 Hurricane
13
Inventory of Structures in the
99
Hazard Area
14
Land Classification Map
123

II
1
C
r�
I
DATA COLLECTION AND ANALYSIS
Introduction
Land development generally takes place as the result of a series
of decisions by private individuals and government. If left entirely
to chance, the resulting pattern of development may not be in the best
overall interest of the community. To promote this community interest
for both present and future generations, a land use plan is developed,
adopted and kept current by the local governments in the coastal area.
The land use plan is a framework to guide local leaders as they
make decisions affecting development. Private individuals and other
levels of government will also use the plan to guide their land use
decisions. Effective use of the plan by these groups will lead to the
more efficient and economical provision of public services, the
protection of natural resources, sound economic development, the
protection of public health and safety, and enhancement of the commu-
nity's quality of life.
The Town of Belhaven has responded to these needs by electing to
complete and update its land use plan. The preparation of this plan
represents an effort by the Town to guide development in a way which
will maximize public benefits. This plan was financed in part through
a grant provided by the Coastal Zone Management Act of 1972. These
funds are administered by the Office of Ocean and Coastal Resource
' Management of the National Oceanic and Atmospheric Administration
' through the North Carolina Department of Natural Resources and Commun-
ity Development (DNRCD), Division of Coastal Management.

2
'
ESTABLISHMENT OF THE DATA BASE
'
One purpose of the 1986 Land Use Plan is to update information
given in the 1981 Plan and to ou':line development that has taken place
'
since the completion of the last plan. The 1981 Plan and its counter-
part, the original 1976 Land Development Plan, serve as the primary
'
sources of information for this effort. Various other sources were
'
used to update and expand the data base.
Socioeconomic data were gathered from a variety of sources.
`,
'
The 1980 North Carolina Census of Population provided updated popula-
tion figures, which were then made current with data provided by the
'
N.C. Department of Administration. The North Carolina Department of
Natural Resources and Community Development, Division of Marine Fisher-
ies,
provided data on the fishing industry in the Belhaven area.
'
Additional statistics were gathered from The 1985-1986 Directory of
Manufacturing Firms and the Beaufort County School Superintendent. The
DNRCD Divisions of Environmental Management and Soil and Water Conser-
vation were very helpful in providing information. Various other
'
sources
were consulted, including the Town Manager and local residents.
Information on land use within the Town's jurisdiction was
acquired from a variety of sources. United States Geological Survey 7
'
112 minute quadrangles, the Beaufort County Soil Survey, zoning maps,
building permit records and on -site inspections were used to assess the
'
development that
has occurred since the 1981 plan. Personal interviews
with various technical experts, such as the District Soil Conservation-
ist, supplemented information on land development trends in the area.
1

Figure 1
BELHAVEN PLANNING AREA
' The preparation of this map was financed in part
through a grant provided by the North Carolina
Coastal Management Program, through funds
provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management,
National Oceanic and Atmospheric Administration.
4
APPROXIMATE SCALE
11000, 01 10001 2000, 3000'
LEGEND
A, Submerged Vessel
El Wetlands
MSurface Water

M M M M M M M M M M M M M M M M M M r
Figure 2
POPULATION CHANGE FROM 1950 TO 1985:
BELHAVEN AND BEAUFORT COUNTY
1950-1985
PERCENT
1950 1960 1970 1980 1985* POPULATION
POPULATION POPULATION POPULATION POPULATION POPULATION CHANGE
BELHAVEN 2,528 2,386 2,259 2,430 2,494 - 1.3%
BEAUFORT
COUNTY 36,431 36,014 35,980 40,355
SOURCE: N. C. Census of Population, 1980.
*1985 estimates provided by N. C. Department of Administration.
43,260
r
18.7%
1980-1985
PERCENT
POPULATION
+ 2.7%
7.2%
Ln

'
additional summer residents to the area (Town Manager). This limited
number of visitors does not tax the overall adequate provision of water
'
and sewer services. One event, the annual Fourth of July celebration,
attracts several thousand daily visitors to the Town. Nearly all of
these
persons are day visitors; they do not place the same demands on
'
the community facilities as full-time residents. Water and sewer
facilities may be taxed during the day -long event, but this demand
lasts for only several hours during the peak of the festivities.
The majority of Belhaven's residents are under 30 years old
'
and considered minorities. The population is composed of approximately
41.2 percent whites and the median age is 28.9 years compared to 28.3
years for the state. Belhaven's $ 3,864 mean family income is somewhat
'
lower than the $ 4,561 average for Beaufort County (N. C. Census of
Population, 1980).
'
The
economy of Belhaven is mixed, but dominated' by manufac-
turing (Figure 3). Nearly one-half of the work force is engaged
in the manufacturing, retail trade or education fields. The health
'
services industry employs nearly seven percent of the local work force.
Unemployment in Belhaven is high (10.7 percent) compared to the 4.5
'
percent average for Region 0 (Employment Security Commission).
'
Although not apparent from the employment statistics, agriculture
is a very important component of the Belhaven economy. Agriculture,
forestry, fishing and mining employ more than four percent of the total
labor force. Agricultural land uses occupy approximately 30 percent of
'
the total land area within the one mile jurisdictional area. The crops
most widely grown are tobacco, corn, soybeans and wheat. Employment in

'
Figure 3
'
EMPLOYMENT BY PERSONS
16 YEARS
AND OVER BY INDUSTRY, 1984
'
BELHAVEN
'
Total
Industry
Persons
Percent
'
Agriculture, Forestry, Fishing
59
6.6
and Mining
'
Construction
41
4.6
Manufacturing
244
26.7
Transportation
25
2.8
Communications and other Public
28
3.'l
'
Utilities
'
Wholesade Trade
54
6.0
Retail Trade
186
20.9
'
Finance, Insurance and Real Estate
54
3.2
Business and Repair Services
14
1.5
'
Personal, Entertainment and Recreation
40
4.5
Services
'
Health Services
63
7.0
Education Services
55
6.1
'
Other Professional and Related
23
2.6
Services
'
Public Adminstration
28
3.1
TOTAL
914
'
UNEMPLOYED
107
11.7
SOURCE: N. C. Statistical Abstract, 1984
7

'
this business typically experiences peaks during the harvest season
in late summer/early fall.
'
In addition, Belhaven's economy is heavily dependent on the
quality of the water in the surrounding rivers and creeks. This
'
is because the fishing
and seafood business is the major industry
'
in the area (Figure 4). Four large seafood processing plants, who
purchase the majority of their products directly from local fishermen
'
working on boats, are located in Town. Belhaven's catch is estimated
to account for 90 percent of the commercial catch for Beaufort Cpunty,
which is consistently in the top five counties for seafood poundage and
landings (DMF). Fishermen from nearby counties truck in their catches,
as well. Blue crabs traditionally account for nearly 50 percent of the
'
commercial catch, but during periods of high salinity, brown shrimp are
also brought in and processed in Town.
'
Recreational fishing and boating are also very popular local
industries. Belhaven's location along the rivers and Intracoastal
Waterway
makes it a convenient boating area as well as a port for long
'
distance voyagers. Lodging and supplies such as fuel, food, beverages,
bait and marine gear add a significant boost to the regional economy.
'
Summer residents are also attracted to the area because of the rivers.
Additional dollars are spent at local businesses by.these second home
' owners. The importance of water quality to the prosperity of the
' economy is based on the water -related industries. Tourism and commer-
cial fishing, both dependent uaon water quality, are critical to
' Belhaven's economic well-being.
1

E
Figure 4
MANUFACTURING FIRMS IN BELHAVEN
Name
Blue Channel Crab Company
Baker Crab Company
Belhaven Feed Mills, Inc.
Belhaven Fish and Oyster
Co., Inc..
Harris Furniture and
Upholstery Co.
Down East Garment Co.
Gwinn Engineering Co., Inc.
Sea Safari
Younce and Ralph Lumber
Co.
Number
Address
Product
Employed
Water St.
Canned and Pasteurized
100-249
Seafood
Water St.
Crab meat, unprocessed
50-99
crabs
W. Main St.
Livestock feed,
5-9
fertilizer
Front St.
Shrimp, crabs
100-249
Pamlico St.
Upholstered furniture
5-9
manufacturing, marine
canvas products
Pamlico St.
Velour sweaters
50-99
r;
Rt. 2, Box
Dredges, molded
1-4
219
polyurethane boat
repair
Water St.
Fresh and frozen
100-249
crabs, flounder
Hwy 264
Pine Lumber
50-99
SOURCE: 1985-1986 Directory of North Carolina Manufacturing Firms

'
10
'
Most of the remaining manufacturing firms in Town, not related to
water, are involved in textiles or lumber. Younce and Ralph Lumber and
'
Down East Garment Company employ an average of 150 persons together.
Nearly all of the industries in Town provide low skilled, low wage
'
Women
jobs. are most frequently employed as crab pickers and sewing
'
machine operators.
Seasonal variations in employment are a concern for Belhaven
'
residents. Unemployment among agricultural workers and crab pickers
during the winter months is the major problem in the area. Ecbnomic
'
development
activities should be directed toward diversifying the
'
economy to alleviate this problem.
'
Summary
The analysis of the demographic and economic conditions reveals
'
that Belhaven supports a stable economy and population. It is expected
'
that the population will continue to experience slight growth over the
next ten years. The major industry in Town is the seafood business
'
which is highly dependent upon the purity of the water. Tourism is
also important to the regional economy. Additional growth in the
'
economy and/or population may have an impact on the natural resources
1
of the area.
1
1

11
EXISTING LAND USE
Introduction
Sound decisions on directing future land use in a community are
made based on an inventory of the present land uses. This inventory
should take note of the types of land uses, their amount and their
distribution. The following section details the existing land uses
within the Belhaven planning area.
Land Use Summary
' The Belhaven planning area includes the land within the Town
limits and the land outside Town to a distance of approximately one
' mile (Figure 1). The total area encompasses slightly more than eight
square miles, but only about 30 percent of the planning area is within
the corporate limits. Within the planning area, about 20 percent of
' the land is developed for urban purposes. Most of this developed land
is within the Town limits. The majority of the undeveloped land is in
forests, agriculture, wetlands or surface water.
There has been little change in the layout of the land since the
1981 plan (Figure 5). The existing land use map shows that most land
uses within the Town limits are residential. Residential development
is concentrated in the eastern section of Town near Tooley's Creek,
west of Hwy 99 north of the bridge, and in the blocks surrounding
Belhaven Elementary School. Since 1981, few residential building
permits have been granted as a moratorium on sewer extensions was
passed due to the inadequacy of the wastewater treatment facility.

N
1-4
C-1— U
En
V)
V
>
ra
C)
0)
Q
4J
3H rj
zn 4J - r-4
a 0) u Cw
M
C:
H 0
4J
:3 0
�4
:j
4J
�4
C)
E!
a u $4 0 4J
ro rj Q) ru En
--1 44 ::l
4j w N ti
a 0 0
4J 4J
- --I Ul
4j v
En �
a 0
u
r-I
$4
CP
z
w0
-i
w
i
3: w 0 a; t-4
OMMU
'04
H Goa
00
CL c of (U
4J E 4J
0 u >- EP
I- tn (Z 13 M
'13 M 13 ca
W U C 4J
I-
w E
u 'o
0 CP 01 W L C
Z :) 'a — 3
0 c c 0 u
s- (a —o in —
ro
ic Jc E E 01 L
M ro z
CL >- a
m n E o N ro 0
#0 N o
'13 L Ul E
tn aj Q1, C (0 4-)
'D 0 ro u 0 C
L.. 4j .. u
4J > (L w c m
0 fa 3 c
4- 1- -P a ra
0 CL C U - (13
(U 13 u
C 4-1 E W W C —
0 c (U c T) ra c
at m
++Lro vum
rd oc )IEO u
L (a n to 0
fa to X: +-
CL '13 in 0 —
(U C — a) to (0
L 01 M 13 ai c
o 0 > (-U�•
Ol I- fa 0 N 4- 4j
.0 Z 0 L 01 4- rO
4J U CL— 0 Z

13
'
Mobile home permits have been the only building applications within the
past five years. All building applications for development were sites
in the northern section of Town. This has been the trend for resident-
ial growth. The Town should consider the development of a mobile home
'
ordinance if this development trend should continue.
'
Commercial land uses are those which support retail or personal
services. Within the planning area, several concentrations of commer-
cial uses exist. They are located in the downtown business district,
along the Hwy 264 By -Pass and Business arteries and the small pgckets
'
located in the eastern section of Town. During the past five years,
'
the By-pass has been the growth area for commercial establishments. It
is expected that future commercial, institutional and office space
'
needs will be met in these existing zoned areas. Expanding strip
development in along major traffic arteries is also expected.
'
As before mentioned, the industrial area of Belhaven is situated
along the waterfront. Currently, most operations are water -related
(seafood processors), but Cargill, a grain dealer, has also located
here. The area was designated industrial due to its proximity to the
river, highway and railroad tracks. Currently only a limited amount
'
of land remains available to accommodate industrial expansion; however
the Town does wish to accommodate new industrial development on the
'
remaining available
land.
'
At the same time, local officials recognize that non -water
related uses are better located at non -shoreline locations. Thus,
'
the Town intends to encourage most new industrial projects to locate

14
in commercial areas along the Route 264 Bypass or other industrial
areas, reserving the waterfront for water -related uses such as tourist
' enterprises and seafood processing operations.
Forested areas constitute about 25 percent of the land in the
' extraterritorial limits. No forested areas exist within the Town
'
limits. Instead, there areas are concentrated along the eastern
portion of Hwy. 99 south of the bridge to the edge of the planning area
'
and in a band running from northwest to southeast near Lower Dowry
Creek. Presently, there are no serious land use compatibility problems
'
with these forested lands.
However, should these areas be logged or
tcleared
for agricultural use, short-term aesthetic problems might
result unless wise harvesting/reforestation practices are used.
'
Much of the land within the extraterritorial limits has been
cleared for agricultural uses. Most agricultural land lies north of
'
Town in a band extending across the extraterritorial limits. It is
'
currently under production, but this land may be "squeezed" into other
uses as the demand for developable land in the planning area increases
'
and the availability of suitable land decreases. Growth is likely to
occur at the expense of this farmland. Within the Town's planning
'
jurisdiction, agricultural land has had an impact on other resources as
well. Agricultural drainage and runoff from fields and ditches have
become a nutrient source for algae blooms in the nutrient sensitive
Pungo River. Dams and dikes, originally constructed to mitigate the
impact of floodwaters in cropland, have helped to minimize the impact
'
of agricultural runoff in the adjacent waters. Additional policy
Il
Ih

r
15
I
1
statements should be made to reflect this pollution problem in the
planning area.
A large portion of the planning area is in wetlands which extend
along the north and south banks of Pantego Creek west of the bridge.
Other wetlands can be found on the peninsulas near Tooley's Creek and
along the shoreline of the Pungo River. A potential land use compat-
ibility problem exists with the wetlands as the Town at one time
expressed an interest in altering several local wetland areas for
development. Because of their productivity, the Town should avoid
growth at the expense of losing these wetlands. The establishment of
vegetative buffer zones between the wetlands and adjacent development
would mitigate the effects of, land use incompatibilities in these
areas.
As the demand for industrial land increases, it may be necessary
to transfer some of the least productive agricultural lands into
industrial uses. Also, as the need for residential and commercial uses
increases, the cleared agricultural land may need to be developed.
Several cropland areas with underlying soils prime for agriculture
could be at risk.
There is a very limited amount of open space available for
development within the Town limits. The area on the north side
of Town near the intersection of Hwy 264 By -Pass and Business 264 is
one of the only areas left for expansion. The Town may need to
acquire more land through annexation to accommodate future development.
In summary, there are no significant land use compatibility
problems that currently exist in the planning district. The negative

'
16
'
aspects of industry should not directly affect the land use patterns in
Town because its location will be confined to the waterfront area and
'
other areas zoned for industry. The Town recognizes the negative
environmental impact of industry adjacent to the rivers. Sites in the
'
extraterritorial
area should be investigated for industrial develop-
ment. The wetland areas in Town should not be eyed for future growth
because of the value of these natural areas. Should any further
'
commercial strip development occur along the major traffic arteries, a
compatibility problem may arise between the commercial and residential
'
uses located there. There
are no major problems that have resulted
from unplanned development, nor any which will have a bearing on future
land use.
'
The areas most likely to experience change in the planning
region can be pinpointed to several locations. Within the Town
'
limits, additional residential development is expected in the existing
'
residential subdivisions in the northern section of Town. Outside the
Town limits, additional construction along transportation routes is
'
possible. Encroaching development may impact the agricultural areas
north of Town. The Town should acknowledge the location of prime
'
agricultural soils before granting permits for development.

I
17
CURRENT PLANS, POLICIES AND REGULATIONS
Introduction
Before policy can be formulated to guide future development
decisions, it is useful to know what tools are already available
to enforce each policy chosen. The following is a description of the
plans, policies and regulations the Town currently has in place to
support its 1986 policy statements.
Plans
Belhaven has several planning documents that directly impact land
development in the area. In addition, numerous other documents at the
county and regional levels address development issues. The following
is a list and description of the plans related to Belhaven's growth.
Community Development Block Grant Plans - Since 1981, two housing
revitalization plans have been funded, one of which was granted the
maximum allowable amount of $750,000. Target areas for both projects
have been in the northern section of Town. Revitalization of substan-
dard housing is an on -going goal of the Town.
Land Use Plans - Since the passing of the Coastal Area Management
Act in 1974, two land use plans have been completed. The land classi-
fication maps that accompanied each plan have been used as a reference
for land use decisions in the planning area. The policy statements
included in each plan have been a reference for planning decisions.
201 Facilities Plan - The Town of Belhaven has had a moratorium on
additional sewage piping installations to the wastewater treatment
facilities since 1978. This moratorium was instituted because of the

'
18
'
Town's failure to meet effluent requirements for an extended time
period. The Town was recently funded for the first stages of a 201
'
Facilities Plan to upgrade the system. The improvements project will
consist of developing a series of pump stations in the sewage collec-
tion
system and a flow equalization basin that will retain peak flows
'
until a time of lower demand and intensity. As of this writing,
project directors are unsure if additional treatment units or extra
'
flow requirements will be a part of the project. The Town's treatment
system should be back in compliance with Federal regulations compliance
'
by July 11 1988. The
Environmental Protection,Agency has stated that
'
all municipal wastewater treatment facilities come into compliance by
this date.
'
Capital Improvements Plan - In 1979, the Mid -East Commission
prepared a 20 year list of capital improvements needed for the Town.
'
As a result of one of the recommended improvements stated in the plan,
'
the Town is currently revamping its electrical system by installing new
transformers, poles and lines. The old system had become antiquated
'
and was badly in need of revitalization. Electrical lines are being
run on the back side of Main Street to bring on a more aesthetically
'
pleasing downtown section. The expected completion date for this
undertaking is 1987.
' Policies
Policies are defined as statements of intent and courses of
' action which are followed to reach a desired goal. In Belhaven,
many policies are unwritten, but have been carried out for several

t 19
'
years. The following lists all the policies associated with develop-
ment that Belhaven currently has in place.
'
Utilities Extension Policies - Both in -town and out-of-town
'
residents are eligible for water and sewer services. Nearly 93
percent of all residents are tied into the water system and approxi-
mately 95 percent of the Town's residents are tied into the wastewater
treatment system. The 1976 Land Development Plan discusses the Town's
'
policy on utility extensions. In brief, an applicant must submit a
request application to the Town Manager who then determines'kif the
application meets compliance requirements. The Town Council examines
'
each request individually based upon the cost and subsequent availabil-
ity of funds for each application. In Town, those applicants reques-
ting the extension must advance 75 percent of the costs to the Town
prior to construction. Out-of-town applicants must provide 100
'
the funds
percent of for the extension. Possible extensions to
'
proposed developments or subdivisions are described more fully in
Appendix A, which is Article V of the Town Ordinance. The capacity of
'
these community facilities is discussed in the section "Constraints:
Capacity of Community Facilities".
'
The Town
purchases wholesale electricity from North Carolina
'
Eastern Municipal Power Agency (NCEMPA) and sells it to area residents.
As the North Carolina Utility Commission requires electrical companies
'
to provide service only within designated districts, Belhaven does not
have a formal policy on the extension of electrical facilities.
'
Electrical lines have already been installed in a large portion of the

' 20
'
extraterritorial area. As of this writing, there have not been any
requests for extensions.
'
Open Space and Recreation Policy - Although Belhaven has no
comprehensive recreation plan or open space policy, there is an
'
extremely
active year around recreation program consisting of such
'
activities as softball leagues, volleyball leagues, little leage
football and baseball, youth dances, swimming and tennis lessons.
'
Belhaven has two publically-owned parks, an active Recreation Center
administered by the Recreation Department, plus a public boik-ramp
'
which
provides access to Pantego Creek. Two private marinas also
'
provide access to the river. The Town has had no need for a policy on
recreation facilities or the acquisition of open space.
Regulations
'
The Town of Belhaven enforces several regulations which have an
impact on development. The Building Inspector is responsible for their
enforcement. Regulations currently in place are:
'
Zoning Ordinance
Building and Housing Regulations
'
Subdivision Ordinance
Flood Prevention Ordinance
Septic Tank Regulations
'
Nuisance Ordinance
The Beaufort County Health Department governs the permitting system for
'
septic tank and well placements. The Flood Prevention ordinance,
adopted by the Town Board in early January, 1986, is very complex. It

1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
2
divides the Town into two flood prone areas. In one area, the ordin-
ance requires that all development must be situated at least nine feet
above sea level and in the other flood area, structures must be
situated at least eight feet above sea level. The Town is working to
make all new structures conform to this ordinance. Other aspects of
this regulation involve bulkheading of certain waterfront areas in
Town.
According to Chapter 113A Article 1 of the General Statutes, the
North Carolina Environmental Policy Act, the Town can request develop-
ers to submit detailed statements outlining the potential impacts of
major developments. Belhaven has no additional requirements. Dune
protection ordinances are not applicable as there are no dunes within
the planning area. Sedimentation regulations are. determined at the
state level in accordance with the NC Sediment Pollution Control Act.
Other Federal and State regulations enforced in the planning area are
outlined in Appendix B.

