Land Use Plan-1980

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Division of Coastal Management
1980 KILL DEVIL HILLS LAND USE PLAN
Prepared for the Town Board,
the Planning Board and the
Town Administration by
Coastal Consultants, Ltd.
11/15/80

The preparation of this report was financed in part through a grant
provided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as amended,
which is administered by the United States Office of Coastal
Management, National Oceanic and Atmospheric Administration.

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INTRODUCTION
This land use plan is designed to deal with development problems
during the coming ten years, 1980-1990. The Plan is organized into
four parts: Section One consists of the policies governing future
decisions by the Town. Sections Two and Three consist of technical
reports prepared by the consultants, whereas Section Three contains
other information required to meet state guidelines for preparing
land use plans to comply with Coastal Resources Commission standards.
Section Four contains the public participation element used to produce
the plan.
The material in Section One has been referenced so that the
reader can find support information in the other sections. The
reader will note that the policy section closely follows the format of
the technical information and of the questionnaire.
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TABLE OF CONTENTS
The following table of contents has been prepared to accommodate
Federal and State government officials in their use of this local land
use plan.
Method of Assemblage:
Organization of Entire Plan ii
Method for developing information in contained in each
section. Because of the extensive amount of original
research involved, it was not possible to set out one
or two sources, such as the Bureau of Cencus, N.C.
Dept. of Administration, as sources for materials
(a) On population, see 38-47
(b) On value and attitudes, see 52
(c On environment, see 69-70, 89-90
(di On other environment constraints, see 92, 95, 99-104
(e) On transportation system, see 109-121
(f) On housing 124-128
(g On recreation 147-149
(hi Oh cultural 155
(i) On carrying capacity 157
Major Conclusion 1
Existing Conditions
I. Population
peak 48
average 48
winter/spring/summer/fall 42, 47
per sector 46
by housing type 45
Housing
type, size, number 45
density 46
housing starts 48
revenue generation and costs
from alternate housing types and patterns 128-141
revenue in KDH 7.43-144
Economy 147
Agriculture, Miniin � Industry, 24, 102-3
Forestry and Woodlands 24, 102-3
Fishing 70-75, 150-1
Seasonal Use 37-48

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I:I. Existing Land Use
see map
housing patterns 45
uses 162-163
as constraints 158-162
III. Land Use Compatability Patterns 169-170
Problems from Unplanned Development 170-171
Areas Likely to Experience Change in Use 49-51, 172
IV. Areas of Environmental Concern 95-102
The Woods 105-107
V. Summary of Existing Local Plans 165-166
Existing policies from 1976 Plan 167-168
Existing regulations 166
State and Federal licenses and permits 177-181
Constraints
to Development
I. Land Suitability: Physical Constraints
A.
Soils --relation with septic systems
and water quality
69-70, 76-83, 102
B.
Steep Slopes
101
C.
Hazard Areas
100-1
D.
Water Supply
76-77
II. Land
Suitability: Fragile Areas
A.
Coastal Wetlands
100, 159
B.
Lakes and Ponds
99, 158
C.
Woodlands
102, 105-107, 161
D.
Dunes
91-94, 160
E.
Other
158-161
See too section on AECs
95-104
III. Land
Suitability: Resource Potential
A.
Biotic Community
69-77
B.
Recreation
147-152
IV. Capacity of Community Facilities
A. Water and Sewer 82, 84-88
B. Roads 115-120
C. Bridges 109-114
Capacity Analysis
I. Population Projection 48-51
II. Future Land Use Need
Standards 161
Existing 162
1990 Needs (Low density) 162
Carrying Capcity 163