22
' CONSTRAINTS: LAND SUITABILITY
Introduction
The fundamental premise of land use planning is that distinctions
exist between land masses which make them suitable for various uses.
Planning is required because not all lands are suitable for the same
' types of development. For example, the physical characteristics of the
soil may permit subsidence, making development unsuitable. The
' following section identifies and discusses areas with development
constraints to guide future land use decisions. t-
'
Physical Limitations for Development
Hazards
'
Two types of hazards may impede growth: man-made and natural
hazards. There are four types of man-made hazard zones in the planning
'
area where development
should be discouraged. Buffers zones should be
established around these sites to mitigate their inherent dangers.
These hazard zones include a sawdust pile in the waterfront industrial
'
complex and the various fuel storage sites located in Town.
During the 1940s, a lumber yard was located in the vicinity
'
of Cargill, Inc. on the waterfront area upstream from downtown.
'
A massive sawdust pile is a relic of this industry. In 1984, gases
from the sawdust ignited and caused an underground fire that burned for
'
several weeks. Since the fire burned below the ground surface, it
produced hollow pockets unnoticeable from the ground level. This
'
region is hazardous because of the inherent fire hazard plus the

23
instability of the ground surface. Development should be avoided here
until this hazard is removed or mitigated in some other way.
Flammable substances, such as fuel oil, natural gas, and farm
chemicals are stored in several different locations. Future develop-
ment around these
sites should be limited to low density land uses that
'
would not be affected by a possible leak or explosion. Future tank
farms should be situated away from existing development, possibly in
'
areas designated as rural according to the land classification map.
Nuclear power plants do not impact planning decisions because -none
'
are located in the Belhaven
area.
'
The military has historically been an important asset to the
economy and quality of life in eastern North Carolina. Recently,
'
there has been debate over the expansion of the Military Operating
Airspace (MOA) over Beaufort County. Land use patterns would need to
'
reflect this hazard.
The flood prone area is a natural hazard zone where develop-
ment should be carefully monitored. The entire Town is located
'
in the 100 year floodplain. Nearly all Beaufort County residents
are familiar with the frequent flooding that occurs in downtown
'
Belhaven after a normally heavy rain. Hurricane -level wind and
'
rains would cause a greater hazard to the planning area. The United
States
Army Corps of Engineers SLOSH (Sea, Lake and Overland Surge from
'
Hurricanes) model maps show that all of the land in the planning area
is located in the Category 1 and 2 hurricane zone (Figure 6). This
'
means that inundation may occur during a hurricane with winds between
75 and 94 miles per hour. Flood levels would depend on the relative

24
elevation of a site. The
Town acknowledges the dangers inherent to the
flood plain and certain
building
restrictions, in accordance with the
'
Flood Prevention Program sponsored
by the Federal Emergency Management
Agency, exist in these
areas.
Details on the floodway prevention
'
ordinance are given in the
section
above entitled "Plans, Policies and
Regulations".
'
Soils
Soils in the planning area were mapped in 1982 by thte-Soil
Conservation Service for the Beaufort County Soil Survey. The Soil
Survey was used to determine which soils present development limita-
tions due to wetness or high potential for shrinkingand swelling.
'
Approximately 13 different soil associations can be found in the
planning area. All soils have a high organic content. Many local
soils are considered mucks because of the persistently high water
'
table, but some sandy loam series are available, as well. The entire
planning area is covered by soils that are poorly drained and have
severe limitations for the placement of septic tanks. Most problems
associated with these soils are their slow permeability, poor filtering
'
ability and wetness.
Subsidence is typically a problem in the planning area. Because
' the soils are usually wet, they are likely to become compacted under
' stress. This would present a problem for foundation stability. Soil
fill, used in many instances to raise the relative elevation of a
' particular site, may mitigate subsidence problems in the planning area.
Soil shallowness is typically not a problem in Belhaven.

26
' In summary, all of the soils found in the area have limita-
tions for the efficient placement of septic tanks and stability
' of building foundations. Shallow soils are not a widespread problem.
The implications for development translate into higher overall costs
' per unit in order to overcome these constraints. Generally, large scale
' development, such as industry, should be targeted to areas where the
soil is not suited for residential development. Areas with "better"
' soils should be preserved for residential developments or projects
which would require soils with fewer constraints. �-
'
Water Supplies
The extensive groundwater reservoirs of the Coastal Plain were
'
considered a relatively unlimited source of water supply until recent
years. Development in this region and adjacent states has had an
'
the
effect on reservoir capacities and recharge rates are limited. The
'
DNRCD Division of Environmental Management Groundwater Section has been
collecting data and monitoring water levels in the Belhaven area to
'
determine groundwater conditions and evaluate the effects of large
withdrawals. The following is a brief synopsis of DEM's research
'
findings.
'
The Town of Belhaven presently operates two deep wells which
utilize subsurface water. All of this groundwater is obtained from the
'
Yorktown formation aquifer. Since the onset of phosphate mining
operations across the river from Belhaven near Aurora, groundwater
'
levels have been lowered drastically. Belhaven was included in a
'
program called the "Capacity Use Area" which includes several counties
11

27
1
' in eastern North Carolina. Groundwater usage in the Capacity Use Area
has been carefully monitored since 1967 when excessive drawdowns were
' occurring as a result of the phosphate mining.
The chemical and physical quality of groundwater in the this
' aquifer varies areally and vertically. The water is generally low in
' mineral content and suitable for any purpose.
Recharge of this aquifer is principally from precipitation
tin the region. About 20 percent of the area's annual precipita-
tion enters the surficial aquifer. The water table aquifer serves as
'
the reservoir for
recharge to the underlying Castle Hayne system. The
'
site for recharge is generally in an area northwest of Wilmar near the
Pitt/Beaufort County boundary. DEM officials have stated that the
'
groundwater level has reached a state of equilibrium; that is, as much
water is being extracted from subsurface sources as is being added
'
through recharge. Obviously,
this critical balance must be maintained
'
in order to assure an adequate water supply for the future. Expanded
phosphate mining operations or any other additional heavy water
'
uses may upset this balance. The Capacity Use Area groundwater
management program was developed to protect the greater supply of
'
water. Over the next ten years, there is no immediate danger of a
'
limited supply of groundwater, but water use should still be considered
in determining what types of industry locate in the region.
Excessive Ground Slope Areas
' Excessive slopes are defined as areas where the predominant
slope exceeds 12 percent, i.e. where the change in elevation is
1

28
0
' 12 feet or more per one hundred feet of horizontal run. Most of
the land in and around Belhaven is very low with little relief.
' There are no sites which have a slope of 12 percent or more (Beaufort
County Soil Survey).
'
Fragile Areas
Fragile areas are the water and land environments whose physical
and biological nature make them especially vulnerable to damage or
construction resulting from inappropriate or poorly planned
develop-ment.
Federal
regulations, like the Section 404 Dredge and Fill Act,
have been enacted to preserve sensitive wetland areas. State regula-
tions, such as those promulgated under the Coastal Area Management Act
'
(CAMA), protect valuable coastal resources and are of particular
importance for land use planning in Belhaven. The Coastal Resources
Commission (CRC) established by CAMA, was directed by Section 113 of
'
the Act to identify and designate "areas of environmental concern".
Those areas, known as AEC's, contain resources - natural and/or
'
cultural - which are of statewide concern. Unregulated development in
AEC's has a high probability of causing irreversible damage to public
'
health, property, and the natural environment. Therefore the CRC
has issued guidelines for development proposals in AEC's. Most
projects in AEC's require a CAMA permit. "Minor" development permits
'
(generally projects altering less than 20 acres or involving structures
less than 60,000 square feet) are issued by a local permit officer.
'
"Major" development permits are issued by the Division of Coastal
Management.

29
1
'
Four categories of AEC's have been developed: the estuarine
system, the ocean hazard system, public water supplies and natural and
'
cultural resource areas.
A good portion of land in Belhaven has been identified as being
'
the
part of Estuarine System AEC. Estuarine AEC's have been defined
'
as having four components: public trust areas, estuarine waters,
estuarine shorelines, and coastal wetlands. Figure 7 depicts the
'
estuarine system AEC in Belhaven. It should be noted however, that
the AEC's have been depicted here for planning purposes only4 The
'
influence tides
of and wind makes the coastal estuarine system dyn-
amic. Since coastal areas are subject to change, maps are used for
reference only; actual permitting decisions are determined on a
'
case -by -case basis through field inspection. A discussion of specific
areas of environmental concern in Belhaven follows.
'
Public trust areas are those waters to which the public has
a right of access. They include all natural bodies of water and lands
thereunder to the mean high water mark (if applicable) and all area
s as to
'
which the public has rights of navigation, access and recreation. All
surface waters in the area, including tributaries of the Pungo River
'
and Pantego Creek, are in the public trust. The tributaries include
1
Battalina Creek, Tooley's Creek, Wynn's Gut and Shoemaker Creek.
Public
trust areas are significant because they support valuable
'
commercial and sports fisheries, have aesthetic value and are important
resources for economic development. These areas should be managed so
'
as to protect the public's rights for navigation, recreation and a
livelihood.

Figure 7
AREAS OF ENVIRONMENTAL CONCERN AND OTHER
FRAGILE AREAS
The preparation of this map was financed in part
through a grant provided by the North Carolina
Coastal Management Program, through funds
provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management;
National Oceanic and Atmospheric Administration.
30
APPROXIMATE [tAl[
>08 01. ",of 2000p 3000,
LEGEND
Submerged Vessel
Coastal Wetlands AEC
tri Estuarine Waters AEC
QPublic Trust Waters AEC
® Nursery Areas
Estuarine Shoreline AEC
4

31
' Acceptable uses should be consistent with the management objectives
listed above. The NCAC prohibits any uses that would negatively
' impact the public trust area. These include projects that would
directly or indirectly block or impair existing navigation channels,
1 increase shoreline erosion, deposit spoils below mean high tide, cause
' adverse water circulation patterns, violate water quality standards or
cause degradation of shellfish waters.
'
The estuarine water AEC occupies all surface waters in the
Pungo River. Estuarine waters are defined as "all the water'bf the
Atlantic
Ocean within the boundary of North Carolina and all the waters
'
of the bays, sounds, rivers and tributaries thereto seaward of the
dividingline between coo stal fishing waters and inland fishing
'
waters, as set forth in an agreement adopted by the Wildlife Resources
Commission and the Department of Natural Resources and Community
'
Development filed the Secretary
with of State" (NCAC).
t
Estuaries are among the most productive natural environments
of North Carolina. They support the valuable commercial and sports
'
fisheries of the coastal area. Several species must spend all or some
part of their life cycle in the estuarine waters to mature and repro-
duce. Of the ten leading species in the commercial catch, only one is
not dependent upon the estuary. The estuarine circulation system is
' also responsible for the high productivity levels. The circulation of
' estuarine waters transports nutrients, propels plankton, spreads seed
and flushes wastes from animal and plant life. It also mixes the water
' to create a multitude of habitats.

32
' The management objective for this AEC is to safeguard and perpetu-
ate its biological, socioeconomic and aesthetic values. Suitable
' land/water uses shall be consistent with the state guidelines.
' The estuarine shoreline is another AEC type found in the planning
area. Although the estuarine shoreline is characterized by dry land,
' it is included as a component of the estuarine system because of the
close association with adjacent estuarine waters. Estuarine waters are
'
the non -ocean shorelines which are especially vulnerable to erosion,
flooding or other adverse effects of wind and water and are inti�nately
'
connected to the estuary. This area extends from the mean high water
'
level or normal water level along the estuary for a distance of 75 feet
landward. All the property adjacent to the Pungo River as far west as
'
the breakwater is included in this AEC. Present land uses within the
Town limits along the estuarine shoreline include dispersed residences
1
and a marina at the mouth of Battalina Creek. Outside the Town limits,
'
the estuarine shoreline is virtually undeveloped.
Because of the well-defined link between the shoreline and
'
the estuarine water, development within the estuarine shoreline
has a direct influence on the quality of estuarine life. This AEC is
also to the damaging
subject processes of shore front erosion and
'
flooding.
The management objective for this AEC is to ensure that shoreline
'
development is compatible with both the high damage potential from
storms and the values of the estuarine system.

'
33
The NCAC states that, in terms of land use, the estuarine shore-
line is the least restrictive of all AECs. All development in the AEC
'
should not have a significant adverse impact on estuarine resources.
The 1981 policy set by Belhaven regarding estuarine shoreline develop-
ment is to allow the types of development described in the NCAC guide-
'
lines. This includes most forms of structures. All building applica-
tions in this 75 foot jurisdictional zone must be submitted to the NRCD
'
Division of Coastal Management. The zoning ordinance has been rewrit-
ten to accommodate these development types. `_
Coastal wetlands, another defined AEC, are found along the
'
northern bank of Pantego Creek from the western edge of the planning
area to the.Haslin Street extension, and along the Pungo River on the
'
two peninsulas surrounding Tooley's Creek and the estuarine shoreline
area along Lower Dowry Creek. Wetlands are defined as "any salt marsh
'
or other marsh subject to regular or occasional flooding by tides,
including wind tides". The tide waters can reach the marshland through
natural or artificial water courses. The NCAC sets forth a list of
'
indicator plants for the designation of a wetland.
The wetland environment is one of the most productive in the
'
estuarine Detritus (decayed
system. plant material) and nutrients
'
exported from the marshland support the estuary's food chain. The
roots, rhizomes, stems and seeds in coastal wetlands act as the nursery
'
area and food source for many fish and shellfish species. In addition,
wetlands act as the first line of defense in retarding estuarine
'
shoreline erosion. Marshlands also act as nutrient and sediment traps

34
'
by slowing the water which flows over them and causing suspended
organic and inorganic particles to settle out. Pollutants and excess-
ive nutrients are absorbed by the marsh plants, thus providing an
inexpensive water treatment service.
The NCAC states that the management objective for this AEC
'
is to give highest priority to its protection and management so
as to perpetuate its biological, socioeconomic and aesthetic values.
'
It is also recommended to utilize wetlands as a natural resource which
is essential to the functioning of the entire estuarine system. "`-
'
In terms
of.land use, coastal wetlands are the most restric-
tive of all AECs. As with other AECs, all applications for development
must be permitted with the NRCD Division of Coastal Management. The
NCAC prohibits alteration of the marshes and other wetlands; fill
material cannot be placed on the wetland to raise its elevation and
'
artificial drainage the
of wetland is not allowed. Any activity which
'
may disturb the functioning of the wetland will not be permitted. The
management objective of the NCAC is to protect the overall
p functioning
'
of the wetland. Acceptable uses--- would be utility easements, fishing
piers and docks.
Several other natural areas in the Belhaven planning area are
significant, but are not protected by any State or Federal regulations.
The NRCD Division of Marine Fisheries (DMF), through many years of
research, has developed a list of water bodies in coastal. North
Carolina which are known spawning areas for juvenile fish species.
'
These waters are called primary nursery areas (PNAs). They are not

35
I
considered AECs by the NCAC. According to DMF technicians, Tooley's
Creek is a PNA. Pantego Creek and its tributaries are secondary
' nursery areas which serve as a habitat for more mature juvenile fish
species. Major estuarine species found in these creeks are spot,
croaker, menhaden, Southern flounder, blue crabs and brown shrimp
' (during periods of high salinity). Fresh water species found in these
creeks are catfish, bullheads, white perch and pumpkinseed. Pantego
' Creek is not recognized by the DMF because of a jurisdictional discrep-
ancy between DMF and the Wildlife Resources Commission. These nursery
' areas should be protected as potential resource areas because of their
' unique biological significance. Land uses adjacent to these nursery
areas would directly impact the quality of the habitat for the fish
'
species.
Although not a natural system, the historical integrity of
'
the Town also deserves
special attention. A number of structures have
'
been recognized for their historical value by the State Department of
Cultural Resources, Division of Archives and History (Figure 8). The
Belhaven Town Hall, the only structure in Town listed on the National
Register, is currently under restoration by the Town. To preserve the
'
historical integrity of these structures, new development adjacent to
these sites should be in the same theme as the historic properties.
The area is also rich in archaeological heritage, dating from both
'
prehistoric and recent times. The ancient Town of Aquasogoc is shown
on the historical record as being located -at the headwaters of the
'
Pungo River. This location could either be Belhaven or present-day

36
Figure 8
PROPERTIES IDENTIFIED -AS HISTORIC
STRUCTURES IN THE BELHAVEN AREA
Helen Boyd House
Belhaven Railroad Depot
(Future Chamber of Commerce Visitors Center)
Belhaven City Hall
(Currently used as museum)
Kirk -Bishop House
W. C. Credle House
Bullock House
Brooks House
Trinity Methodist Church
Topping House
Captain Terrill House
St. James Episcopal Church
Oden-Boyd House
Riddick House
Midgett House
Luckton House
Clark House
Belhaven Baptist Church
103 Magnolia Street
Corner Main and Haslin Streets
NE Corner E. Main Street
and Allen Street
513 Front Street
310 West Main Street
701 East Main Street
304 West Main Street
335 East Main Street
Intersection W/Edward Street
Lamont Street
Between Pungo and Latham Streets
512 Main Street
405 Main Street
105 Magnolia Street
409 Front Street
414 Main Street
325 Front Street
102 Front Street
Edward Street near JCT W/Front Street
SOURCE: NRCD Division of Cultural Resources, 1985.

37
' Scranton, but thus far, little evidence confirms either location as
being the site of Aquasogoc. In addition, the NRCD Division of
Cultural Resources (DCR) is currently investigating the historical
'
significance of the submerged shipwrecks in Pantego Creek.
Historical
documents show that a Civil War era
schooner was sunk by
the northern
'
gunboat, Delaware, in March of
11362 in Pantego Creek.
Any CAMA
permit requests in the Pantego Creek
area may be subject to
a survey by
'
the Underwater Branch of DCR. The
Town acknowledges that
these are an
'
irreplaceable resource that should
be protected and preserved,.-
An
underwater investigation by DCR is
encouraged to identify
the relative
1 importance of the wrecks offshore. A survey completed beforehand will
prevent permit applicants from running into roadblocks during the
' permit process.
Areas which sustain remnant species are those places which
' support endangered species of plants and animals. As of this writing,
' none of these areas are located within Belhaven's jurisdiction. Should
any be designated, the Town will take all precautions to ensure the
' safe reproduction of these species.
' AREAS WITH RESOURCE POTENTIAL
Although much of the land within the planning district is devel-
oped, there may be certain areas where development should be discour-
aged because of man-made or physical hazards or because the area
contains or effects a developable natural resource. In Belhaven, the
most valuable resource areas are the soils which produce the highest
11

38
'
yield per acre and the surrounding surface waters that are critical for
the fishing industry.
'
Several sites covered by prime agricultural soils are found
within the jurisdictional limits (Figure 9). The NRCD Division
Soil
of and Water Conservation and the U.S. Soil Conservation Service
'
assisted in gathering information necessary to map these soils. The
existing land use map shows that the two easternmost sites are curren-
tly under agricultural production. The in -town site is currently
developed as a residential area. The Town has weighed the impdrtance
'
of
productive farmland and has developed policy statements regarding
'
its protection in the "Resource Production and Management Policies"
section of this plan.
'
The estuarine system offers several
very unique resources which
require careful management and protection.
These include the
coastal
'
wetlands,
primary and secondary nursery
areas and all surface
waters.
'
Descriptions of their significance and
locations are given
in the
preceding "Fragile Areas" section. As described earlier, the
commer-
cial fishing business is very important to
the local economy.
Preser-
vation of nursery areas and quality of
the water is critical
for the
'
economic vitality of the Town. Land
use decisions
should reflect
this
'
high priority for managing development
to protect the estuarine
system.
' Peat and phosphate deposits are located in the Belhaven planning
area. Mining these areas, however, should not become an issue within
' the next ten years. According to Dr. Lee Otte, an East Carolina
University professor who is recognized as being the foremost expert on

39
Figure 9
LOCATION OF PRIME AGRICULTURAL SOILS
E _
.. ..•h �' w hn. x .wML : at
h w. .dY wlh wM
• al4 .wY.. rYw ~wh W x •
* As defined by the Soil Conservation Service
The preparation of this map was financed in part
through a grant provided by the North Carolina
Coastal Management Program, through funds
provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management,
National Oceanic and Atmospheric Administration.
U.S. 264
.. r`•.•
b
!-
APPROXIMATE SCALE
'1000' 0' XXW' too*' 5000'
LEGEND
Submerged Vessel
Wetlands
eSurface Waters
® Prime Agricultural Soils

40
the location and mining resource potential of N.C. peat and phosphate
deposits, the deposits within the planning area are not rich enough to
justify their being mined. This does not preclude, however, the
possibility of developing a energy -generating facility for the peat
resources. Belhaven's proximity to current sites eyed for mining in
Tyrrell and Washington counties would make it an attractive location
for a peat -fired electrical plant. Peat and phosphate mining in other
locations could significantly impact Belhaven's water resources,
in particular. Policies on mining and siting electrical -genera-
ting facilities in the planning area are included in the "Resource
Production and Management" and "Economic and Community Development"
sections of this plan.

' 41
CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
Introduction
'
Development is
often encouraged because of the increased tax base
'
it brings. Eventually, however, the local government must spend some
of its tax dollars to upgrade and expand the existing
9 p tang facilities to
'
accommodate such growth. The land use planning process allows Town
officials to assess development trends and analyze the requirements
'
placed on the community facilities. The following section discusses
'
the existing conditions of the water and wastewater systes, solid
waste collection and treatment facilities, schools and roads.
Water and Sewer Systems
'
The Town of Belhaven operates municipal water and wastewater
'
systems for customers within the Town limits. Nearly all residents
are tied into the systems. The water system serves about 93 percent of
the Town and the wastewater treatment facility serves 95 percent of the
area's residents.
'
The water system is designed for a capacity of 5049000 gallons per
day. It consists of two wells. This system.is currently used at less
than
73 percent of its capacity. For the purposes of this plan, an
'
estimate of the average usage rate is measured. This is calculated by
the total gallons being used daily based on the number of people living
'
in the area which use the system. Given these values, theoretically,
the current usage rate allocates 147 gallons per day per person. Given
'
these
hypothetical usage rates, an additional 925 persons could be
'
added on to the system before it would reach its design capacity. Any

42
' peak load brought on by a population surge could easily be accommodated
with the existing facilities. Additional residential, commercial and
' normal industrial growth could occur without causing any stress on the
system, providing that no more than the equivalent of 925 persons are
' added. Industry which uses an abnormally high volume of water, such as
' a mining operation or chicken processing plant, could create a supply
problem for the town.
'
The Town sewer system is operating at less than 70 percent of its
intended capacity. It is designed for a capacity of one half a dtillion
'
gallons per day (mgd). During peak times, the flow rate becomes
'
955,000 gallons, or nearly two times the design capacity. In 1978, a
moratorium was placed on additional sewer pipe hook-ups to the system
which states that no additional sewage lines can be laid to accommodate
development. This has had a tremendous impact on the amount of growth
'
that has been to
able occur in Town. Industrial recruitment has been
severely limited by this moratorium. As stated in the "Plans, Policies
and Regulations" section of this plan, the Town is currently involved
'
in a 201 Facilities program to upgrade the system. Funding has been
granted for the project in FY '86. The Town has not met effluent
'
requirements for an extended period of time, but it is expected that
'
the treatment facility will be in compliance by July 1, 1988. Until
upgrading is completed, no additional pipe hook-ups can be made.
Solid Waste Collection and Police and Fire Protection
'
The Belhaven Sanitation Department provides garbage collection
within the Town limits. Collection takes place twice a week for both

43
residential and commercial customers. The refuse is deposited at the
' County landfill at Whitepost, near Bath. All in -town residents pay for
' service and customers located on the fringes can be served at a higher
fee than in -town customers.
' Police service is provided for all persons located within the
planning area. The police force consists of 14 persons and three squad
' cars. Twenty-four hour patrolling is limited to in -town locations
'
only.
The Belhaven Volunteer Fire Department and Rescue
Squad
is manned
'
by 30 volunteers. Its Fire District area is bounded
by the
Walter B.
Jones Bridge in Hyde County, Smithton, and the Cuckold's
Creek bridge
'
near Pantego. The
rescue squad service area extends
beyond
the Fire
'
District area by several miles. Agreements with
nearby
towns are
designed to increase the fire fighting manpower in the
event of a major
'
disaster. The Town operates a tanker, three pumpers
and an
equipment
van plus two ambulances.
Schools
The school facilities
are very important in any
community.
Belhaven Elementary School,
Beaufort County Elementary School, Pantego
Junior High School and J.A.
Wilkinson High School serve the
area. Only
'
Belhaven Elementary School
and J.A. Wilkinson High School
are located
'
in the Town. The Town also
has a private school for grades
Pre -Kinder-
garten through 12. The
P,jn9 o Christian Academyis located in the
'
western portion of the Town
limits.

44
' Belhaven Elementary School, originally constructed in 19379 is
operating at about 98 percent of its capacity (Figure 10). The
' school's pupil/teacher ratio is somewhat high, reflecting the crowded
conditions. If the school age,,population should increase, the children
' from Belhaven Elementary School could be accommodated at Beaufort
' County Elementary School. It is operating at only 67 percent of its
capacity. The junior high school is operating at nearly 50 percent of
u
its capacity.
Because of the demand projections and current overcrowding
situation, tentative Beaufort County Schools plans call for the
reorganization of the local elementary, junior high and high schools.
The elementary schools will be responsible for grades K-5 instead of
K-6 as they are presently. J.A. Wilkinson High School, currently
operating at 95 percent capacity, will become a junior high facility
and will house sixth, seventh and eighth graders. As a result, Pantego
Junior High School will be closed. A new high school constructed in
Yeatesville, will have a capacity of 800 students. It will incorporate
students from Bath, Pinetown, Belhaven and Pantego. The County School
Superintendent's office anticipates growth in the demand for public
school facilities. According to Superintendent Clifton Toler, the
growth will result from a spill -over from area private schools.
Some private schools are losing enrollment and the public schools are
taking in their former students. This is causing an overall growth in
the population attending public schools. The reorganization plans
should be carried out by 1990.
11

Figure 10
BELHAVEN AREA
PUBLIC SCHOOL FACILITIES
PUPIL/
1985-1986
PERCENT
TEACHER
TEACHER
GRADE
YEAR
BUILT
SCHOOL
CAPACITY
ENROLLMENT
UTILIZATION
ALLOTMENT
RATIO
TAUGHT
PLUS ADDITIONS
J. A. Wilkinson High School
475
452
95
30
1:15
9-12
1938,
1952
Belhaven Elementary School
525
516
98
28
1:18
K-6
1937,
1953,
1976
Pantego Jr. High School
400
209
52
14
1:15
7-8
1926
Beaufort County Elementary
School
350
236
67
15
1:15.7
K-6
1936,
1953,
1954
SOURCE: Beaufort County School
Superintendent, 1985.
PRIVATE SCHOOL FACILITY
Pungo Christian Academy
300
220
73
15
1:14.7
Pre-
1970,
1971,
K-12
1975,
1977
Source: Pungo Christian Academy
Staff
Ln

46
' Roads
The road system in Town is currently sufficient for any traffic
' peaks which may occur. The N. C. Department of Transportation District
Engineer estimates that no road in the planning area is used at more
' than 50 percent of its capacity. Any additional growth could easily be
accommodated by the present road system. The Town of Belhaven is
' responsible for minor improvements to the roads in Town. There are no
' major improvements planned for this area according to the NC Department
of Transportation Transportation Improvements Program 1986-1995. Some
secondary roads will be resurfaced under the DOT priority system, but
there will be no additional improvements made to the local roads.
' Medical Facilities
The Town has a full service 47 bed hospital equipped with emer-
gency room facilities. The Pungo District Hospital is served by'four
doctors and two dentists with local medical practices, as well as
' being equipped with a full regulation emergency heliport. A branch of
the Mattamuskeet Medical Clinic is also located in the Town limits.
Other medical specialists serve the Town on a regular basis, including
' four pharmacies.
1
11

47
11
'
ESTIMATED DEMAND
Population and Economy
Population trends in Beaufort County have shown the population
increasing at a modest rate since 1970. Historically, this has also
been the trend for Belhaven (Figure 2). It is anticipated that this
trend will continue in the next ten years (Figure 11). The population
is expected to approach 29591 by the year 1990. By 1995, it is
'
projected that the Town will gain 84 more persons, bringing the total
to 2,675 persons. It is expected that the Town can accommodatp-this
the
growth after problems associated with the wastewater treatment are
'
corrected. Until then, no piping additions can be made to the existing
system and only limited growth can occur. The target date for comple-
tion of the 201 upgrading plan is July 19 1988. When corrected, the
water and wastewater systems could adequately accommodate the popula-
tion change both
as systems are used at less than 75 percent of
'
their design capacity. The road system would also be able to service
this potential population growth. A population surge in school age
'
children could be accommodated by the new restructuring of the school
facilities.
'
Within the Town limits, there may be strains on the land brought
'
on by this growth. There is currently only a small amount of open
space that could be converted to residential uses. Given the average
'
2.8 persons per household calculated by the U.S. Bureau of the Census,
an additional 65 dwelling units would need to be constructed to
'
accommodate the growth projected by 1995. Sites for these dwellings
are very limited.
11

E&
Figure 11
POPULATION PROJECTIONS
BELHAVEN AND BEAUFORT COUNTY
1984x 1990* 1995*
Belhaven 2,494 2,591 2,675
Beaufort County 43,818 45,404 47,645
* Belhaven projections made by Mid -East Commission, 1985. ,
x Municipal and County estimates provided by the N. C. Department of
Administration, 1985.

49
F
Future industrial growth may be constrained by the limited amount
of industrial land available. The only sites available for industrial
development are in the existing areas zoned for manufacturing. CAMA
permits might also prevent industrial expansion in some areas. To work
toward solving the problems associated with land availability, the Town
should complete an annexation feasibility study. Additional land may
need to be obtained to accommodate the projected growth.
Summary
The Belhaven population is expected to increase moderately through
the year 1995. The water, school and road systems could adequately
accommodate the anticipated growth. The problems associated with the
wastewater treatment facility must be resolved prior to any growth
occurring. Currently, a limited number of users can be added to the
system without laying additional piping. The 201 Facilities Project
was recently funded and should improve capacity and effluent conditions
in the wastewater treatment system.
Based on current population projections, an additional 65 dwelling
units will be required to house expected population increases. Given
existing land use, the Town can easily accommodate such development.
However, should population growth exceed current projections, more
land may be needed to accommodate new develoment. To that end, an
annexation feasibility study is recommended to learn more about
acquiringadditional open space for residential and commercial develop-
ment.

50
'
REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS
During their October 1985 meeting, the Coastal Resources Commis-
sion reviewed a land use plan update which included a systematic
analysis of all its 1980 policies as an introduction to their 1985
'
land use plan update. This analysis included an assessment of the
'
effectiveness of the 1980 goals and a discussion of actions and
activities used to implement these policies and goals. This "score-
card" approach gave the local government an opportunity to reflect on
how it achieved its previous goals as a beginning step to formulating
'
new policies. It also provided the opportunity to evaluate the
'
strengths and weaknesses of the previous policies. It was recommended
that all 1986 plan updates adopt this "scorecard" approach to policy
'
evaluation.
The following section includes an evaluation of the policies
'
addressed in the 1981 Belhaven
Land Use Plan Update. The Planning
'
Board critiqued the 1981 policies at one of its earliest meetings.
Each policy was analyzed for its content, means of enforcement, and
'
implementation strategy effectiveness. In a "checklist:' format, each
implementation procedure was reviewed to see how well each goal had
'
been carried out since its formation.
'
In addition
to providing an
outlet for evaluating
accomplishments
since 1981, this
proved to be an
effective method for reflecting
on the
'
substance of each
policy. The
Planning Board members
were asked to
provide a grade
on the substance
and effectiveness of
the 1981 poli-
cies. The board
gave Belhaven a
"B". Most Planning
Board members
felt that the policy
statements
were well thought out,
but the imple-

51
mentation methods had not been fully carried out. Most of the Town's
goals had not been attained. The following section outlines the
policies for each major issue in the plan and describes the deficien-
cies found by the Planning Hoard.
RESOURCE PROTECTION
Listed below are condensed versions of the policies and implemen-
tation strategies regarding Resource Protection in the 1981 plan. The
symbol ** indicates that the implementation strategies were not
completely carried out.
1981 Policies and Implementation Strategies
1. Allow a less restrictive set of uses in the coastal
wetland AEC than those recommended by NCAC Subchapter 7H if the proper
CAMA permits are granted.
** a. Make revisions in the zoning ordinance to allow for
the above uses.
2. Limit the allowable uses for the estuarine shoreline AEC
to those listed in NCAC Subchapter 7H.
** a. Make revisions in the zoning ordinance to allow for
the above uses.
3. Allow a less restrictive set of uses in the public
trust waters AEC than listed in Subchapter 7H.
** a. Make revisions in the zoning ordinance to allow for
the above uses.

52
2. Support hurricane evacuation efforts.
a. Will participate in the County's Hurricane Evacuation
Plan for threatened areas.
3. Will support flood insurance programs.
a. Will use zoning and building codes to ensure that the
Town is in compliance with the Federal Flood Insurance Program.
4. Support development of an historic district.
** a. By 1981, prepare a draft historic district zoning
ordinance.
b. If necessary, seek Community Development Block
Grant funds to maintain public services and structural soundness
to the homes in the area of the historic district.
c. Discourage eastward spread of industrial and commer-
cial uses to maintain the theme of the historic structures.
5. Develop a plan to construct a dike.
a. Seek funds for a Corps of Engineers -sponsored
dike plan.
6. Support State efforts to preserve underwater archaeolog-
ical artifacts.
** a. Inform local permit officer about the state's
interest in preserving offshore, submerged archaeological artifacts.
Nearly all. the above policies had been successfully followed
through by means of the implementation procedures decided upon.
The Board felt, however, that although the policies .were strong
and good, all the issues required by the CAMA guidelines were not
adequately discussed. Issues such as the availability of safe drinking

'
53
water, marinas, and physical constraints to development were not
addressed. The Board was pleased that extracurricular efforts, such as
'
the feasibility study for the dike, had been completed. It was decided
that the policies formulated in the 1986 plan would be selected and
'
enforced only with existing regulations and policies adopted by the
'
Town. Additional efforts are often too much to expect without the
assistance of a full-time professional planning staff for the Town of
Belhaven. ,
'
RESOURCE PRODUCTION AND MANAGEMENT
'
1981 Policies and Implementation Strategies
1. Restrict open -pit mining activities to areas classified
'
as "rural" on the land classification map.
a. Utilize land classification map, zoning tool,
and utilities extension policies to restrict location of mining
activities.
2. Encourage agricultural production.
'
a. Encourage agricultural production through the
land classification map, the zoning ordinance, and the utilities
'
extension policies.
3. Work toward maintaining the vitality of the commercial
fishing industry.
'
a. Provide dredging and support services.
** b. Sponsor community forum to identify problems,
'
consider alternatives and generate interest in designing solutions to
the fishing industry's space problems.
t

'
54
I
The Planning Board felt that while the above policies were
good, the means
for their support were not as strong
as they could have
'
been. Not all
issues required under the CAMA
Land Use Planning
'
Guidelines had
been discussed. Also, in light of
the heated debates
over peat mining
in the Pungo River watershed, there
were no policies
' which directly related to the proposed mining activities.
' ECONOMIC AND COMMUNITY DEVELOPMENT
1981 Policies and Implementation Strategies
1. Encourage fishing, agricultural and forestry -rela-
ted industries along the waterfront east of Highway 99, west of
Hwy. 99, and inland along Highway 264.
' ** a. Request the Economic Development Administration
to assist in identifying specific industries suited to the sites
listed above.
' 2. Priorities for providing services: First to developed
and transition areas in Town and ;;second priority is to areas outside
' the Town limits.
a. Town Board will conduct survey to determine
' feasibililty of water and sewer expansion for every request.
3. Encourage development around the downtown business
' area. Strive for high density growth in the downtown, low density out
' of downtown.
a. Study the feasibility of applying for Economic
' Development grant funds to the downtown areas.

'
55
' 4. Support control of erosion along water.
a. Will request technical assistance from the Corps of
' Engineers to reclaim eroded areas by filling them.
' b. Will request technical assistance in designing
stabilization measures for erosion -prone areas.
'
5. Support Corps of Engineers programs for channel mainten-
ance.
'
a. Assist in identifying sites for borrow and spoil
material for maintaining channel depth. �>
'
6. Support the tourism industry.
'
** a. Prepare a written history of the Town in advance of
establishing a walking tour.
** b. Establish an historic district to increase tourism..
** C. Increase vistas between downtown and the waterfront.
7. The Town chose not to take a policy on the siting of
'
energy -generating facilities.
B. Promote industrial growth to the point where it does not
'
have a negative impact on the environment.
Of the policies listed above, the implementation strategies
'
regarding tourism There
were not carried out. were no policy state-
ments on the inadequacy of the wastewater treatment facility, and its
problems during periods of high rain. Again, several key issues
'
required in the CAMA guidelines were not addressed.
The Board felt that the 1981 update was an excellent effort.
' Due largely to the extra five
g y years of experience, they agreed that the
' 19136 plan would show continued improvement.