SECTION ONE: TEN YEAR PLAN
POLICIES CONCERNING DEVELOPMENT, 1980-1990

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Section One: Policies
Page
1.
General Observation . . . . . . . . . . . . . . . . . .
. 1
2.
Growth . . . . . . . . . . . . . . . . . . . . . . .
. 2
3.
Energy Shortages . . . . . . . . . . . . .
. 3
4.
Constraints to Development:
Flooding, Soils . . . . . . . . . . . . . . . .
. 5
Marshlands, Dunes
6
Water Quality in Sound
7
5.
Water and Sewer Facilities . . . . . . . . . . . .
. 8
6.
Hurricane Evacuation . . . . . . . . . . . .
. 11
7.
Transportation Network: Bypass . . . . . . .
13
8.
Transportation Network: Local Roads . . . . . .
15
9.
Housing Mix . . . . . . . . . . . . .
. . 16
10.
Recreation and Beach Access . . . . . . . . . . . .
. . 17
11.
Beach and Shoreline Erosion . .
19
12.
kh
Duneplowing, Rebuilding Dunes, Buleading, etc.
21
13.
Building Heights . . . . . . . . . .
. 22
14.
Commercial and Recreational Fishing, ORVs :
23
15.
Agricultural, Forestry, Industrial, Mining Uses
24
16..
Commercial Development . .. . ...
26
17.
AECs, Policies of the Coastal Resource Commission . .
. 28
18.
Energy Facilities, Utility Transmission Lines . . . .
. 29
19.
Historic Preservation, Archaeological Preservation . .
. 31
20.
Commitment to State and Federal Programs . . . . . . .
33
21.
Tourism . . . . . . . . . . .
. 34
22.
Public Participation . . . . . . . . . . . . . . . . .
. 35
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GENERAL OBSERVATION
The Town of Kill Devil Hills -is a beach community on the Outer
Banks of North Carolina. Although its permanent population is less
than 1,800 people, its summer -population swells to nearly 13,000 over-
night visitors and residents. Kill Devil Hills is predominantly ocean
oriented. Recent development has tended to locate near the Sound.
Kill Devil Hills has considerable natural resources. These include
the Sound, adjacent marshland, fresh water ponds with valuable wild-
life, large dunes along the soundside, and.the ocean and its beaches.
Kill Devil Hills is nearly completely subdivided. Opportunities to
protect many environment features must rest with the voluntary actions
of residents, visitors and developers. The Town is growing at a rate
between 8 and 13% per year. This growth rate will probably cause the
Town to be completely developed by 1990. Redevelopment will probably
not occur until after 2000 due to the fact that considerable open
space exists to both the north and south of Town.
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IN
GROWTH
Policies Considered
(1) Increase growth rate to 15 or more percent; (2) Keep growth
rate of 1970s, namely 8 to 13%; (3) Limit growth rate to under 8%;
(4) Limit growth rate to a number which reflects the capacity of the
present facility system without major, costly additional expenditures;
(5) Adopt a no growth policy.
Discussion
Townspeople want to restrict growth to a level which will not
require major, costly addition expenditures. (Questionnaire, pp. 5-6)
The Town has approved several new subdivisions and partially approved
.plans for additional motels on the beachfront. The Regional Sewer
System may not be as expensive as the respondents to the questionnaire
believed it to be. (Environmental Considerations, pp. 17 f.) Except
for sewer, facility capacities appear to be sufficient to handle 13,000
additional overnight visitors and residents.
Policy Selected
Retain growth rate of the near past, namely the 1970s. Plan to
construct and improve facilities and services to meet the demands of
13,000 additional residents anticipated to move to the Town by 1990.
Implementation
Adopt other policies consistent with this overall policy. (See
additional policies in this Section.)
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ENERGY SHORTAGES AND MARKET FACTORS WHICH COULD AFFECT
THE GOAL OF REACHING THE SELECTED GROWTH RATE
Policies Considered
(1) Assist private sector in finding suitable financing for
favored development;.(2) Take measures to assure a sufficient quantity
of gas will be available for motorists who reach the Town; (3) Develop
a mass transit system to,diminish the reliance on the auto for persons
who have reached the Town; (4) Take no action.
Discussion
Past relationships between energy shortages, tight money and Town
growth seem to support the conclusion that no long term effects on the
building rates will result from short term energy shortages or tight
money. (Population, pp. 11-15) Traffic congestion and associated
hazards on the Bypass justify the Town supporting some measures that
will reduce problems there. (Transportation, pp, 8-14) The public
does not strongly support expenditures for mass transit. (Question-
naire, pp. 14-15) Therefore, mass transit should be pursued only if
the system pays for itself.
Policy Selected
The Town will support efforts begun by the Town of Nags Head
aimed at providing mass transit for the beach communities on the
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northern Dare County Outer Banks. This support will probably continue
as long as the system is self-supporting.
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Implementation
Cooperation with the Town of Nags Head in finding further sources
for the project. Administrative assistance from the Town to the Town
of Nags Head.
Comment
As a result of implementing this policy in the current planning
year, a mass transit system was established during the summer of 1980.
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CONSTRAINTS TO DEVELOPMENT
Policies Considered
Determining that none, some or all of the following deserve local
government action which would make them a constraint to development.