56
I
11
ISSUES AND POLICY STATEMENTS
The formulation of specific policy statements regarding growth
and growth management objectives is probably the most important
contribution of this land use plan update. The evaluation of the
present population conditions, the condition of the land and water
resources in the Belhaven planning area, and the existing methods of
policy enforcement sometimes suggests the need to modify policy to
accommodate changes in local conditions.
The Coastal Resources Commission requires that policiVs be
addressed in five categories:
Resource Protection
Resource Production and Management
Economic and Community Development
Citizen Participation
Storm Hazard Mitigation
Each policy category is intended to cover all issues associ-
ated with growth for the Town in the coming years. The guidelines were
prepared to accommodate a wide range of conditions found in communities
in coastal North Carolina. Because of this, not all issues addressed
by the guidelines are directly applicable to Belhaven.
Policy statements in this section reflect recommendations from
Town staff and the planning consultants, input from citizens, and
experience of the Planning Board in judging what is best for the future
of Belhaven. These statements define the problem or issue, possible
alternatives for action, the selected alternative(s), and the means of

57
. I
' implementing and enforcing the chosen alternative. It must be noted
that some issues are of such great importance that only one policy
' alternative exists. In other cases, several courses of action are
possible. The following section represents the Town's best effort to
' guide development in the planning area.
RESOURCE PROTECTION
'
Belhaven recognizes the need to protect its natural and cultural
,d
resources. It is understood that these are an irreplaceabl&asset
which require
protection. Often, these resources represent an economic
'
return to the area's residents through their exploitation. It is in
the best interest of all citizens of eastern North Carolina that these
'
resources be protected and managed to their highest potential.
The natural and cultural resources of the Belhaven area have
'
been identified in the Constraints to Development• Land Suitability
'
section of this plan. The Town of Belhaven is intimately familiar with
the water quality problems associated with the Pamlico and Pun go Rivers
'
and their tributaries. As an upstream user, Belhaven recognizes its
contribution to the pollution problems of the Pamlico-Pungo system. As
'
a result of this, the Town will work to mitigate any problem which
contributes to the degradation of water quality in the Pamlico water-
shed provided that the proposed solution does not interfere with
'
acceptable methods of development within the Town.
Belhaven feels that it is in a favorable position for growth,
'
particularly industrial development, and does not want any policies in
place which might inhibit growth in any way. While the Town does not

58
I
want development to occur at the expense of the natural system, it is
felt that development should not be impaired by the characteristics of
' the natural system. The Planning Board worked hard to develop policies
which would best reflect the Town's position. In any case, all
development in town must comply with the policies listed below. The
' following section details the issues concerned with development
and the relationship with the ecosystem.
DEVELOPMENT IN AREAS WITH CONSTRAINTS
'
The to
constraints development in Belhaven were discussed in the
'
preceding section and relate to both physical constraints associated
with the natural surroundings and the cap
acities pacities of community facili-
ties and infrastructure. Physical constraints include man-made fuel
storage areas, high hazard flood zones, and areas with soil limitations
'
for the safe placement of septic tanks. The sawdust pile near the old
'
mill on the waterfront is also a hazard to.development.
All of the soils in the Belhaven planning area are poorly suited
'
for the safe placement of septic tanks. The organic soils in the
region also sometimes present subsidence problems for foundations. The
'
Town recognizes the importance ofsafe septic tank placement to prevent
'
groundwater, surface water, and well contamination and also realizes
its inability to change or correct the characteristics of the soil.
'
Fuel storage facilities are located along the By -Pass and Business
routes of Highway 264. The Town acknowledges that any adjacent
'
development would be subject to fire risk from a possible ignition of
flammable materials and well contamination from tank seepage. The

'
59
1
r,
'
sawdust pile is also a dangerous fire hazard. Any construction in the
vicinity of these hazards should be designed to withstand the potential
'
risks associated with them.
According to the Federal Flood Insurance Program, the entire
'
is located
planning area in a.high hazard flood zone. Water from the
'
100-year flood would inundate the entire planning area (Figure b).
Since the entire town is subject to flooding, it is not realistic to
'
prohibit development in floodprone areas. The Flood Prevention
Ordinance divides the Town into two flood districts based on-Wleva-
'
tions. It requires development
all to be situated at least eight or
'
nine feet above sea level (depending upon the location in town) to
qualify for flood insurance. This often requires development qto be
'
located on pilings or on fill material that has been piled to eleva-
tions above eight feet.
Policy Alternatives
'
Possible policy alternatives for growth management and development
in areas with identified constraints include .
'
1. Discourage major developments such as residential subdivi-
sions and industry from locating in highest risk areas for flooding by
'
denying new water and sewer connections.
2. Develop and adopt additional regulations in the flood
damage prevention ordinance and the zoning ordinance to regulate or
prohibit all development in areas with physical constraints.
3. Permit development in areas with physical constraints,
'
utilizing current state, federal and local regulatory processes, i.e.,

'
60
'
CAMA, flood insurance, subdivision regulations and Corps of Engineers
404 permitting system.
'
4. Encourage public education for landowners to learn
about soil conditions and flood risks in the planning area.
'
Policy Choices
and Implementation Strategies
Belhaven adopts the following policies regarding development
in areas with constraints:
'
1. Belhaven recognizes the inevitability of some development
occurring in high hazard flood areas due to the prevalence of'kflood-
'
prone land in the
area. Therefore, the Town will continue to partici-
'
pate in the Federal Flood Insurance Program and promote enforcement
through the Town BuildingInspection Pro
p gram. All proposed development
'
must abide by the regulations set forth in the Flood Prevention
Ordinance.
'
2. The Town recognizes its inability to change the condition
'
of the soils to accommodate development. As an optimal solution, the
Town would like to develop a long-range plan to extend sewer lines to
'
all development within the one mile extraterritorial limit located on
soils unsuitable for septic tanks. This is currently impossible
'
because of the limitations of the sewage treatment plant. The waste-
1
water treatment facility is currently in the first phase of a 201
Facilities
Plan to upgrade the system. It is expected that within two
'
years, additional sewer lines can be laid and several more customers
can be accommodated.
'
For the present, the Town has decided to continue to support
the decisions of the County Health Department on septic tank placement.

61
'
Belhaven will continue to support the County Building Regulations which
regulate where construction can occur based on soil characteristics.
'
3. The Town will work with potential developers in deciding
the optimal sites for construction. Belhaven will utilize the Beaufort
County
Soil Survey in deciding the best sites for development in the
'
Town. The zoning ordinance will also regulate the location of all land
uses within the one mile planning area.
AEC DEVELOPMENT
'
Belhaven
recognizes that the primary concern of the Coastal
'
Resources Commission is to protect our coastal resources, especi-
ally the Areas of Environmental Concern. The Town shares this concern
'
for the protection and sound management of these environmentally
sensitive lands and waters. The AECs in the Belhaven planning area
were described in the
.Constraints to Development section and include
'
the estuary, the estuarine shoreline, public trust waters and coastal
wetlands.
The commercial fishing industry is an important component of the
Belhaven economy. The vitality of this industry depends upon the
'
quality of the estuary. In order to remain one of the top seafood
'
producers in North Carolina, Belhaven must protect its primary re-
source, the estuarine waters, which produce most of the Town's wealth.
'
The Town recognizes that development may jeopardize this resource, but
feels it cannot afford to restrict growth. In order to strengthen the
'
economy and provide jobs for the unemployed, Belhaven would like to

'
62
'
encourage development, providing that it does not violate the State's
objectives for the protection of the natural resources.
'
Belhaven shares the state's policy and management objective
for the estuarine system "to give the highest priority to the protec-
tion
and coordinated management of these areas so as to safeguard and
perpetuate their biological, social, economic and aesthetic values and
to ensure that development occurring within these AECs is compatible
with natural characteristics so as to minimize the likelihood of
significant loss of private property and public resources" (M NCAC
7H. 0203). In accordance with this overall objective, Belhaven will
t
permit those land uses which conform to the general use standards of
the North Carolina Administrative Code 15 NCAC 7H) for development
'
within the estuarine system. The Town has no intention for further
restricting the types of land uses permitted near the AECs.
'
Policy Alternatives
'
The Town's policy alternatives for development in AECs are:
I. Continue to utilize the NCAC guidelines for permittable
p i table
'
uses in AECs.
2. Prohibit all development in AECs.
'
3. Establish a 75-foot conservation buffer zone from water
'
or marsh's edge where no development shall be permitted. Classify this
area "Conservation"
as according to Land Classification system.
4. Create disincentives for development in AECs.

Policy Choices
1. The Town of Belhaven has decided to continue to utilize
'
the current system along with Federal and State permit and review
'
processes, i.e. CAMA and Dredge and Fill.
2. Belhaven will continue to conform with state guidelines
'
for allowable uses in AECs and will list these as appropriate uses in
the zoning ordinance.
3. The Town will allow development in the AECs provided
that the development does not violate natural barriers for eNosion,
'
significantly interfere with the public's use of navigable waters, or
'
have a substantial chance of causing pollution to the AEC as determined
by the NRCD Division of Environmental Management.
'
Implementation Strategies
1. Current State and Federal permit and review processes
'
will be employed to determine viable development types in AECs.
'
2. The land classification system will restrict development
within each class.
'
3. Development will be controlled by the Town's zoning
ordinance.
' OTHER FRAGILE AREAS AND AECS
In addition to the AECs, other fragile areas in Belhaven warrant
' special considerations. These include the undesignated primary nursery
areas; the archaeological sites and historic structures identified by
' the North Carolina Department of Cultural Resources, Division of
Archives and History; and historic structures on the National Register
' of Historic Places.

64
'
The nursery areas in the Pungo River and its tributaries are
critical for the full development of several o species of fish. Pante
P g
'
Creek, Battalina Creek and Tooley's Creek function as nursery areas.
Protection of these nursery areas is important for supporting the
Belhaven economy, but the Town considers nursery area protection within
'
the planning area to be of lower priority than economic development.
The site of Aquascogoc, a prehistoric Indian village identified on
a 1585 map, may be located in the Belhaven planning area. The map
places it near the head of the Pungo River estuary. Thi location
could be present-day Scranton, in Hyde County, or Belhaven. In
addition, eight charted wrecks in the planning area may be archaeolog-
ically significant, but no survey has yet been conducted. The Belhaven
'
Town Hall has been listed on the National Register of Historic Places
for its unique architectural style. The NC Department of Cultural
'
Resources makes the following recommendations for management of
historic and'prehistoric sites:
'
"Effective
treatment of known or discovered archaeo-
logical sites may bf accomplished through survey,
mitigative recovery of significant data, avoidance
'
or preservation in place. Efforts will also be made
to provide recognition and protection through such
'
means as the National Register
of Historic Places,
'
if appropriate, and through adherence to regulatory
programs administered by the North Carolina Division
'
of Archives and History".

65
'
The Town recognizes the historical and scientific importance
of archaeological sites and is committed to preserving the valuable
'
information they may contain. Belhaven understands that its historical
integrity is a part of its heritage. Efforts should be taken to
preserve the structures which represent the Town's history.
Policy Alternatives
'
As with the AECs, these fragile areas are of such importance
that no reasonable alternatives exist but to offer protection. -Varying
degrees of protection are reflected by these policy alternatives:
'
1. Prohibit development over archaeological sites listed
by NC Department of Cultural Resources.
'
2. Acknowledge that nursery areas are critical to the
local economy and work to limit runoff into them.
"donating"
3. Develop a program of historic properties
to the Town and work to set up an historic district.
4. Discourage development in all fragile areas.
'
Policy Choices
1. If an archaeological site is identified, a thorough
'
investigation be
must conducted by N.C. Department of Cultural Re-
'
sources before any building permit is granted.
2. P
Encourage reservation of historic sites.
'
3. Utilizing the Division of Coastal Management, protect
all nursery areas to the extent that. it does not interfere with
acceptable methods of development outlined under the Town's land
classification and zoning regulations.

M-M
' 4. Review existing subdivision regulations to ensure
regulations offer sufficient protection to historic and archaeological
' resources.
Implementation Strateoies
1. Work with building permits officer to require thorough
' investigation of site before permit is granted.
2. Support of the Historic Preservation Committee and
Downtown Redevelopment Commissionifestablished.
' HURRICANE AND FLOOD EVACUATION NEEDS
The policy statements regarding Hurricane and Flood Evacua-
tion Needs are addressed in the Storm Hazard Mitigation and Post -Dis-
aster Reconstruction section of this plan.
'
PROTECTION OF POTABLE WATER
'
The availability of potable water is a critical
concern in
the Belhaven region because'of the large drawdown resulting
g
from nearby
'
phosphate mining operations. Beaufort County is included in a state
groundwater management region called the Capacity Use Area. Recently,
'
there has been discussion among legislators and community leaders about
the possibility of constructing a pipeline to transport
mined water
from the Texasgulf site to the Virginia Beach area. Large
groundwater
'
withdrawals in Southern Virginia are also affecting
groundwater
supplies in Northeastern N.C. These factors may one
day jeopar-
dize the supply for the Belhaven area. In this issue,
there are
1
1

67
' no alternatives other than protection of groundwater for the future.
The Town recognizes the importance of the limited regional supply of
' groundwater and the need for its protection.
IPolicy Choices
' 1. Support state efforts to manage groundwater withdrawals
in the Capacity Use Area.
' 2. Encourage Mayor and Town Manager to keep informed
about the availability and quality of water from the Yorktownr�,forma-
' tion.
'
3.
Discourage
development of
a pipeline or other system
which exports
water from
the Belhaven area
thereby endangering the
'
limited available supply for
all of Beaufort
County.
Implementation
Strategies
'
1.
Continue to
Division
Environmental
support
of Management
'
Groundwater Section efforts
to protect water
in Capacity Use Area.
I
USE OF SEPTIC TANKS
Soils are largely unsatisfactory for the safe placement of
' septic tanks in the planning area. Most soils are too wet. Unless
care is exercised, this could present problems for the health and
' safety of area residents. Unsatisfactory performance of soils around
' septic tanks could contaminate groundwater wells. The Town recognizes
that it has no power over the soils: they cannot be altered in any way
' to improve their efficiency. Also, all septic tank requests are
1

68
l!
11
reviewed by the County Health Department, not the Town. Because of
these restrictions, little can be done about policy for septic tank
placement. The optimal solution is to eliminate the need for individ-
ual treatment systems by giving all area residents access to the
municipal wastewater treatment plant. This must be a long-range plan
because of the current limitations on laying sewage pipes imposed
by the Division of Environmental Management. Within two years,
the Town expects to have the potential to accommodate a signifi-
cantly larger number of customers. t�
Policy Choices
1. Work on a long-range plan to extend sewer lines to
all developed areas within the one -mile jurisdictional limit.
2. Where use of septic tanks is unavoidable, town supports
implementation of techniques to improve the efficiency of septic tanks,
such as mound and waterless systems or other innovative technologies
which gain approval of state and county environmental and public health
authorities.
3. As a minimum, any septic tank installation applica-
tion must meet State and County regulations.
4. Encourage that everyone in 'developed" zones hook
up to town's wastewater treatment facility, providing that it is
capable of handling the additions.
5. Improve the capacity and efficiency of the Town sewage
treatment plant.

69 t/
' Implementation Strategies
I. Enforcement will remain the responsibility of the County
Health Department, which grants permits for septic tanks, and the
Building Inspector.
2. Continue to work with Division of Environmental Manage-
ment to improve wastewater treatment facility.
3. Apply for any new sources of funding for wastewater
' treatment system improvement which may become available.
'
STORM WATER RUNOFF
'
Non -point source pollution is considered a major problem for
the Town of Belhaven. Non -point pollution refers to pollutants
'
that are washed into surface waters during a rainstorm. The amount of
fertilizers, pesticides, organic wastes, metals, oil contaminants and
'
litter which eventually enters the river system is increased signifi-
'
cantly by a heavy rain. Agricultural runoff typically contributes a
significant portion to the nutrient load of the river, therebycreating
9
'
conditions most likely to result in algae blooms, low dissolved oxygen,
and associated fish kills. Storm water runoff contributes to the many
'
water quality problems discussed by commercial fishermen and recrea-
'
tional boaters in the area. Several days after a heavy rainfall,
a fish kill frequently occurs. Blame for the kill can be largely
9 Y
'
placed on the bottom water anoxia resulting from storm water runoff
which enters the creeks and rivers after a rain. Treatment for
'
non -point pollution can cost millions of dollars or be relatively
11

70
1
inexpensive. An effective, but costly method of mitigation is to route
storm water runoff through the wastewater treatment facility. This
option often overtaxes the system during a serious rainfall and reduces
its efficiency. Less expensive measures can be taken'. The marshes
and other wetlands located along the river offer a water filtering
system that works naturally to sift out or uptake many pollutants
before they can enter the creek system. In addition, a good street
cleaning system can significantly cut down on the amount of pollutants
entering the river.
Because of the importance of the fishing industry in Belhaven, the
Town has no real policy options except to work to mitigate storm water
runoff. Because of the limited amount of funds available for this
issue, the Town has decided to work to solve this problem by utilizing
the natural system for passive control of non -point pollution.
Policy Choices
1. Encourage the use of permeable surface materials and
development and maintenance of riparian vegetation throughout the
planning area.
2. Development adjacent to AEC must be designed so that
' runoff will not violate water quality standards.
3. Implement street cleaning system to improve the appear-
ance of Town and to try to limit the amount of pollutants which can
enter surface waters.
Implementation Strategies
' 1. Continue to employ efforts of CAMA permitting system and
Corps of Engineers 404 permitting in determining development types
' which do not violate water quality.

71 v
' 2. Work with property. owners to encourage utilization
of permeable paving materials for parking lots and other facilities
' which require large amounts of paving.
3. Development, in Conservation zone will be reviewed
' on a case -by -case basis by the Planning Board.
' 4. Regulate land uses within. estuarine shoreline AEC
and "Conservation" land classification (for description of land.
' uses, see definition of "Conservation" in Land Classification System
section of this plan).
'
MARINA AND FLOATING HOME DEVELOPMENT
Marinas are an important convenience for boaters. They often
'
generate revenue through slip rental, repairs and gasoline sales. But
marinas are known to degrade the water in which they are located.
tBelhaven
currently has
several commercial marina facilities on Pantego
'
Creek, plus a publicly -owned boat ramp. Floating homes are currently
not a problem for the planning area.
'
Policy Alternatives
1. Encourage the development of marinas and floating
'
homes.
2. Discourage the development of marinas and location
of floating homes in light of their contribution to water quality
Y
degradation.
IL

72
' Policy Choices
1. Allow marinas and floating homes, but encourage their
'location, design and size to ' g prevent violation of water quality
standards and the integrity of coastal wetlands as.determined by
Division of Environmental Management officials.
'
Implementation
Strategies
I.
Continue
working with CAMA permitting system in regula-
ting siting of marinas.
2. The Planning Board will examine each marina development
request on a case -by -case basis.
3. Work toward a revision of the zoning ordinance reflect-
ing this policy statement.
INDUSTRIAL IMPACTS AROUND FRAGILE AREAS
The policies above address development of all types in and
around fragile areas. Because of the Town's location on the Pungo
River and its tributaries and its low elevation, nearly all locations
zoned for industry might negatively impact the environment. There is
currently a very small amount of land in town available for industrial
development. Most of this land is located along the waterfront,
thereby contributing to the possibility of destruction to the fragile
areas.
The Town recognizes the importance of its natural and cultural
resources, but the Town has an immediate need for economic growth.
Belhaven would like to encourage all types of industry in the area and

' 73
'
does not want to have policies in place which may discourage industry
in any way. The Town encourages all types of industry to consider
'
locating in Belhaven and each request will be reviewed on an individual
basis by the Planning Board.
'
Policy Choices
1. Industrial growth will be encouraged in lands currently
zoned for industry. The Town will encourage water -dependent uses to
'
locate at the waterfront, at the same time encouraging uses not
water -oriented to locate in industrial zones away from the wat'brfront
'
area. If no alternative location
is available, development may be
'
permitted in fragile areas, pending case -by -case approval by the
Zoning Board of Adjustments.
'
Implementation Strategies
1. Continued support of CAMA and 404 permitting systems,
'
Building Inspector and Town Building Requirements.
'
2. Town will consider expanding/reclassifying industrial
areas.
' 3. The Town will consider permitting the use of package
treatment plants on a case -by -case after consultation with county
' health officials and state environmental officials.
4. Revise the zoning ordinance so that Planning Board
' review and comment is required before special permits for industrial
' uses are issued.

74
' RESOURCE PRODUCTION AND MANAGEMENT
Appropriate management of productive resources is very important
' to any locality. In most cases, the productive resources are intri-
cately tied into the economic fabric of the area. It is, therefore,
' wise to manage these resources to the best of their productivity and to
H
P
ensure their existence for future generations. The major productive
resources in Belhaven are related to agriculture, mining and commercial
and recreational fisheries. Commercial forestry, while important in
the surrounding region, is not an important industry witfti-n the
Belhaven planning area, as no commercially -owned forest areas exist in
the planning area. No policy statements regarding forestry were
needed.
PRODUCTIVE AGRICULTURAL LAND
Agriculture, as discussed in the Existing Condition section
of this plan, is an important component of the local economy. Farming
brings in a large amount of income to the area through the actual sale
of farm commodities, farm supplies and.equipment. A large portion of
the planning area is currently or has been under cultivation. The Soil
Conservation Service has identified and mapped the soils in the
planning area which are considered to be some of the best in the county
for agricultural productivity (Figure 9). These soils occupy a very
small pocket of land in the planning area.
In policy, the Town could opt to conserve these farm soils
for future use by restricting any development from occurring on
them. Belhaven realizes how important agriculture is to the economy,

'
.75
'
but feels that any type of development should take precedence over•this
small amount of farmland. Soils which are best suited to farming are
'
typically well -drained and compatible with septic tank usage. If any
development is proposed for these tracts of prime agricultural land,
1
the Town does not want to restrict development in any way. Until
'
development proposals are presented, however, the Town would like to
encourage the owner of these tracts to implement the Best Management
'
Practices for their conservation.
Policy Alternatives
1. Town wishes to protect agricultural lands identi-
fied as "prime" by the SCS and Division of Soil and Water Conserva-
tion.
'
2. Prohibit any land use other than agriculture, forestry
or conservation on prime agricultural soils.
'
3. Promote
conservation of these lands by encouraging
'
owners of these tracts to implement Best Management Practices and to
participate in the Agricultural Cost Share Program.
'
4. Classify lands as Conservation -A, meaning that these
are agricultural areas which should be precluded from development.
'
5. Do not impose land
any additional use controls or
restrictions on agricultural practices, so that needed land clearance
and drainage activities can continue.
'
Policy Choices
1. Town will not take extra precautions to preserve
'
these lands.

76
'
2. Encourage owners of these tracts and other areas
under cultivation to implement Best Management Practices with technical
'
assistance from the Soil Conservation Service and encourage them to
participate in the Agricultural Cost Share Program.
'
Implementation
Strategies
'
1. Continue to work with the Agricultural Stabilization
and Conservation Service, Soil Conservation Service, and Beaufort
'
County Soil and Water Conservation District in getting farmers to
adopt BMPs. Financial assistance is available through the Agric&l-tural
Cost Share Program.
Legislative action by the General Assembly in
the Summer 1986 session made projects in all coastal counties eligible
for funding. Under the program, 75% of the average cost of projects
designed to reduce the input of agricultural nonpoint sources can be
funded. In -kind support from the farmer can be used to provide the
'
25% remainder. Cost -shared practices include cropland conversion to
grass, diversions, tree planting, and water and grade control struc-
tures. Cost -share incentive payments are available for land a lica-
PP
'
tion of animal wastes, conservation tillage, sod -based rotations, and
strip cropping.
EXISTING AND POTENTIAL MINERAL PRODUCTION AREAS
Open -pit mining has been an economic mainstay of Beaufort County
since the Texasgulf mining operations came to the County in 1965. The
environmental and economic effects of the phosphate mining have been
' witnessed by Belhaven area residents.