(1) Flood hazard.areas, (2) Areas with soils considered unfavorable
for the use of septic systems, (3) Wetlands, (4) Wooded lands and
especially, Nags Head Woods --dunes, ponds, wooded.areas (bay forest,
mixed hardwood forest), marsh, hammocks, etc., (5) Oceanfront dunes.
Ilic-# ,- - inn
Kill Devil Hills is currently nearly completely subdivided.
Large lot sizes for sensitive environmental features are not possible.
Standards designed to diminish damages from flooding are being
enforced. (Current Plans, p. 4) Flooding is only a partial con-
straint to development in that it increases the costs of building.
Since the regulations have been in effect during,the 70s, one can con-
clude that the regulations have no significant effect on the growth
rate. The soils on the Outer Banks have severe limitations for
development relying on the use of septic systems. (Environmental
Considerations, pp. 6-15). Environmental damages are probably limited
to pollution of the Sound. This damage can probably be avoided if
developers and builders use large lot sizes on lands close to the
Sound. Nearly all land adjacent to the Sound is already subdivided.
The Coastal Resources Commission currently limits the use of develop-
ment within 75 feet of the Sound. The Commission (C.R.C.) also
protects wetlands from development. Permits are -required for develop-
ment in both areas.
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A large portion of the Woods is subdivided; roads have been built
and -lots have been sold. A significant portion of the built -on lots
have retained their natural vegetation, despite the absence of Town
regulations requiring cover requirements. The respondents.to the
questionnaire favored protection of environmental features, preserva-
tion of open space, use of large lot sizes and minimum cover require-
ments. (Questionnaire, pp. 8-11) The.6oard of Commissioners is
reluctant to increase governmental regulation unless it is absolutely
necessary.
Development along the oceanfront is limited by the C.R.C. to those
instances where a flood hazard setback is observed and the primary dune
is not disturbed.
Policy Selected
The following are deserving of,additional action by the Town of
Kill Devil Hills which would make them constraints to development:
areas with unsuitable soils for septic systems. It is Town policy to
limit development on such soils, as mapped by the consultants and
representing soils determined to have.limitations by the Soil Conser-
vation Service. The Town supports the enforcement of septic system
regulations as enforced by the County Health Department. The Town
will continue to participate in the Federal Flood Insurance Program.
It will continue to enforce a flood hazard ordinance with accompanying
building standards so long as the program is in effect. The Town
encourages property owners to retain the natural wooded condition of
their property as a shelter for wildlife and to prevent erosion. The
Town -does not wish to designate the Woods within the Town limits as an
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Area of Environmental Concern. The Town supports C.R.C. policies and
regulations protecting the marshlands along the Sound. The Town
favors the maintenance of existing policies on the fresh water pond
which constitutes the back -.up water source for the Town. The Town
supports policies of the C.R.C. that will protect the dune system
along the ocean, however, it does not support setbacks adopted for
the sole purpose of anticipating erosion during the next thirty years.
Implementation
The Town will retain its flood control ordinance. The Town will
work with the County Health Department. The Town will continue to
enforce its building code, zoning ordinance, subdivision regulations.
The Town will take an active role in policy development of the C.R.C.
(whenever possible the Town Administrator and members of Board.of
Commissioners will attend the meetings). The Town will enforce
C.A.M.A. regulations by keeping in effect an implementation and
operation plan and by designating a local permit officer as required
under that statute.
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WATER AND SEWER FACILITIES
Policies Considered
(1) Participating or building a public sewer system to handle
growth anticipated during the next ten to�.twenty years;
(2) Encouraging small package plants for handling household wastes
and commercial wastes --such systems to be located in areas with poor
soils for septic systems and in areas of dense motel and/or restaurant
development; (3) Delay decision until further studies can be completed;
(4) Leave the decision totally to State and Federal agencies.
Discussion
Additional motel development will provide a secure source of
revenue for future services. Motels yield higher revenue per acre
than do single family structures. (.Housing, pp. 24-28) Existing
subdivisions, when developed, may damage the Sound and surficial _
aquifer --lot sizes are not sensitive to what we currently know about
the filtering capacity of soils for handling domestic wastes. The
State supports increasing the level and revenue from tourism. The
Federal Government is recently considering limiting development by
limiting services and facilities on the barrier islands. The Town
had participated in the Dare Beaches Water and Sewer Study and pre-
liminarily backed the plan to build a regional sewer system for the
towns of Manteo, Nags Head and Kill Devil Hills. A plan to study
package treatment systems would take too long, significant lead time
has already been spent on the regional sewer system. A sewer system
needs to be completed as soon as possible.