'
77
'
Peat mining has also become an issue within recent years, but
there are currently no known "prime" sites for peat mining in the
Belhaven area. All peat soils in Belhaven are low in energy value and
would be uneconomical to mine at this time. There are, however,
significant mineable peat deposits in Hyde County where proposed mining
'
operations would discharge to the Pungo River.
The Town feels very uncertain about the impact of peat mining
'
within its jurisdiction. There is little scientific knowledge about
the ecological effects of peat mining and until answers are f6und to
'
the
many questions brought up, the Town does not want to permit such
'
mining without very seriously considering its effects. Until informa-
tion is available about the effects of peat mining, the Town does not
want to allow mining within the planning area.
Policy Choices
'
1. Town discourages
any type of open -pit mining within
'
the'one-mile jurisdictional limit of Town. Any mining activities
proposed must apply for a special use permit which will be -granted PPY P Pona
'
case -by -case basis.
2. Discourage extraction of peat within the one -mile
jurisdictional limit.
'
3. Town will not be responsible for provision of services to
any proposed mining activities which take place within its one mile
limit.
Implementation Strategies
'
1. Continued review process of applications for special use
permits to Planning Board.
'

I
7s
'
COMMERCIAL AND RECREATIONAL FISHERIES
The commercial fishing industry is vital to the local economy.
'
Dozens of independent full-time commercial fishermen live and work in
'
the Belhaven area, and several hundred persons are employed in the
several crab processing plants. Tooley's Creek and Pantego'Creek also
'
function as nursery areas for several species. Concern has been raised
by commercial fishermen and Division of Marine Fisheries technicians
'
about the effect of runoff on the fisheries industries. Freshwater
runoff from drainage ditches and non -point pollution has beentdetri-
'
mental to the fishing
waters by altering the salinity content and
adding pollutants to the estuarine system. Concern has also been
raised over incidences of fecal coliform, largely from septic tank
'
seepage, being identified in shellfish beds in other parts of the
state. In order to support the commercial and recreational fishing
'
industries, the Town needs to implement techniques to maintain water
quality.
The Town recognizes the State's right to oversee the public
waters and tributaries under public jurisdiction. To remain consistent
with the aforementioned Resource Protection policies, the Town has
'
elected to take all measures possible to protect the fisheries to the
,
extent that it does not interfere with acceptable methods of develop-
ment.as outlined under the Town's land classification system and zoning
'
regulations.

9
'
Policy Choices
1. Town will protect
the commercial and
recreational
tfisheries
areas within the Town's
jurisdiction provided
that the
protection measures do not interfere
with the development
adjacent to
'
the
public waters.
'
Implementation Strategies
1. The CAMA and 404
permitting system, as
well as the
Town's subdivision ordinance will
provide sufficient
enforcement
for this policy.
'
2. The
County Health
Department, largely
responsible
for the safe placement of septic
tanks, will be responsible for
minimizing the likelihood of contamination of fishing
waters from
'
the effluent of septic systems in unsuitable soils.
3. Classify areas within
75 feet of the mean high water
'
level of estuarine waters as Conservation.
' OFF -ROAD VEHICLES
' The mention of "off -road' vehicles in coastal North Carolina,
typically conjures ideas of four-wheel drive type vehicles driving up
' and down the sandy beaches of the ocean front. In Belhaven, there is
no problem with these vehicles operating on the beaches. Since this
' was not applicable to the planning area, no policy was formed. If this
' does become an issue in future years, the Town will encourage the
development of an ordinance to deal with the problem.

80
IMPACTS OF DEVELOPMENT TYPES ON RESOURCES
Belhaven, as discussed in the "Existing Conditions" section
of this plan, is currently not undergoing large amounts of growth
like some other eastern North Carolina cities. It is, therefore,
not experiencing the same levels of development pressure as other
Towns.
. The Town views itself as being in a position to accommodate
growth and development. Consistent to the aforementioned policies, the
Town is pro -growth as long as the development is not environmontally
degrading. The limitations imposed by the Town's policies on the
protection of sensitive natural and cultural resources must be met to
accommodate growth.
Policy Choice
1. The Town is pro -development as long as the develop-
ment is not environmentally degrading, meets the approval of the
federal and state authorities, and is consistent with the aforemen-
tioned policies.

1 81
'
ECONOMIC AND COMMUNITY DEVELOPMENT
The analysis of the present conditions of the population and
'
economy of the Belhaven planning area revealed no major changes
'
in the economic atmosphere since the last update. Belhaven is very
concerned about future growth, especially industrial and commercial
'
development. The Town's economy has undergone slow growth, basically
due to the increasing importance of the commercial fishing industry in
'
the region. Tourism is also being favorably regarded as a viable
economic option. The potential exists for an explosion of growth in
Belhaven. Policies should be in place to accommodate this growth, when
'
it occurs.
The following section outlines growth policies which have an
'
impact on land use decisions. These policies define the goals Belhaven
has set for where it would like to be in the next ten years. Particu-
lar issues,
related to growth and the town's commitment to economic
'
development, are discussed below.
' LOCATION AND TYPES OF INDUSTRIES DESIRED
The Belhaven planning area, as discussed in the preceding section,
' is blessed with several natural and cultural resources. It is situated
at the confluence of Pantego Creek and the Pungo River, and has some of
' the county's most productive agricultural soils, plus several signifi-
cant P 9
' cant cultural assets.
Many of the regional economic activities take advantage of
these resources. A large phosphate mining industry, located across the
river from Belhaven, employs about 1,150 persons, many of whom are

' 82
'
Belhaven residents. Within the Belhaven planning area, three seafood
processing operations employ a large percentage of the labor force
'
through its various stages of operation. In addition, farming is a
major economic activity which employs dozens of persons through farm
labor or through the sale of farming equipment and supplies.
Belhaven has an intense need for increased job opportunities
for many of its unemployed and underemployed citizens. Industri-
al development could provide these opportunities as well as expand the
County's tax base. �-
1
The
Town of Belhaven would like to recruit all types of industry
'
to the area and particularly encourages the continued development
and/or expansion of resource -intensive industries. Timber products
'
manufacturers, marine -related and seafood processing industries would
be considered. Agricultural products processing firms would also be
'
welcome to in the
sites extraterritorial area.
Low -pollution, light manufacturing and/or assembly industries
would also be desireable. Electronics, textiles, Y equipment,
heavy a ui ment ,
'
marketing firms, and furniture manufactures would not significantly
contribute to the environmental problems, but employ a large number of
'
persons.
'
To provide better services for its residents, the Town would
like to recruit new types of businesses, as well. Retail, enter-
tainment, and service -oriented businesses are greatly needed. Addi-
tional entertainment facilities, such as theatres, skating rinks, and
'
bowling alleys would receive great support from the Town.

'
83
1
'
All industries considering locating in the Belhaven planning
area must be consistent with the Town's aforementioned resource
'
policy statements. The proposed location of each industry will
be examined on a case -by -case basis.
'
Several
sites are available in the planning area for industry.
'
The Town would like to see industry locate along the waterfront in the
existing industrial area and along Highway 2b4 By -Pass. Both areas are
'
well connected for transportation purposes and are currently served by
water and sewer. The waterfront would be best suited to industries
'
which cannot function without water access (i.e. marinas, seafood
'
processors), but all industrial types will be considered for location
at that site. Property along Highway 264 is very well suited to other
'
industrial types listed above. Other sites considered for industrial
location will be considered on a case -by -case basis by the Planning
'
Board.
Policy Choices
Encourage industry types which take advantage of
'
natural resource base and existing labor supply.
2. Encourage low -pollution, light manufacturing types
'
which are compatible with resource protection, production and manage-
ment goals and policies.
3. Encourage low waste load industries to prevent contri-
buting to wastewater treatment problems.
4. Encourage seafood -related industries providing they are
' consistent with resource protection goals of the Town.

' 84
' 5. Encourage industry which employs low -skilled workers,
particularly women. Assembly -type manufacturing and a garment factory
' would be well suited for this purpose.
6. Industrial sites will be limited to areas zoned for
' manufacturing along Highway 264 and the waterfront of Town.
' Implementation Schedule
1. Town will establish more active contact with state's
industrial development representative for the region.
2. Zoning ordinance, CAMA and 404 permitting systems
' will regulate the development of 'industry within specific areas.
COMMITMENT TO PROVIDING SERVICES
'
The Town realizes the great importance associated with bringing
the wastewater treatment facility into compliance with state discharge
'
requirements. Unless this
goal is attained, very little growth can
'
occur because of the limitations imposed on laying additional piping to
the system. This is in the process of being corrected. The 201
'
Facilities Plan, recently funded, is expected to bring the sewage
treatment system into compliance by 1988. All new development will be
'
able to tie into the municipal treatment facility.
Currently, nearly 93 percent of the area's residents are hooked up
to the water system. The equivalent of 925 persons can be added to
this system.
Belhaven acknowledges that the its soils are not conducive to
'
septic tank usage and the optimal solution to this problem is to
provide wastewater treatment service to all residents in the planning
91

' 85
'
area. The Town has discussed a long-range plan to extend utilities,
such as water and sewer, to all development "pockets" within the
'
planning area.
'
Belhaven is committed to providing basic services to serve
increased development in the area. The first priority is to "develop-
'
ed" areas shown on the land classification map. Industrial requests
will be examined on an individual basis by,the Town Board.
'
Policy Choices
1. First priority in delivery of services is t&-areas
'
"Developed"
classified as on land classification map. Second priority
'
is to "Transition" areas.
2. Residential customers will be served first.
'
3. Industrial uses will be examined on a case -by -case
basis by the Town Board.
4. Service delivery will be as per the Utilities Ordinance.
DESIRED URBAN GROWTH PATTERNS
'
Population projections suggest that the slow and steady growth
rates that Belhaven has experience in the past will continue over the
'
next ten The Town's is to increase by 180
years. population expected
'
persons within the next ten years. The water and wastewater treatment
systems will be able to accommodate this growth if the sewage treatment
facility is upgraded.
Presently, very little land is available to accommodate the
'
An annexation feasibility is to
projected growth. study recommended
'
examine the possibility of the Town's acquiring additional land for

86
1
1
1
1
1
1
1
1
1
1
1
1
growth. The Town would like to encourage commercial and residential
growth in the old downtown area.
Policy Alternatives
1. Limit growth to 3,500 persons, based on the capabi-
lities of the water and wastewater treatment facilities.
2. Consider developing a zoning ordinance exclusively
for mobile homes.
3. Urban growth patterns will remain consistent with the
zoning ordinance.
Policy Choices
1. Urban patterns will be limited by the zoning ordinance.
Implementation Schedule
1. Urban growth patterns and densities will be limited
by the subdivision ordinance, the County Health Department and the
zoning ordinance.
REDEVELOPMENT OF DEVELOPED AREAS
The Town of Belhaven's policy on redevelopment of developed
areas has been demonstrated over the past five years. The Town
has been awarded two Small Cities Community Development Block Grants to
improve substandard housing with n its jurisdiction. Also, the Town
encourages historic preservation. The steeple on the historic Town
Hall is undergoing rehabilitation. The Town wishes to continue
programs such as.these over the next five years.

87
' Downtown revitalization has been encouraged for the past several
years, but.a limited amount of progress has been made toward this goal.
' The Town still feels committed to this effort, however.
According to the SLOSH model, all structures in the planning
' area would be wiped out in the event of a severe storm. In this case,
' all structures would be rebuilt according to the zoning ordinance.
According to the ordinance, "all non -conforming uses damaged or
destroyed by fire, wind, flood, or other causes may be repaired or
rebuilt and used as before if repairs are initiated within twe Ne (12)
months and completed within twenty-four (24) months of such damage" (p.
'
16).
Policy Choices
I. Continued support of downtown beautification efforts and
Historic Preservation Committee. Town will work to help secure funds
'
for historic redevelopment projects.
'
2. In the event of destruction by a storm, redevelopment
will occur in accordance with the zoning ordinance. If money is
'
available, the Town will consider purchasing appropriate areas,
particularly waterfront parcels, for open space.
3. The Town supports the application of funds for redevel-
opment of substandard housing within the town limits.
Implementation Schedule
The Town will coordinate with private individuals
and organizations to secure financial support for downtown beautifica-
tion efforts.

1 88
' 2. Town will consider the feasibility of applying for
a Small Cities Community Development Block Grant to rehabilitate
' substandard housing in town limits.
COMMITMENT
TO STATE AND FEDERAL PROGRAMS
'
The Town of Belhaven is receptive to State and Federal Programs
which provide improvements to the Town. Belhaven will continue to
'
fully support such programs that provide necessary resources to meet
identified community needs that compliment the economic and community
'
development
goals of the Town. Of particular significance is the N.C.
'
Department of Transportation Road and Bridge Improvements program. The
Town will support these programs and will honor financial assistance
'
requests when financially able and when the proposed project is in
compliance with the Town's goals for economic development.
'
The Erosion Control
program, carried out by the Agricultur-
al Stabilization and Conservation Service and the Soil Conserva-
tion Service, is especially important to the farming community in the
planning area. The Town supports the efforts of these agencies,
including the implementation of Best Management Practices to mitigate
'
soil loss through erosion. Funding is now available through the
state's Agricultural Cost Share Program for projects which will reduce
agricultural runoff. The Town will work with District Soil and Water
'
Conservation officials to encourage farmers to apply for the 75%
funding of conservation projects. In addition, the Town has establish-
ed a policy to encourage the use of a vegetative buffer between all

M.
'
development and surface water bodies to reduce the sediment load from
entering the riverine system (See Resource Protection policy state-
ments). The Town also supports the use of previous surface materials
'
in construction within the planning area. Pervious surface materials
provide a method of natural percolation of pollutants into the soils..
'
The military has historically been an important asset to the
economy and quality of life in eastern North Carolina. Recently, there
'
has been continued debate over the expansion of the Military Operating
Airspace (MOA) over Beaufort County. Belhaven is strongly opposed to
the
expansion of the MOA because of the restrictions it would impose on
'
the local air traffic community. Noise levels were an additional
concern in the opposition of the airspace expansion. If the military
'
decides that Belhaven is a good place for the location of a small camp
or headquarters, the Town would like to restrict their activities
'
to the less
developed lands of the planning area. Belhaven opposes any
'
military activities from locating in the "developed" and or "transi-
tion" areas of the planning area.
CHANNEL MAINTENANCE AND WATERFRONT IMPROVEMENTS
Proper channel maintenance is important in Belhaven and the
' Intracoastal Waterway because of the great importance of recreational
boating and the commercial fishing industry to the local economy.
' Special attention should be given to the amount of dredging that
occurs, because excessive dredging can be just as damaging as none at
' all. Dredge lines often disrupt valuable fish habitat on the bottom of

M
rivers, thereby robbing the river of some of its economic value and
important fish habitat.
The Town recently supported the dredging of Wynn's Gut and will
continue to support future channel maintenance projects, but will
discourage excessive dredging because of its effect on fish habitat.
Financial aid for channel maintenance will be made available when
possible. Efforts will be made`' to provide spoil and borrow sites
within the planning area.
Several areas of Belhaven's waterfront are in need of maintenance.
A massive pile of saw dust, the remains of a now -defunct lumber opera-
tion, is located near the Cargill plant on the Pungo Creek waterfront.
In 1984, the pile ignited, starting an underground fire that burned for
several weeks. At several locations along the waterfront, old wharfs
have deteriorated to such an extent that only broken piers and pilings
remain. A large warehouse was once supported by some of the pilings
until destroyed by fire. Local residents suspect a considerable
amount of large underwater debris lies amid the ruined pilings. As
well as making the Town's valuable waterfront unsightly, these areas
present serious navigational and environmental hazards to the commun-
ity.
Policy Alternatives
1. The Town could take no action, leaving channel and
waterfront improvements to the discretion of state and federal offi-
cials.
2. The Town could support efforts to improve navigational
channels and initiate a program to improve its waterfront.

' 91
'
Policy Choices and Implementation Strategies
1. The Town will support navigational improvements proposed
'
by other agencies and request improvements as necessary from appropri-
ate officials.
2. The Town will request assistance from federal and state
tagencies
to rectify navigational and environmental problems at the
waterfront.
ENERGY FACILITY SITING AND DEVELOPMENT
'
In recent years, the development of prospective peat mining
'
operations in Hyde, Tyrrell and Washington Counties has brought
on the possibility of locating energy generating.facilities at sites
'
located near the source of the raw material. The Town of Belhaven
would be a logical place for a peat -fired energy plant. The Belhaven
'
zoning ordinance allows public utilities, such as an energy -generating
'
facility, in the "industrial" zone. After careful examination, the
Town feels that the development of large-scale energy generating
'
facilities should be discouraged within the one mile jurisdictional
area. Energy generating facilities will not be permitted to any
'
site within the
planning area. In order to remain consistent, the
'
zoning ordinance will be amended"to support this change in philosophy.
' TOURISM AND BEACH/WATER ACCESS
Belhaven has demonstrated its commitment to public access to
' public waters by having developed the Town boat ramp and Commun-

M
'
ity Recreation Center beach area. Presently, there are no available
sites for additional public beach access points on Pantego Creek or the
'
Pungo River. The Town should consider applying to NRCD for funding to
conduct a Beach Access Study. Then, should appropriate sites be found
'
to increase
access to the coastal area, the Town should apply for a
'
Beach Access Grant to assist in site acquisition.
The Town is also committed to increasing tourism in the area.
'
Efforts to increase tourism have involved work with the Chamber of
Commerce, Downtown Merchants Association, the Historic Albemarle. -Tour,
'
the Belhaven museum, the Belhaven
library and the Resort Towns Associa-
tion. The Town supports the efforts of the state agencies who work
with these projects.
'
Policy Alternatives
1. The Town could establish no additional policies or
'
courses of action for improvement assuming that the existing facilities
are sufficient.
'
2. The Town could encourage acquisition of undevelop-
'
able waterfront properties for public access sites.
3. Development of a program for "donations" of waterfront
'
property for public use.
'
4. Continued support for historic preservation, the museum,
downtown
revitalization efforts and other methods to increase tourism.
'
Policy Choices
1. The Town will encourage acquisition of undevelop-
'
able waterfront properties for public access sites.

93
' 2. Development of a program for "donations" of waterfront
property for public use.
' 3. Continued support for historic preservation, Belhaven
museum, the Historic Albemarle Tour, downtown revitalization efforts
' and other methods to increase tourism.
TYPES, DENSITIES AND LOCATION OF ANTICIPATED DEVELOPMENT
'
Overly dense development is not a problem in Belhaven, nor
is it anticipated to become a problem during the next tentyears.
Within the past five years, the Land use trends have shown residential
'
growth to occur in existing residential areas and along the waterfront,
and commercial growth has expanded along Highway 264 Business and
'
By -Pass. Industry has also located along these arteries. Belhaven
would like to see continued development in areas which are best able to
accommodate growth and where support services, like sewer and -water,
'
are feasible and practical to provide. All of the growth in recent
years has been inside the hazard areas identified in Figure 12. Indus-
trial growth will be targeted to the land along the waterfront and
along Highway 264 By -Pass.
'
Policy Choices
'
1. Continue to enforce the subdivision ordinance with
minimum lot size of 20,000 square feet for lots without public water
'
and sewer.
2. Continue with efforts to upgrade the sewage treatment
'
plant to accommodate additional customers.

94
3. Ensure that future growth is consistent with the
above policies in Resource Protection, Resource Production and Manage-
ment. Also, the growth must be consistent with the zoning ordinance
and additional goals of the community.

95
HURRICANE AND STORM HAZARD MITIGATION
INTRODUCTION
'
Hurricanes and represent
severe coastal storms serious threats to
'
people and property on the North Carolina coast. North Carolina has
the second highest incidence of hurricanes (Neumann et al., 1978). To
date, North Carolina has experienced 23 major hurricanes since 1890.
This averages to one major hurricane every four years. In addition to
'
hurricanes, tropical storms and "northeasters" present serious threats
'
to eastern North Carolina. Recently a major hurricane, originally
classified as a Category 5 storm, skated past inland North Carolina and
'
brushed a small stretch of Hatteras Island as it moved northward. If
the storm had made landfall near the mouth of the Pamlico River as had
'
been predicted by the National Weather Service at one period during the
storm threat, much of eastern North Carolina could have been destroyed
in its aftermath.
' In order to effectively prepare for the hazards of storms, experts
recommend adoption of a plan which encompasses all aspects of the storm
' period. This plan should delineate areas most likely to sustain
damage, methods to keep areas affected to a minimum, and guidelines for
' reconstruction after the storm. Beaufort County adopted a storm hazard
'
mitigation plan, Before
The Storm in
Beaufort County: Avoiding Harm's
Wes, in September 1984.
Currently,
Belhaven's Town Manager and Civil
'
Defense Coordinator are
developing a
storm hazard mitigation plan for
Belhaven. Belhaven is now under the
authority of the County's plan and
'
the Town's
plan, when
completed, will
be consistent with the County

1
Oil
'
plan. The County plan is in fact, being used as a model for the Town.
The Belhaven plan then is expected to differ only minimally from the
'
County Plan.
CAMA Land Use Plan guidelines require that procedures for
'
-storm
pre mitigation, recovery, and immediate and long term reconstruc-
tion be addressed in each plan. The purpose is to assist town and
county officials in managing development in potentially
'
hazardous areas and to be able to expeditiously "snap back" after a
disaster. The first step taken to assess the hurricane vulnerability
'
of is to
a site analyze the types and locations of physical hazards
'
within the planning area. An estimate of the amount of people and
property that would be exposed to the hazard is also required. The
'
following section is a discussion of the storm hazard mitigation,
post -disaster reconstruction policies and evacuation plans included in
'
Before the Storm. All
policies, unless otherwise referenced, are
'
county -wide policies which the Town has chosen to include within its
own storm hazard plan.
HAZARDS MAP
'
The areas most
vulnerable to the devastating effects of a
hurri-
'
cane or other major
coastal storm are identified in Figure 12.
This
map is the product
of a computer model called SLOSH (Sea, Lake
and
'
Overland Surge from
Hurricanes). The SLOSH model was developed
by the
U.S. Army Corps of
Engineers to simulate the height of the storm
surge
from hurricanes of a
predicted severity within a particular area.
The

'
98
1
National Weather Service ranks hurricanes into Categories 1 through 5
based on their wind speeds. The SLOSH model analyzes each hurricane
'
category scenario and provides a real boundary where flooding is
expected to occur. For example, the Category 1 and 2 hurricanes, with
'
wind speeds up to 110 miles per hour, would produce a storm surge that
would flood a small stretch of land along the river (Figure 12). The
Category 3 storm, defined by winds up to 130 mph, would inundate points
'
further landward than the Category 1 and 2 storms. The Category 4 and
5 storms, the highest intensity storms possible, would push the water
to areas still further landward. In this scenario, water levels would
be highest in the areas of Category 4 and 5 storms. At the same time,
Category 4 and 5 flood zones have the least probability of inundation
'
because storms of such strength are not very common. Since the
Category 1 and 2 storms are more common, the discussion will be limited
'
to their impact Belhaven.
on
In Belhaven, the entire planning area is situated in the Category
1 and 2 flood zone (Figure 12). Storm waters would inundate all areas
'
within Town and the extraterritorial area. The exact monetary value of
the property at risk in the Belhaven planning area is difficult to
'
determine because of the amount of low densityl widely dispersed
'
development located outside the Town limits. Estimates have been made
on the value of development within the Belhaven town limits, but no
'
assessment is readily available which includes the structures in
the ruralp. underdeveloped portion of the planning area. For the
purposes of this plan, values of the property at risk will be limited
to the structures within the Town limits.

Total
I Iedian
Value
Total
Estimated
Value
Figure 13
INVENTORY OF STRUCnURES IN THE IIADM AREA
Conventional Dbl-wide Sng-wide
Homes bml Homes bml Homes Institution Commercial Ind'l Utility TOTAL
643 77 241 16 71 0 2 1,050
42 K 10 K 4 K 45 K 20 K 40 K 40 K
16.718 Mill. 770 K 964 K 720 K y 1420 K 0 K 80K 31.68 bull
Note: The total assessed value for tax purposes of the Town of Belhaven was $ 32,814,500 in January of 1986.
Source: Before the Storm in Beaufort Count•: Avoiding Harm's Way, 1982.
r
ko
W

' 100
Within the Town limits, development includes about 650 conven-
tional homes, over 300 mobile homes and approximately 90 commercial and
'
institutional establishments (Figure 13). The total estimated value of
these structures is about $ 32,000,000. This figure approximates the
total
assessed value of the Town for tax purposes.
'
The loss of homes and commercial establishments is very important
and costly, but more importantly, two of the Town's major utilities
structures are located within this hazard zone. The municipal
wastewater treatment facility merits special attention. In thck event
'
of a major hurricane, the inundation of the wastewater treatment
'
facility would be disastrous for the Town. Based on the likelihood of
inundation of other sites, it is highly unlikely that a safer site is
available within the planning area.
Although many
structures
would be at risk from
a storm, the
'
areas which
be
would
most
seriously affected would
be the AECs in
'
the planning area.
These
include the estuarine water, estuarine
shoreline, coastal
wetlands and
public trust waters.
Of these, the
'
estuarine shoreline
and coastal
wetlands AECs will bear
the greatest
risk of destruction because
they lie directly on
the land -water
'
interface and are
among the
most dynamic features of
the coastal
' landscape. Shoreline erosion is a day-to-day phenomenon that is
accelerated greatly with the energy of a major storm. Destruction that
' may take years to occur along a normal low -energy shoreline can occur
in a matter of several hours during a strong storm. The shoreline area
will be directly impacted by severe erosion and scouring, direct wave

101
' action, high winds and complete inundation by the storm surge accom-
panying the storm. Development adjacent to the shoreline would
' obviously be at a great risk.
'
EFFECTS OF
STORM COMPONENTS ON HAZARD ZONES
'
Hurricanes are extremely powerful, destructive meteorological
events which are often unpredictable. Destruction is typically the
'
result of the combined energy of high winds, flooding, erosion and wave
action. Of these, the two most damaging components of the hurricane
'
the high
are winds which define it, flooding from excessive rains,
'
and the storm surge. In addition to these forces, wave action and
erosion are two by-products of the wind and rain along the land/water
interface. The following section discusses the effect of each of
these storm components on the planning area and delineates the sites
'
which are most to their forces.
vulnerable
'
HIGH WINDS
High winds are the greatest risk factor associated with hurri-
canes. Hurricanes are, in fact, defined in severity by their wind
speeds. The entire planning area would be subject to the winds brought
'
on by a hurricane making landfall nearby. Again, the areas most
seriously impacted would be the shoreline areas and wetlands. Struc-
tures adjacent to these features would most likely receive the worst
damage. Open field ditches or other sites that experience significant
backwash would also be impacted by the flooding resulting from high
' winds. Building restrictions concerning wind stress should be applied
1

102
' in areas closest to the shore and other areas with the potential for
strong winds.
' FLOODING
Unlike high winds, flood waters may not impact all areas hit by a
'
storm. But, according to the SLOSH model map, all of Belhaven and its
'
planning area would be subject to flooding from a mild hurricane. This
includes a total of 271 commercial, residential, institutional and
'
community facilities structures, resulting in a net loss of $32,000,000
million dollars in the event of complete destruction.
Flooding cannot only damage buildings, but salt water flooding can
'
also cause serious damage to cropland. An estimated value of the
cropland in the planning area is unavailable, but short term damage
'
would be financially devastating. All of the agricultural land located
north of Town would be impacted by flood waters. Construction of a
'
dike to flood
retain waters has been considered, but it was decided
'
that little can be done to keep flood waters out. All of the Town and
most of the planning area are located less than five feet above sea
level. In an area as low as Belhaven, a dike would not be able to
significantly help in the event of a major hurricane.
'
WAVE ACTION
' Damage from wave action is very strongly correlated to wind
speed and direction. Most damage caused by waves will be in the
' immediate zone of the water along the shoreline and coastal wetlands.
Development adjacent to shoreline areas would be subject to battering
' by waves. Much of Belhaven's waterfront is bulkheaded and densely
IF

' 103
'
developed. This bulkheading and the nearby structures on the water-
front would be at high risk from wave action. In Town, the structures
'
at stake would include the Pungo District Hospital, three seafood
processing plants, the public boat ramp, several commercial marinas,
1
the
Belhaven Community Center and all residential units located on the
'
waterfront. Included in this risk area are several of the Town's most
valuable structures, including many of its industries. In effect
1
then, most of the Town's tax base would be subject to wave destruction.
Most other shoreline areas within the one -mile limit are marshes.
A limited
amount of development exists in these areas because of the
trequirement
for permits. Due to the fragile nature of wetland environ-
ments, all development in marsh areas is subject to the Division of
'
Coastal Management or U.S. Army Corps of Engineers permitting systems.
The Battalina/Tooley's Creek areas would be highly subject to wave
'
battering because their
of orientation to northeast winds. The lack of
tdevelopment
in these areas would preclude financial loss from occur-
ring in the event of hurricane -induced wave action.
'
EROSION
The product of severe winds, high water and wave action is
terosion.
The areas most likely to be impacted by erosion are the
'
shoreline areas within the planning jurisdiction. Riggs, Bellis,
O'Connor (1978) studied shoreline types and their vulnerability
'
to erosion. The research concluded that the low bank, marsh and
high bank forms of shoreline are most erodible on the Pamlico.
'
In the Belhaven area, low banks and marshes are the most common

104
'
shoreline types. At one time, all shoreline types in Belhaven were
marshes. At the time of its development, a large amount of land was
'
reclaimed from marshes through filling. The filling procedure and
subsequent bulkheading produced the low bank shoreline type widely
found along the waterfront today.
'
The developed portions of the planning area are considered to be
the low bank shoreline type, and most marshes are located west of the
'
Highway 99 bridge and on the peninsulas surrounding Battalina and
Tooley's Creeks. The low bank and marsh shoreline types experience
very high erosion rates. Marshes lose an estimate 3.1 feet per year
'
and low banks erode at a rate of 0.6 feet per annum (Riggs, et al.,
1978). It has been noted by several townspeople that Tooley's Point is
'
eroding at a rate of nearly 5 feet per year (Planning Board, 1986).
Shoreline erosion could lead to structural damage to buildings,
'
loss tons
of of topsoil through wave undercutting, and the destruction
tof
bulkheads and other structures located at the land/water interface.
The structures located directly on the shoreline are most likely to be
'
lost through erosion. The establishment of a required setback from the
water's edge will mitigate most erosion caused by hurricane winds and
'
waves.
' SUMMARY
In summary, all four of the major damaging forces of a hurricane
' would negatively impact the Belhaven planning area in the event of a
storm. The entire planning area will be subject to high winds and
' flooding, as it is situated in,,the Category 1 and 2 flood zone.
IL

105
Structures located along the shoreline are likely to receive the most
damage from the cumulative impacts of waves and subsequent erosion.
Damage from flood waters in the planning area would likely total
$32,000,000, assuming complete destruction. Most of the Town's
industries are located in the highest risk zone along the shoreline.
The financial loss brought on by hurricane destruction would be
devastating. Unavoidably, the wastewater treatment plant is located in
a high risk zone. Relocation of this facility should be a considera-
tion for Town officials. `

' 106
'
POST -DISASTER RECONSTRUCTION
INTRODUCTION
'
A post -disaster reconstruction plan allows -towns to deal with the
aftermath of a storm in an organized and efficient manner. The plan
provides for the mechanisms, procedures, and policies that will enable
'
the Town to learn from its storm experience and to rebuild in a
practical way.
'
A reconstruction plan typically has five purposes, according
to Before the Storm: Avoiding Harm's Way (McElyea, Brower and,Gods-
'
chalk, 1982). It usually 1) outlines procedures and requirements
'
before damages occur, 2) establishes procedures for putting storm
mitigation measures into effect after the disaster, 3) analyzes
'
information about the location and nature of hurricane damages,
4) assesses the community's vulnerability and 5) guides reconstruction
'
to minimize the
vulnerability.
'
In 1982, Beaufort County adopted The Beaufort County Disaster
Relief and Assistance Plan, a recovery and reconstruc-
tion plan. As a municipality in Beaufort County, Belhaven is covered
by this plan. The disaster relief plan, in concert with Before the
'
Storm in Beaufort County: Avoiding Harm's Way, provides Beaufort
'
County with the tools necessary to serve all its communities during the
recovery phase of a hurricane. Copies of these plans are available at
'
the Beaufort County Emergency Management office in Washington.
It is important that local officials clearly understand the
'
joint federal/state/local procedures for providing assistance to
rebuild after a storm so that local damage assessment and reconstruc-

107
'
tion efforts are carried out in an efficient manner that qualifies the
community for the different types of assistance that are available.
'
The requirements are generally delineated in the Disaster Relief Act of
'
1974 (P.L. 93-2881 which authorizes a wide range of financial and
direct assistance to local communities and individuals.
During reconstruction after a disaster, two phases of action
are usually undertaken: immediate post -disaster clean-up and clean-up
'
and repair over a longer period. Although these guidelines are
directed for the county level, the Town of Belhaven may take additional
steps to complement this work. The following section discusses
'
guidelines set forth for reconstruction in the County plan.
'
IMMEDIATE CLEAN-UP
The Disaster Relief and Assistance Plan includes a program
'
for immediate
clean-up and debris removal from roads, beaches and
'
other areas where public health and safety may be jeopardized.
The responsibility for completing these duties will be a combined
'
effort by several agencies from the public and private sectors.
The Department of Transportation will be responsible for clearing
'
debris from roads and the Forest Service
will remove fallen trees from
'
the area, if necessary. In addition, the County Emergency Management
office will provide names of volunteers to call upon for assistance in
'
the immediate clean-up efforts.
While clean-up efforts are taking place, a Damage Assessment
'
Team will be sent out to evaluate the extent of damage in the area.
Damage assessment is defined as a rapid means of determining a realis-

108
tic estimate of the amount of damage caused by a natural or man-made
disaster. For a storm disaster, it is expressed in terms of: 1) the
number of structures damaged, 2) magnitude of damage by type of
structure, 3) estimated total dollar loss, and 4) estimated total
12
dollar loss covered by insurance`.
After a major storm event, members of the Damage Assessment
Team should conduct two types of surveys: one which roughly estimates
the extent
and
type
of damage, and a more
detailed
second phase
assessment
after
the
initial damage reports
are filed.
The Mitial
■ . damage assessment should include an estimate of the extent of damage
' incurred by each structure and identify the cause of damage such as
wind, flooding or wave action. Rapid and general initial damage
' assessment reports are to be submitted by radio within one hour.
Within six hours, private property summaries and more detailed reports
' should be nearly complete. The format for damage assessments will be
conducted in accordance with Annex F of the Disaster Relief and
' Assistance Program. Under certain circumstancesp interim deve
lop-
ment ment moratoria can be used to give a local government the time to
assess damages, make sound decisions, and to learn from storm experi-
ences. Beaufort County can impose a development moratorium if it gets
disaster declaration from the appropriate federal authorities. This
disaster declaration must stipulate the type and extent of reconstruc-
tion that will be paid for by the Federal Insurance Agency. The length
of the moratorium will be decided at the time of the disaster, as it
will depend on the extent of damage to the properties involved.

' 109
' RECOVERY TASK FORCE
Damage assessment operations are oriented to take place during the
' emergency period. After the emergency operations to restore public
' health and safety and the initial damage assessments are completed, the
guidelines suggest that a Recovery Task Force is formed. This Task
' Force will guide restoration and reconstruction activities during a
post -emergency phase. The County has formed a group with members from
' all areas of the County to serve as a task force for recovery.
' The responsibilities of this Task Force are to review the-tpature
of damages in the community, establish an overall restoration schedule,
'
identify and evaluate alternative approaches for repair and
reconstruc-
tion, and make recommendations for community recovery. The
Task Force
iwill
work with State and Federal representatives on the
Interagency
Regional Hazard Mitigation Team and also the Section
406 Hazard
Mitigation Survey and Planning Teams. Members of the Recovery
Task
'
t
Force will include:
Beaufort County Commissioners
'
County Engineer and Building Inspector
County Manager
'
City Managers Engineers from
and each municipality
County Emergency Management Coordinator
County Health Department
The Mayor of Belhaven will be called upon to serve on this
Task Force.
The Town Engineer will also serve. Although this Task
Force will
'
review damages, the authority to approve or deny
will remain
permits
the responsibility of the appropriate authorities.

ketel
'
SCHEDULE
FOR REPAIR AND RECONSTRUCTION OVER LONGER PERIOD
The
procedures listed above deal directly with policies or
'
clean-up
immediately after a storm or disaster. In conjunction
with the
policies stated above on storm hazard mitigation, considera-
tion
should be given to long-term reconstruction. All reconstruction
'
efforts must be in compliance with the Town's Flood Prevention Plan and
Floodway
Ordinance and other construction standards currently in place.
In
the aftermath of a disaster, reconstruction efforts will be
rampant.
A plan for the long-term reconstruction is essential:- The
'
County has
developed
a priority system which the Town will also follow,
'
designed
to stage and permit repairs. Staging and permitting repairs
and construction
in the Town are to be done as follows:
First Priority: Replacement of essential services
such as power, water, telephone and
'
streets and bridges.
Second Priority: Minor repairs
Third Priority: Major repairs
'
Fourth Priority: New Development
In an effort to streamline the permitting process for the large number
'
of applications for building permits, a policy has been established by
'
the County which issues permits for work in Belhaven, to repair and
rebuild essential service facilities first. Second priority is to
'
repair other public facilities as necessary for shelter. A triage
(worst damage) approach will be instituted for staging the reconstruct-
'
ion effort. Properties with little damage would be permitted immedi-

111
1
'
ately if they were in compliance with permit regulations before the
storm. The schedule for permitting other properties is as follows:
'
1. Moderate damage, meeting permit regulations
2. Moderate damage, requiring permit decisions
3. Extensive damage, requiring permits
'
This system was established to avoid interference with the reconstruc-
tion of public utilities and facilities. The top priority in post -
disaster reconstruction is the replacement of services.
The development standards for reconstruction will be in Accord-
the Storm
ance with Hazard Mitigation policies set forth by the Town.
As a minimum, all construction must meet the requirements set forth by
the Town's ordinances on construction, as well as the State Building
'
Code. The County Commissioners will be the legislative body to enforce
these policies.
Although to
consideration the possible relocation of public
'
facilities to safer locations was not undertaken by the County, the
Town has addressed this issue. Local officials realize that the
'
Belhaven wastewater treatment plant is located in the hazard area. At
the same time however, there is no available land within the area to
'
accommodate its relocation. Thus, local officials have elected to
'
investigate the possibility of floodproofing rather than relocating the
structure.
'
EVACUATION ROUTES AND TIMES
Evacuation is often necessary in pre -hurricane conditions when
'
high winds and water are anticipated to endanger the health and

112
IF
I
. I
safety of local residents. According to Before the Storm in Beaufort
County, Belhaven is located in Evacuation Zone I, which extends from a
point near Sidney Crossroads to the Hyde County line. The evacuation
shelters for Evacuation Zone I are the Belhaven High and Belhaven
Elementary Schools. In the threat of rising water however, these
shelters will not be utilized. During this threat, evacuees will be
directed to Pantego High School and the overflow will be sent to
Beaufort County Elementary School. A full description of the capacity
and adequacey of these shelters is in the Beaufort County Disaster
Relief and Evacuation Plan.
Highways 99 and 264 are the principal evacuation routes for the
Belhaven planning area. There are several inundation points along
these routes. They include:
Highway 264 By -Pass
Business 264
* Stretch of 264 .25 miles on
either side of Lower Dowry
Creek culvert near intersec-
tion of SR 1709.
* Portion 1 mile east of Hwy.
264 and Hwy. 99 intersection
in Belhaven, to that intersec-
tion.
* Portion 1.5 miles on either
side of Cuckolds Creek Bridge
toward.Pantego.
* Portion inside Belhaven.
' Highway 99 * From the intersection with
264 in Belhaven to Sidney
Crossroads, over the Pantego Creek
' Bridge to the Pungo Creek Bridge.
Source: Before the Storm in Beaufort County, pp. 40-41.

113
These sites represent blockage points along the evacuation
routes where roadway flooding could exist. The underlined bridges
above are priority surge inundation points identified in the County
Storm Hazard Mitigation Plan.
Techniques for determining evacuation times are outlined on
pages 44 through 47 in Before the Storm in Beaufort County. The
total evacuation time is the sum of the following components:
cut-off time, mobilization time, travel time, and queing delay time.
The ideal capacity of Highway 264 is 455 vehicles per hour. Highway 99
can accommodate 298 vehicles per hour. Following the model given, the
total evacuation time to Washington for each highway is:
TOTAL EVACUATION TIME
Highway 264 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time 1.0 hrs.
Queing delay time 2.69 hrs.
TOTAL 10.19 hrs.
Highway 99 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time .97 hrs.
Queing delay time 2.95 hrs.
TOTAL 10.47 hrs.
These evacuation times are calculated for a population of 3,000
in the Belhaven planning area. The total evacuation times for these
routes dangerously approach the 12 hours which the National Weather
Service can predict for effectively mobilizing an evacuation effort.
The storm hazard mitigation plan recommends a sensitivity analysis to

' 114
'
test the validity of the evacuation' times. This can be done by
adjusting the mobilization time, or by calculating the queing delay
'
time. By doing this, assumptions which are closer to reality may be
introduced in estimating evacuation time for area residents.
This analysis provides the Town with the opportunity to consider
'
adopting policies which would improve the capacity of the evacuation
routes. The Town will consider their information in developing its
'
own storm hazard mitigation plan. Although many factors which affect
local evacuation are beyond the control of the local unit. of govern-
-
ment, awareness of the potential problem is a first step in improving
the evacuation times for Belhaven area residents.
' SUMMARY
A large proportion of the Belhaven planning area is threat-
ened by the hazards associated with storms. In the event of a major
disaster, the planning area would be subject to the policies and
' guidelines set forth in the Beaufort County Mitigation Plan and
' accepted by the Town. In -town reconstruction standards will be
enforced according to the Flood Prevention Program, which attempts to
' mitigate disaster in the future. The calculated evacuation times for
Belhaven dangerously approach the safe limit. It is suggested that
' efforts be taken to improve the capacity of the evacuation routes for
I
the area.