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Policy Selected
The Town supports the building of the regional waste treatment
facility. This project should be begun and completed as soon as
possible.
Implementation
The Town will investigate methods of raising the funds necessary
to construct the local collector system and pay for its share of the
facility costs as soon as the project seems likely to receive State
and Federal approval. The Town will probably submit a bond raising
proposal to referendum. In implementing the construction of the local
sewer system, the Town will extend lines to areas with poor soils and
dense populations first and then to other areas.
Note
In the event the Regional Wastetreatment Facility is abandoned,
the Town will study the feasibility of using package plants.
Interim Policies
Interim policies designed to discourage the building on lots
with poor soils were considered but rejected. (Public comments to the
preliminary draft and proposed interim policies were so harsh as to
demand their removal.) The Town desires that this problem be solved
by the construction of a public sewer system.
Comment on the Water System
The Water system has sufficient excess capacity to meet demands
to 1990. The Regional,Water Distribution System was completed during
the summer'of 1980; its capacity and ability to expand should enable

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the Town to be assured of sufficient quantitites of water for local
distribution to 1990. The fresh water pond will be used as a back-up
water supply.
10

HURRICANE EVACUATION
Policies Considered
11
(1) Treat hurricanes as an unusual natural occurrence which should
be planned for but which do not demand the kind of public expenditures
to insure lives and safety beyond the extent to which they are cur-
rently protected; (2) Take such measures as are necessary to evacuate
the Outer Banks when threatened by hurricanes; (3) Restrict the mea-
sures in number two above to only planning measures that do not
involve public expenditures; (4) Limit growth to amount that can be
evacuated safely.
Discussion
The chance of a hurricane striking the Dare Outer Banks appears
to be about 1 in 10 in any year. A hurricane or major storm will
probably require evacuation as there are not adequate shel-tern in
existence on the Outer- Banks to accommodate even a small proportion
of the population. The likelihood of a successful evacuation is
related to the warning time. By 1985 the population on the Outer Banks
from Ocracoke to Corolla needing to exit using routes US 64 and US 158
will have exceeded the bridge capacity on the road network, even given
reasonable early warning (48 hours). (Transportation, pp. 1-8)
Despite Department of Transportation Plan providing for four lane
highways in Currituck to the bridge over the Currituck Sound and the
six laning of the Bypass, no plans exist to increase the bridge over
the Sounds to four lanes, or to build another bridge.
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Policy Selected
The Town requests the State Department of Transportation to plan,
engineer and build another bridge across the Currituck Sound. The
Town requests the County to update its hurricane evacuation plan to
account for problems identified,in the technical report to this Plan
(See Transportation, pp. 1-8).
Interim Policy
In the event that a plan to increase the bridge capacity is not
forthcoming from the State by 1985, the Town will work with other Dare
Beach communities and the United States Park Service to place limits
on growth.
Implementation
The Town will write letters of request to the County and State,
and assist them in their efforts to implement these policies. The
Town will prepare ordinances to implement the interim policy in case
it should become necessary.
12