115
11
' INTERGOVERNMENTAL COORDINATION
The Town of Belhaven is responsible for reporting all of its
' activities concerning storm hazard mitigation and hurricane prepared-
ness with the following agencies:
' N.C. Division of Coastal Management
State Office: Division of Coastal Management
' Department of Natural Resources and Community
Development
P.O. Box 27687
' Raleigh, NC 27611-7687
[phone]
Field Office: Division of Coastal Management .4.-
Department of Natural Resources and Community
Development
P.O. Box 1507
' Washington, NC 27889
[phone]
N.C. Division of Emergency Management
' State Office: Division of Emergency Management
Department of Crime Control and.Public Safety
116 West Jones Street
' Raleigh, NC 27611
[phone]
' Regional Office: Area Emergency Management Coordinator
N.C. Division of Emergency Coordinator
607 Bank Street
Washington, NC 27889
' [phone]
Federal Emergency Management Agency
National Office: Federal Emergency Management Agency
500 C Street, S. W.
Washington, D.C. 20472
' Public Information [phone]
Publications (202) 2B7-0689
' Federal Emergency Management Agency
Regional Office: Federal Emergency Management Agency
' Region IV
1375 Peachtree Street, N.E.
Atlanta, GA 30309
Public Information [phone]
' Disaster Assistance Program [phone]
Flood Insurance Program [phone]

WEI
STORM HAZARD MITIGATION AND POST -DISASTER RECONSTRUCTION
POLICIES
Policy Choices
1. Support Beaufort County Storm Hazard Mitigation and Post
Disaster Reconstruction Policies.
2. Town will encourage redevelopment of destroyed structures
provided they confrom to applicable codes.
3. If destroyed, the Town will if possible, elevate public
facilities structures to a safe level in accordance with thLk Flood
Prevention Ordinance.
4. Consider developing Recovery Task force for Town.
5. Increase public awareness and preparedness.
Implementation Schedule
I. Stay abreast of changes in Beaufort County Storm Hazard
Mitigation plan.
2. Follow guidelines of the building codes, zoning and flood
prevention ordinances for reconstruction after the storm.
3. Due to the lack of available land, the Town public
facilities will be rebuilt at same pre -storm location, but elevated to
a level according to the specifications of the flood prevention
ordinance. Consideration will be given to flood proofing facilities
(specifically, the waste treatment plant) for which elevation is not
feasible.

'
117
'
4. Recovery Task Force members will include:
Mayor of Belhaven
'
Town Manager
Planning Board Members
Rescue and Fire Squad Volunteers
'
Medical Board
Building Inspector
'
S. Educate Town employees and public about evacuation
procedures about their responsibilities in'storm situation. I.-

11
118
PUBLIC PARTICIPATION
Belhaven realizes the importance of soliciting public input
'
into the planning process. During the development period of this land
use plan update, several techniques were employed to encourage involve-
ment of Belhaven area residents in the land use plan's policies.
'
Planning officials agree that there was considerable input from local
residents throughout the process and that such input is well reflected
'
in the final plan.
At the beginning of the planning period, a citizen pAr--tici-
pation plan was developed. At the first meeting, the Planning Board
'
decided to schedule regular monthly meetings every third Wednesday from
November until the plan was completed. It was decided that all
'
Planning Board meetings concerning the CAMA Land Use Plan update should
be made public. Citizen input was to be strongly encouraged.
'
The Board decided
that initially, emphasis would be placed
on public education about the land use planning process. It was
felt that once the public understood the importance of the plan,
'
the public would feel a strong desire to be involved in its formation.
Efforts were made to inform the public about the existence of the plan
and the importance their
of contribution on policy recommendations.
'
This was done in a variety of ways. First, news articles appeared
in the local newspapers which discussed the plan and its purpose.
P P P
Press releases were sent to two newspapers: the Washington Daily News,
based in Washington; and the Beaufort -Hyde News, based in Belhaven.
'
The purpose of the articles was to explain the role of the CAMA plan in

119
the development process and the explanation of the issues addressed in
it. Other methods of public education involved direct communication
with Belhaven residents by the Planning Board members.
r,
In addition to the public education efforts, press releases
were sent to the local newspapers prior to each meeting. Included in
the press release was a description of the land use plan and its
purpose as well as the agenda items. Upon completion of meeting,
another news article was sent out which described the meeting's events.
The combination of these newspaper articles intended to promdte the
understanding of the land use planning process as well as to encourage
the public to provide their opinion on various issues. Examples of
the newspaper articles are included as Appendix C. Additional articles
appeared monthly the day following the Planning Board meeting.
Another measure was taken to attract citizen input. Letters were
mailed to various civic and industry leaders in the community (Appendix
D). Special attention was given to soliciting names from a wide
cross-section of individuals. Economic, social, ethnic and cultural
view points were considered in developing the list. The intent of the
letter was to educate the individuals about the plan and to invite
them to attend the public meetings. This proved to be effective, as
citizen attendance increased markedly at subsequent meetings.
Members of the Belhaven Town Board were strongly encouraged
to attend the meetings to keep the Board abreast of progress on
the plan. At least one Town Board member was present at every meeting
and workshop. The Town Manager also gave Land Use Plan Update progress
reports at Belhaven Town Board meetings.

120
'
Draft sections of the plan were also made
available for public
review. A current draft of the plan was kept in the
Town Hall and the
'
was encouraged to make
it. The
public written comments on
purpose was
'
to have as much citizen input as possible. It is
the belief of the
Belhaven Planning Board and Town Board that all
citizens should be
provided adequate opportunity to participate in
the governmental and
planning decisions which affect them. In the
future, citizen input
'
will continue to be solicited, primarily through
the Planning Board.
All upcoming meetings will be advertised and adequately
publicized to
help keep citizens informed about the land use
changes occurring in
'
their community.

121
1
1
1
I I
LAND CLASSIFICATION SYSTEM
The land classification system is a tool to identify the antici-
pated land uses within a planning area. The land classification map,
the culmination of the land use planning effort, designates specific
areas for certain types of development activities. It provides a
uniform method of analyzing how the planned use of land interacts with
environmentally sensitive areas during the development process of the
Town. The land classification system promotes an understanding of the,
relationships between various land use categories and the need to
develop policies to accommodate these relationships. The focus is to
evaluate the intensity of land utilization and the level of services
required to support that intensity. According to the CAMA guidelines:
"The land classification system provides a framework to be
used by local governments to identify the future use of all
lands. The designation of land classes allows the local govern-
ment to illustrate their policy statements as to where and
to what density they want growth to occur, and where they want to
conserve natural and cultural resources by guiding growth."
(7B.0204) (b)
The CAMA guidelines include five general land use classifi-
cations for the land classification map: Developed, Transition,
Community, Rural and Conservation. Their definitions are ranked
according to the intended intensity of land uses within them. Areas
classified as "Developed" require the traditional level of services
associated with urban areas. "Transition" areas should include areas
developing or anticipating development which will eventually require

122
urban services. Lower density areas which will not require services
should be classified as "Community". Areas classified as "Rural"
' should be reserved for low intensity uses such as agriculture, fores-
try, mineral extraction and widely dispersed housing. Public water
and sewer will not be provided in rural areas. The purpose of the
' "Conservation" class is "to provide for the effective long-term
management and protection of significant, limited or irreplaceable
' areas". Public or private services, like water and sewer, should not
be provided in this land classification. `,.
' The five land classifications and land classification map are
' intended to serve as a visual definition of the policies stated in this
plan (Figure 14). The five land use classifications, as they are
I
applied in the Belhaven planning area, are discussed below.
DEVELOPED
'
The Developed' :and
classification is intended for continued
'
intensive development; and redevelopment of urban areas. It includes
areas already developed as urban in character and include mixed land
'
uses such as residential, commercial, industrial, institutional and
other uses at high to moderate densities. Town services including
'
water, sewer, public roads and police and fire protection are provided
'
to some extent within the Developed class.
In the planning area, much of the land located within the Town
'
limits is classified as Developed. Exceptions include the undeveloped
waterfront industrial section and several pockets of undeveloped areas
'
in the center of Town. Approximately 95 percent of the structures

Figure 14
LAND CLASSIFICATION MAP
The preparation of this map was financed in part
through a grant provided by the North Carolina
Coastal Management Program, through funds
provided by the Coastal Zone Management Act of
' 19729 as amended, which is administered by the
office of Ocean and Coastal Resource Management,.
National Oceanic and Atmospheric Administration.
' 1 CRC disagrees with Transition
classification, see pg. 125.
123
APPROXtMATE SCALE
000� 01 10006 2000P 30001
LEGEND
,4, Submerged Vessel
21Wetlands
® Surface Waters
® Developed
®Transition
Conservation
Rural

124
'
within this boundary are served by sewer service. Ninety-three percent
of the residents are provided water service.
'
TRANSITION
The Transition class is categorized by the lands providing
for intensive urban development within the ensuing ten years. These
'
areas will be scheduled for provision of water and sewer in the
future. They will also serve as the overflow sites for development
when additional lands are needed to accommodate growth. They will
eventually become a part of.the urban area.
'
The Transition classification includes the area located in the
'
northern section of Town, which is currently agricultural land and
light residential development. Additional concentrations exist on the
'
peninsula between Battalina and Tooley's Creeks and along the southern
portion of Highway 264 coming into Town.* Trends over the past five
'
years have shown most of the Town's residential growth occurring in the
'
northern existing residential areas and along the waterfront. General-
ly, these areas are well suited for future development if water and
'
sewer lines are extended. The land use analysis showed that the soils
within the transition areas are generally unsuitable for septic
tanks. Most of this area, however, is in the lowest risk zone
' for the Flood Prevention Ordinance.
The relationship between the Developed and Transition classes is
' important in a predominantly rural area like eastern Beaufort County.
Local land use planning efforts and public investments will be target-
' ted to the land within these classes. Available vacant land within the
' developed class should be considered for development prior to using
public dollars within to extend services to the transition class.

'
125
,3
*It should be noted that the Coastal Resources Commission (CRC)
'
disagrees the Transition the between
with classification of peninsula
Tooley's and Hattalina creeks. Although the Town's 1976 and 1980 Land
Use Plans were certified by the CRC with this area in the Transition
'
classification, the CRC now in 1987 believes the area should appropri-
ately be classified Conservation. Town officials however, do not feel
'
the long-standing agree-
community can reasonably abrogate a pre-CAMA
ment between the Town and property -owners in the area by changing the
area's land classification. Thus, although the area appears as
'
Transition on the Classification Map, the CRC has stated that when
development requests for the area are reviewed, the Tooley's Creek area
'
will be considered as being in the Conservation land classification
Y
'
for permit purposes.
COMMUNITY
'
The "Community" classification is usually characterized by
a small cluster of mixed land uses in a rural area which do not require
municipal services. It usually serves to meet the housing, light
'
shopping, employment and public services needs of a rural area. The
Community classification typifies crossroads areas along primary and
'
secondary roads. In the Belhaven planning area, there are no areas
classified as "community".
'
RURAL
'
The "Rural" classification is designed for undeveloped areas which
may be used for low intensity, non -urban uses. Urban services are
typically not needed in the Rural class due to the dispersion of
development within these areas. Generally, these are lands identified
'
as appropriate locations for agricultural production, mineral extrac-
t

126
tion, or forestry activities. Areas with significant limitations to
make development hazardous or economically unfeasible should also be
placed in the Rural classification.
Nearly all of the land outside the town limits falls into this
classification. Presently, this land is used for agriculture and
forestry activities, but is not restricted to these uses. Spillover
development from the transition and developed classes will be welcomed.
The Town has no special restrictions on development in this area.
CONSERVATION
The "Conservation" class provides for the effective long term
management of significant, limited or irreplaceable resources. This
includes, as a minimum, all of the statutorily defined AECs. In
r
Belhaven, this involves the estuarine waters, the estuarine shorelines,
public trust waters, and coastal wetlands.
The Conservation class does not imply "non-use". It is intended
to provide for careful and cautious management of the uses allowed in
it. Preservation, on the other hand, implies total restriction of all
uses in an effort to keep the natural environment intact. Through
conscientious management, the Conservation class requires all uses to
be as unoffensive as possible. The intention of the Conservation class
is to strike a balance between careful long-term management of sensi-
tive natural and cultural resources and the freedom of landowners to
utilize their property to its best use.
The Town of Belhaven allows these specific uses in the Conserva-
tion class:

'
127
'
1. Water -oriented uses such as docks, piers, mooring
pilings, bridges and bridge approaches if shown not to cause a detri-
ment to the AEC or Conservation lands.
2. Necessary utility service lines, such as water, sewer,
'
demonstrated that the lines
electrical, natural gas, etc., when will
'
not terminate on the land designated as Conservation and the environ-
mental integrity of the Conservation area. will not be violated.
'
3. Bulkheading, when construction of bulkhead can be
conducted without significantly altering the ecological system,
'
in federal, and local regula-
and compliance with existing state
tions.
4. Revetments, culverts, groins and navigational aids.,'
'
5. Marinas, provided that they are in compliance with
size and water quality requirements set by state.
'
In conjunction with the Policy Statements section of this plan,
each application for a "developed" use in the Conservation classifica-
tion shall be reviewed on a case -by -case basis.

' 128
RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION
As required by the Coastal Resources Commission, this plan must
'
discuss
the manner in which the policies developed in the Policy
'
Statements section will be applied to each of the land classes. In
addition, an identification must be made of the types of land uses
which are appropriate in each class.
DEVELOPED AND TRANSITION CLASSES
'
Recent trends
have shown that most of the growth in the Belhaven
'
planning area is occurring on the fringes of the Belhaven Town limits.
This is the area where basic services such as water, sewer and commun-
ity support services are availabl,; or might be feasible within the
planning period. These classes are designed to accommodate all inten-
sive land uses, including
residential, commercial, industrial, trans-
'
portation and community facilities. Hazardous or offensive uses, such
as land application systems, electrical generating facilities, air-
ports, and noxious industries will not be permitted in the classes.
RURAL CLASS
'
The rural class is the broadest of the land classes and is
'
designated to provide for low intensity uses including agriculture,
forest management, and mineral extraction. Residences may be located
'
within the rural class where urban services are not required and where
natural resources will not be permanently impaired. Offensive land
uses, such as land application systems and airports will be limited to
this class.

129
CONSERVATION CLASS
The conservation class is designed to provide for the effective,
long-term management of significant limited or irreplaceable areas
including Areas of Environmental Concern. Development in the estuarine .
system should be limited to uses such as piers, bulkheads, marinas, and
other water -dependent uses (See description of Conservation classifica-
tion above). Policy statements under Resource Protection and Resource
Production and Management address Belhaven's intentions for development
in fragile areas. The specifi-
cally, protection of natural resources and specifi-
cally, water quality, is reflected in each policy statement.

' 130
'
INTERGOVERNMENTAL COORDINATION
The land use plan is a tool for coordinating numerous policies,
'
standards, regulations The
and other governmental activities. plan
'
provides the framework for budgeting, planning, and the provision and
expansion of community facilities.such as water, sewer, school and road
'
systems. It is the principal policy guide for governmental decisions
and activities which affect land use in the Belhaven area. The
'
implementation in the land
of policies use plan requires coordination
'
between the local government and the State and Federal governments.
Enforcement of the policies and q p goals requires a consistency with the
higher levels of government. The formation of a policy without
means of enforcement defeats the intention of the land use plan
'
update.
'
Belhaven has worked to ensure compatibility between the Beaufort
County and Belhaven Land Use Plans. There appeared to be no inconsis-
tencies between the policies in each plan. A good working relationship
-1
exists between the Town of Belhaven and Beaufort County. During its
'
development period, the plan was continuously evaluated for its
consistencies between State and Federal regulation.
The Town
of Belhaven intends to foster intergovernmental coordi-
nation by working with State and Federal agencies to implement policies
to improve water quality, as well as carry out goals for the agricul-
ture and commercial fishing industries. In addition, Belhaven will
work with the N.C. Department of Cultural Resources in protecting and
'
enhancing its heritage. Coordination
between the Division of Coastal
'
Management and U.S. Army Corps of Engineers will be maintained in the
IF

131
permitting process for development in areas classified as wetlands.
All additional efforts will be made to promote cooperation between
the State, Federal, County and Belhaven governments.
1`

a
' 132 It
APPENDIX A
' ARTICLE V t' r
' AN ORDINANCE REGULATING THE EXTENSION OF WATER AND SANITARY SEWER SERVICE WITHIN
AND OUTSIDE THE CORPORATE LIMITS OF THE TOWN OF BELHAVEN.
' Be it Ordained by the Board of Aldermen of the Town of Belhaven as follows:
Section 1. APPLICATION FOR AND APPROVAL OF EXTENSIONS REQUIRED.
1
A. From and after the effective date of this Ordinance, any property owner, or
owners, desiring water or sanitary sewer service shall apply in writing to the Board
of Aldermen requesting the extension of water or sanitary sewer service or both. No
request for the extension of services shall be considered unless submitted in writing
in accordance with the requirements of this Ordinance.
B. The Town may require the applicant to submit as part of the written appli-
cation such information, plans, or other data as may be required to adequately
determine if the requirements of this Ordinance are to be met.
C. When application is made for water and sewer extensions to serve an area
or development project that is planned as part of a larger project or subdivision,
all of which is not to be developed at the time application is made, the owner or
owners shall submit plans in sufficient detail in order to determine the size and .type
facilities which will be necessary to serve the entire development or subdivision
when completed.
D. No extension to the water or sanitary sewer system of the Town of Belhaven
shall be made and no application shall be approved except in accordance with the
requirements of this Ordinance.
Section 2, GENERAL EXTENSION REQUIREMENTS.
All extensions of either water or sanitary sewer service shall be governed by
the following:
(a) The minimum distance for any extension of a water main or sanitary sewer
main shall be determined by the Board of Aldermen. In general, the minimum distance
for extensions shall be one platted block, or in the case of water mains from main
line valve to valve and in the case of sanitary sewer extension from manhole to
manhole.
(b) The size of water mains and sanitary sewer mains to be installed and the
other required system facilities shall be determined by the Board of Aldermen in
accordance with the recognized standards and accepted engineering practices and
design.
Section 3. FINANCING EXTENSIONS WITHIN CORPORATE LIMITS.
A. Extensions to Approved Subdivisions or Developed Property.
(1) When application is received requesting the extension of water or sanitary
sewer service or both to serve property within the corporate limits which is develope'
or has been previously approved as a subdivision, or where streets have previously be,
7

133
1
I.
dedicated and accepted by the Town, and where such area is not part of a new sub-
division which has not been approved by the Town, the Town Clerk or other person
designated by the Board of Aldermen shall estimate the cost of the project and
present the application for such extension, the estimated cost and other required
information to the Board of Aldermen for their consideration. If the application is
approved by the Board of Aldermen and subject to the availability of funds, the Town
will install or have installed by contract under its supervision the extensions
which have been approved, and such extension shall be financed in accordance with
this subsection.
(2) When an approved water or sanitary sewer extension project has been com-
pleted and the total cost thereof has been determined, seventy-five percent of the
total cost of such water or sanitary sewer extension or both shall be assessed
against the property owners whose property abuts upon such extension at an equal
rate per front foot in accordance with and under the authority granted to the Town
by G.S. 160-241 through G.S. 160-248. The remaining twenty-five percent of the total
cost of -such extensions shall be borne by the Town from funds appropriated for this
purpose.
(3) Any property owner or owners shall have the opportunity to pay his or
their proportionate share of the cost of such extensions after the assessment roll
is confirmed rather than paying his or their share in equal annual installments with
interest as required by the statute.
B. Extensions to Proposed Development or Subdivisions.
(1) When an application is received requesting the extension of water or sani-
tary sewer service or both to proposed development or subdivisions within the cor-
porate limits which have not been approved by the Board of Aldermen, the Town Clerk
or other person designated by the Board of Aldermen, shall estimate the cost of the
project and present the application for such extension, the estimated cost and other
required information to the Board of Aldermen for their consideration. If the
application is approved, and subject to the availability of funds, the Town will
install or have installed by contract under its supervision such extensions which
shall be financed in accordance with this subsection.
(2) Prior to the beginning of any construction, the property owner or owners
shall advance to the Town funds in an amount equal to seventy-five percent of the
total estimated cost of the proposed extensions. Upon receipt of such funds, a
written contract shall be entered into by and between the Town of Belhaven and the
Property owner or owners, under which the Town will use such funds upon the following
terms and conditions:
(a) The funds shall be deposited in a special account of the Town for which a
separate accounting will be made.
(b) At the time construction of the extension is completed and the total cost
thereof is determined, if the amount deposited exceeds seventy-five percent of the
total cost, that portion in excess of the amount deposited will be refunded to the
owner or owners without interest. If the amount deposited is less than seventy-five
percent of the total cost, the owner or owners shall pay such additional amount to
the Town and this condition shall be apart of the written contract.
&F
I
u�

134
(c) In lieu of depositing funds, the owner or owners may provide a surety bond
or some other form of security that will insure payment to the Town of the owner or
owners' proportionate share of the cost of extension in accordance with this Ordinance.
(d) No refund or reimbursement of funds shall be made to the owner or owners
who pay seventy-five percent of the total cost of extension under the requirements of
this subsection except as provided for in paragraph (b) above.
C. Facilities Excluded in Determining Owners' Share of Cost.
(1) When the Town of Belhaven determines that it is advisable to install
larger size facilities than are necessary to serve the property requesting such
extension, the difference in the cost of1the larger size facilities over and above
the cost of the facilities required to serve the property requesting such extension
shall be paid for by the Town of Belhaven and excluded from the total cost to be
shared by the property owner and the Town as provided for herein.
(2) Fire hydrants, pumping stations, outfall lines, and other facilities in-
stalled for general public use shall be paid for by the Town of Belhaven and ex-
cluded from the total cost to be shared by the property owner and the Town as pro-
vided for herein.
D. Exceptions Authorized. .k.,
(1) Nothing in this Ordinance shall prevent the Board of Aldermen from extend-
ing water or sanitary sewer mains or both within the corporate limits on their own
motion without receipt of an application from property owners, and to assess the cost
of such extensions in accordance with subsection A of Section 3 of this Ordinance when,
in the opinion of the Board of Aldermen, the general public interest demands such
extension of service.
(2) Nothing in this Ordinance shall require payments or assessments for the
extension of water or sanitary sewer mains or both, which are to be extended by
William C. Olsen and Associates Engineers and Architects, Raleigh, North Carelina,
under contract number 414 for water and 401 for sewer, and included under EDA number
03-1-00051P and HUD number PFL NC 89.
Section 4. FINANCING EXTENSIONS OUTSIDE CORPORATE LIMITS.
A. All applications for water and sewer extensions outside the corporate limits
shall be made in the same manner and under the same requirements as provided for in
Sections 1 and 2 of this Ordinance.
B. If an application is approved by the Board of Aldermen, the owner or owners
shall be required to pay for the entire cost of all extensions. Provided, the Town may
participate to the extent agreed upon by the Board of Aldermen in the cost of larger
size mains which are in excess of the size mains required to serve the project. No
reimbursement shall be made upon annexation and all water and sewer lines connected
to the Town system and located outside the corporate limits shall become the property
of the Town at the time such facilities are connected.
C. Prior to the beginning of any construction, the owner or owners shall deposit
with the Town funds in an amount equal to the total estimated cost of such extensions.
i

135
Upon receipt of such funds, a written contract shall be entered into by and between
the Town of Belhaven and the property owner or owners in accordance with the require-
ments of this Ordinance. Such contract shall provide that in the event the amount of
the total funds deposited exceeds the amount of the total extension cost when com-
pleted that portion in excess of the total extension cost will be refunded to the
owner or owners without interest. Such contract shall also provide that if the amount
deposited is less than the total cost, the owner or owners shall pay such additional
amount to the Town of Belhaven.
D. In lieu of depositing funds the owner or owners may execute a surety bond
guaranteeing payment for such extension or the owner or owners may have such extension
work performed under private contract with the approval of'the Board of Aldermen,
provided the work is to be performed in accordance with all construction requirements
of the Town of Belhaven and subject to inspection and approval of the Town.
E. In the event the property for which application has been made for water or
sewer service is contiguous to the corporate limits and the owner or owners of such
property agree to annexation and in the event such property is annexed to the Town of
Belhaven, extensions may be made to such property and the cost thereof financed in
accordance with the requirements of Section 3A or 3B of this Ordinance, whichever is
applicable.
Section 5. SPECIFICATIONS, OWNERSHIP.
Any water mains or sanitary sewer mains extended under the provisions of this
Ordinance shall be installed and constructed in accordance with the approved plans,
specifications and other requirements of the Town of Belhaven. All facilities in-
stalled under the provisions of this Ordinance, whether within or outside the corporate
limits,shall become the sole property of= -the Town of Belhaven and under its juris-
diction and control for any and all purposes whatsoever at the time such facilities are
connected to the Town system. When required, the property owner or owners shall grant
to the Town such utility eastments as the Town may require. In addition, a deed to
the Town for water and/or sewer facilities installed which are located outside the
corporate limits, the cost of which is borne by individual property owners, shall be
executed prior to the time any extensions provided for in this Ordinance are connected
to the Town systems.
Section 6. ADDITIONAL SUBDIVISION IMPROVEMENT REQUIREMENT.
The Board of Aldermen may in its discretion as a condition under which water
or sewer service or both will be extended, require the owner or owners of a proposed
subdivision to enter into an agreement to improve the proposed streets therein at their
own expense and in accordance with the ordinances then in force governing the
acceptance of public streets for the Town of Belhaven. If required, this section shall
apply to subdivisions which are located either within or outside the corporate limits
of the Town of Belhaven.
Section 7. CONFLICTING ORDINANCES REPEALED.
All ordinances or parts of ordinances in conflict with the provisions of this
Ordinance are hereby repealed.
Section 8. EFFECTIVE DATE
This Ordinance shall be in full force and effect from and after the 6th day
of March, 1968.

APPENDIX B
','
FEDERAL DEVELOPMENT REGULATIONS
;i
'
Agency
Licenses and Permits
Army Corps of Engineers
(DEPARTMENT OF DEFENSE)
- Permits required under
Sections 9 and 10 of the
Rivers and Harbors Act of
1899; permits to construct
'
in navigable waters.
- Permits required under
Section 103 of the Marine
'
Protection, Research and
Sanctuaries Act of 1972.
'
- Permits required under
Section 404 of the Federal
Water Pollution Control L-
'
Act; permits to undertake
dredging and/or filling
activities.
'
Coast Guard
- Permits for bridges, cause -
(DEPARTMENT OF TRANSPORTATION)
ways and pipelines over
navigable waters required
'
under the General Bridge
Act of 1946 and the Rivers
and Harbors Act of 1899.
'
- Deep water port permits.
Geological Survey
- Permits required for off -
Bureau of Land Management
shore drilling.
(DEPARTMENT OF INTERIOR)
- Approval of OCS pipeline
'
corridor rights -of -ways.
Nuclear Regulatory Commission
- Licenses for siting, con -
(DEPARTMENT OF ENERGY)
struction and operation
of nuclear power plants
required.under the Atomic
'
Energy Act of 1954 and
.�
Title II of the Energy
Reorganization Act of
1974.
1
_5
136

137
:9
Federal Energy Regulation
Commission (DEPPARTMENT OF
ENERGY)
Permits for construction,
operation and maintenance
of interstate pipelines
facilities required under
the Natural Gas Act of
1938.
Orders of interconnection
of electric transmission
facilities under Section
202 (b) of the Federal
Power Act.
Permission required for 14-
abandonment of natural
gas pipelines and associated
facilities under Section
7C (b) of the Natural
Gas Act of 1938.
Source: CAMA Land Use Plan Update, Hertford County, NC,
1980.

138
STATE DEVELOPMENT REGULATIONS
'
Agency
Licenses and Permits
DEPARTMENT OF NATURAL RESOURCES - Permits to discharge to sur-
AND COMMUNITY DEVELOPMENT 'face
,
waters or operate waste-
water treatment
plants or oil
discharge permits; NPDES Per -
'
Division
wits, (G.S. 143-215).
Environmental
of
Management
'6 Permits for septic tanks that
serve industrial process
'
water flow or are community
owned. Such systems owned
by the State or Federal
government are under the
'
jurisdiction of the Health
Department, (G.S. 143-215.3).
I
Division of Coastal
Management
11
I[]
Permits for air pollution
abatement facilities and
sources (G.S. 143-215.108).
Permits for construction of
complex sources; e.g. parking
lots, subdivision, stadiums,
etc. (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 estuarine waters, tide-
lands, etc. (G.S. 113-229).
Permits to undertake develop-
ment in Areas of Environ-
mental Concern (G.S. 113A-
118).
Note: Minor development
permits are issued by the
local government.

139
DEPARTMENT OF NATURAL RESOURCES - Permits to alter or construct
AND COMMUNITY DEVELOPMENT dams (G.S. 143-215.66).
Division of Land Resources
- Permits to mine (B.S. 74-51).
- Permits to drill exploratory
oil or gas wells (G.S. 113-
381).
- Permits to conduct geograph-
ical explorations (G.S.
113-391).
=' - Sedimentation erosion control
plans for any land disturb-
ing activity of over one
contiguous acre (G.S.
113A-54).
Secretary of NRCD - Permits to construct oil
refineries.
Department of Administration
Department of Human Resources
Source: CAMA Land Use Plan
1980.
Easements to fill where lands
are proposed to be raised
above the normal high water
mark or navigable waters
(G.S. 146.6).
-"Approval to operate a
solid waste disposal site
or facility (G.S. 130-
166.16).
- Approval for construction
of any public water supply
facility that furnishes
water to ten or more
residences (G.S. 130-
160.1).
Permits for septic tank
systems of 3000 gallons/day
or less capacity (G.S.
130-160).
Update,. Hertford County, NC,

APPRMnTX r
140
1
1
1
1
1
1
1
1
1
1
1
1
1
1
CITIZEN INVOLVEMENT NEWSPAPER ARTICLES
Washington Daily News - 1-29-86
Belhaven-1=plannin B
,,nI );rj% . runwyhn�„ it d . nn�l�in�,.Qar
'i Tf,►, ,r .I, .r .. � � b.► { ,� � V: .� .Lily...
senses and L7seoa�s'^
HEAVEN — The Belhaven In a checklist forma
planning board has decided to . t, each 1981
work harder at meeting Its gdalo Policy
and
Implementation
and to remove the inn it gals how analyzed te town haso determine
Ikom the land use policies in place ward in reaching moved tor•
for the past Hve yearn, hing each goal, put of
The town's 16 Implementation strategies, 11.
Mo�+tY night top ning a�th� Q or 69 pest, had been either par.
use plan which Is being updated tially °r COmpletelY tWfilled. The
board was asked to evaluate each.
this Year. The meeting focused on
the policies and goals set in theme for Its content and clarity.
1981 land use plan and how well Each policy dealt with the issues of
resothe Implementation procedures for Managem
ent od econ mic de.
each po* have be*n carried out velopment.
since that time. The board con.
cluded that the goals and policies The planning board also discus.
set forth In the 1981 plan are too sad btherareas Of interest for their
"Vague" for Interpretation for the u�omlng areas Of inter
1980 plan. cated off of the watedro�consl-
The land use plan update is a dered to be a significant cultural
document used to assess and guide resource, were the subject of con.
development. Each of 20 counties • troversy. Planning board members
covered by North Caroliria's Coss• requested that Information on the
to � land agement Act must up. historical value of each wreck be
Years. Municipa� I everyve
ice bilifjrotadiketokeepou floodwafl gathered. Also. the economic l-
Belhaven, have the option of u ters from the downtown' section
dating their Plana as well. P- was debated.
Six planning board members
io y� I were present at the Meeting as
as
l 1 we11 as two town`councIlMember.
TIm Johnson, town manager. pres.,
Ided at the meeting,
.k

' WASHINGTON DAILY NEWS
2-20-86 141
I
Industrial Recruitment
Concern Of Planners
BELHAVEN — The Belhave
Planning Board has decided that
although water quality Is impor
tant to the growth of the commun
ity, industrial recruitment shout
take a front seat over addition
town efforts to maintain water
quality.
In proposing policy for the
town's 1986 land use plan list
night, the planning board included
policies to protect natural re-
sources and the region's supply o
groundwater. The board did no{
approve new initiatives on %ater
quality.
The board also elected not to pur-
sue establishment of an historic
district in the town. Tit}}'Ie are
approximately 17 structures listed
on the State and National.}}t�egisters
of Historic Places; but ,the board
noted that' there was'not wide-
spread support for or inierest In an
historic district at this,time.
Belhaven Is updating its Coastal
Area Management Aft Land, Use
?lah: The planning board; plu's ab::
out ei'ght'concerned:citiieiW, met"
last night with consulting planner
Lynn Phillips of jhe Mid -East
Commission, who provided tech-
nical information on which the
board based its decisions.
The board also elected John
Jones as its chairman. Jones noted
that non -point pollution is one of
the greatest environmental prob-
lems facing the town for this year's
update:
Water quality and wetland re-
sources are Important to
c�' Belhaven'a commercial fishing
al and recreation industries. lrstab-
lishment of policies related to im-
proving water quality were an im-
portant concern to the board, but
no strategies for implementing
new policies were formed.
' Ms. Phillips noted that "the
f effectiveness of each policy is mea-
sured by the actions taken to sup-
port and carry it out."
. The N.C. Coastal Resources
Commission requires that water
quality be addressed. Belhaven
can decide whether to emphasize it
In the plan. In general, it was deter-
mined that water quality is secon-
dary to industrial development in
the town. Wilbur Logan, a planning.
board member, -noted that the plan
should not have any statements
which might discourage industry
in anyway.
ThL* board decided'td table sever -'al' decisforis 'conceihing' water
quality until the next meeting to
allow more time to consider each of
the implementation strategies sug-
gested.: '
The board also - examined the
safe placement of septic tanks in
area soli. The best way to prevent
contaniination of water supplies is
to require .all potential users to
hook up to the t9wn'p wastewater
treatment plant. Town Manager
Tim Johnson said that it will prob-
ably be possible to extend sewer
lines to all developed areas within
the one -mile extraterritorial limit
within the next two -years. The
town's wastewater treatment facil-
ity is currently in the planning'
stages for a 201 Facilities Program
to upgrade and expand the ex
fisting facility.
The pladis being developed and .
Public opinion is still encouraged
on .each policy recommendation.
The board will meet again at 7:30
p.m. March 19 In the Belhaven
Town Hall.

`i'own's Tlanning Board
Discusses CAMA Plan
BELHAVEN — Discussing
opportunities for development
the Belhaven Planning Boar
voted last -night to avoid speci
precautions to preserve several
tracts of "prime" agricultural
land within the planning area.
The Planning Board discussed
the 1986 update of the Coastal
Area Management Act Land Use
Plan. The Land Use Plan is a
document to guide and assess de-
velopment over a ten-year
period.
Two pockets of "prime" agri-
cultural soils exist within the
planning area. "Prime" soils
have been identified by the Soil
Conservation Service as those
soils with the highest production
yields in the state. In Belhaven,
these soils are located near Duke
Street and outside' the town
limits to the north of Battalina
Creek..
Since these lands are currently
under production, the town en-
courages the owners to imple-
ment the best management prac-
tices, a program currently in
place under the Soil Conserva-
tion Service. Development will
not be precluded from there
WASHINGTON DAILY NEWS
3-20-86
7
al
sites, however. If any residential,
commercial, or industrial de-
velopment considers these sites
for development, the town sees
no need to protect these farm-
lands. The lack of adequate land
for all development types was
cited as the main purpose for this
policy choice.
In other matters, the board de-
cided to discourage open pit min-
ing within the one -mile jurisdic-
tion ofthe town. Any mining acti-
vities proposed will be required
to apply for a special use permit.
Each special use permit will be
examined individually. The
town plans to discourage the ex-
traction of peat within its plan-
ning area. It will not be responsi-
ble for providing water and sew-
er services to any proposed min-
ing operations. `
The board also agreed that
available sites for future indust-
rial development are limited.
Sites that are currently zoned for
industry are located on the Pan-
tego Creek waterfront and on the
Battalina Creek peninsula. These
creeks are considered fragile be-
cause they serve as nursery areas
for juvenile fish species. Most
types of industry located adja-
cent to these waters may have a
negative effect on the fragile
nursery areas. It was recom-
mended that alternative sites for
industry be considered. It was a
long-range plan for the town.
However; the planning board
will discuss it later.
The development of marinas
and floating homes will be sup-
poited; providing *their design
and size do not violate water
quality standards set by the Divi-
sion of Environmental Manage-
ment officials. Scientific studies
have shown marinas to be contri-
butors to the pollution problems
of the waters in which they are
located. The zoning ordinance
will require slight revisions to re-
flect this policy statement.
Several citizens attended the
meeting. Most were interested in
the possible requirement of sew-
er hook-ups for all out-of-town
residents. Board members reas-
sured the citizens that this would
not be a future requirement.
The next meeting of the plan-
ning board is scheduled for April
16 at 7:30 p.m. in the council
chambers. The agenda will in-
clude policy statements on eco-
nomic and community develop-
ment ,11 interested members of
the ij..::.,e are invited to attend.
142

143
WASHINGTON DAILY NEWS, MONDAY, APRIL 28,1986 — PAGE 5
Comment Sought
On CAMA Update
Of Land Use Plan
BEIAVEN Citizens will
have the opportunity to provide
input on the economic and com-
munity development issues fac.
ing Belhaven At a town meeting
scheduled for Wednesday. April 30.
The. town-s Planning Board
Will meet at 7:30 P.M. in the coun-
cil chambers of the Old Town
Hall to
Coas discpss an update of the
tal land use p�lana. ement Act
The board will discuss the cruitingofindustryre.
and potential
sites for specific manufacturing
�tyepets. Members obli also Will
it discuss
services. to llitugre Industry. vide

144
WASHINGTON DAILY NEWS, TUESDAY$ JUNE 17, 1986 — PAGE 6
...: Belhaven , Continues Land
' Use Plan Talks
Wednesday
BELHAVEN --The Belhaven
use plan is to address policies re -
Planning Board will meet at 7:30
lated to development in a town in
p.m. Wednesday evening to con-
a 10-year period.
tinue discussion on the town's
Wednesday night's agenda in- -t,
Land Use Plan update.
cludes discussion on the town's
: The meeting will be held in the
commitment to citizen involve.
town council chambers and is
ment in planning along with
open to all interested citizens.
allowable uses within each clas-
Since November, the planning
sification on the land classifica-
board has been working on up-
tion map. The map includes five
dating the land use plan as re-
classes based on development
quired every five years. The land
density.

APPENDIX D
PERSONAL INVITATION TO PUBLIC MEETINGS
145
n
Nqrth ma Min
a
MAYOR ;+,• J'.
Dr. C.O. Boyerre f
TOWN MANAGER
Tim AI. Johnson
`-ti► — ��� .�..-.
TOWN CLERKetablieheD 1889
Deborah M. Hollowell
January 31, 1986
Mr. Jerry Cox
Front Street
Belhaven, NC 27810
Dear Mr. Cox:
TOWN COUNCIL:
W.P. O'Neal. Jr.. Mayor Pro -Teti,
Robert B. Whiday
James B. Hodges
Frank Ambrose. Jr.
Judy E. Allen
.V�
The'Town of Belhaven and the Mid -East Commission are
currently engaged in updating the 1981 Belhaven Land Use Plan.
The land use plan is a document used to assess and guide de-
velopment. It will be used by the county CAMA Permit Officers,
developers and other state and federal agencies to make decisions
about development and preservation activities in the town.
Thus far, our work has concentrated on establishing a
data base on the existing conditions, all plans and policies,
and physical constraints which might pose a development impedi-
ment in the future. The next task of the planning board is to
formulate recommendations for policy on future development
issues.
Your input in this decision -making process is essential.
' You have been listed as one of'the more prominent residents in
the Belhaven community who has an interest in the future of
the town. We invite you to be heard in the community forum.
' During the next meeting scheduled for February lq, we will be-
gin making policy statements on resource protection in the area.
Also, we will be discussing the most relevant issues facing
' Belhaven today. The incorporation of your opinion on these
issues is our goal.
The meeting is scheduled for February 11 at 7:30 P.M. in
' Town Hall. Subsequent meetings will be held on the third Wed-
nesday of each month at the time given above. We encourage
you to attend it to provide guidance and direction.
1

146
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
January 31, 1986
page two
If you have any questions about the plan and its purpose
or the meeting, please feel free to call me. 'We look forward
to working with you to guide the future of the town.
Sincerely,
Lynn Phillips, Planner in Charge
Mid -East Commission
LP/ma
cc: Tim Johnson, Town Manager