TRANSPORTATION NETWORK: BYPASS
Policies Considered
13
(1) Request that State build four lane road on Bypass right-of-
way; (2) Request State build feeder roads along Bypass; (3) Build a
new two lane road along the Sound; (4) Restrict commercial access to
the Bypass; limit new streets entering Bypass; eliminate left turns on
Bypass; (5) Establish system of one-way pairs.
Discussion .
Traffic levels on the Bypass currently exceed design standards.
The Thoroughfare Plan of 1973 calls for building a six lane highway
on the Bypass right-of-way. D.O.T. states that feeder roads would be
too expensive because the right-of-way would need to be enlarged.
One-way pairs are unacceptable to the Town because they would increase
the level and speed of traffic on the beach road which is heavily used
by pedestrians for beach access. (Transportation, pp. 8-17) The
respondents to the questionnaire support a four lane highway; they
oppose restrictions and one-way pairs. (Questionnaire, pp. 11-12)
State budgets for highway improvements appear dismal.
Policy Selected
The Town supports the Thoroughfare Plan (1973) and requests the
State to implement the plan as soon as possible. The Town will place
a low priority on paving streets that are currently only paper streets
2. in such a way that access would be directly to the Bypass, except where
to not do so would result in no reasonable access to the Bypass in the
area.
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Implementation
The Town has requested the State O.O.T. to place the plan to six
lane the Bypass on its improvements program for the next ten years.
The Town will develop a policy on street connections to the Bypass.
The details of the policy will be included in the management tools
study in 1980-1981.
Interim Policies
In the event that funding for this project is not provided by
1985, the Town will set up a Task Force to study the problem and make
recommendations.
s
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TRANSPORTATION NETWORK: LOCAL ROADS
Policies Considered
(1) Pave local roads pursuant to a priority list, the priorities
reflecting policies of the Town concerning which areas it wishes to see
developed first (reflecting problems with soils for septic systems of
lots adjoining the roads, of foundations for the road itself); (2) Pave
local roads when the majority of the people on the street are willing
to pay for 50% of the costs; (3) Require new subdivisions to build
roads to Town specifications.
n;
Kill Devil Hills currently requires roads in new subdivisions be
built to Town specifications. Current policy also calls for property
owners to share in the costs of new streets designed to serve them.
The respondents to the questionnaire indicated a desire to see greater
spending of tax monies for paving the streets. (Questionnaire, p. 15).
Policy
The Town will continue its policy of paving local roads when a
majority of the people on the road or street are willing to pay 50% of
the costs of the paving. The Town will study alternatives to this
policy in its revision of the management tools in 1980-1981.
Implementation
None required, except to study the matter further with concrete
proposals in the management tools study in 1980-1981.
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HOUSING MIX
Policies Considered
(1) Maintain low density housing mix of past ten years; (2) Shift -
housing mix to a greater percentage of motel units; (3) Shift housing
mix to encourage more condominiums.
Discussion
A housing mix that would result in higher densities would create
the best tax base and greatest net revenues to the Town. (Housing,
pp. 24-27) The respondents to the questionnaire indicated a strong
desire to retain the family beach atmosphere (limiting high density)
and to increase the amount of open space. (Questionnaire, pp. 7-11)
Policy Selected
The Town desires to provide for a future housing mix which is
approximately 75% single family and 25% motel units. Middle densities
will be largely discouraged.
Implementation
The Town will review its zoning ordinance to determine if it can
adjust zones and densities to accomplish this policy. Programmed
for management tool study, 1980-1981.
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RECREATION AND BEACH ACCESS
Policies Considered
The Town considered the following facilities to determine which
ones should be provided at public expense: (1) marinas and boat
access, (2) parking for beach access, (3) bathhouses, (4) playgrounds,
(5) tennis courts, (6) indoor ball courts, (7) ballfields, (8) picnic
facilities, (9) jogging and walking paths, (10) bikeways, (1.1) meeting
hall.
Ili a.- Ile ci nn
In 1979 the Town adppted a beach access plan. (See Current
Plans.) The respondents to the questionnaire indicated a need and
desire to have parking provided for beach access. They also showed
some support for bikeways and jogging paths. (Questionnaire, pp. 13-
14) Recreation on the Dare beaches is strongly tied into beach use.
Approximately two to three acres of parking will be needed to
accommodate the 1990 population, if mass transit is unavailable.
Only a few of'the beach access points are maintained by the Town.
Policy Selected
r
The Town will plan to provide adequate beach access facilities
for the general public and especially for overnight residents of the
Town. More specifically, the Town will attempt to improve and main-
tain all the beach access points within its jurisdiction within the
next ten years. The Town will develop a plan to acquire any addi-
tional land needed for parking. The Town will cooperate with Nags
Head towards the goal of achieving an acceptable mass transit system.
17

The Town will work with Nags Head and private organizations,
including Nature Conservancy, to develop jogging and walking paths and
bikeways.
Implementation
The Town Administrator will investigate the adequacy of existing
Town property for use as parking in connection with beach access for
both the ocean and sound. He will also prepare a schedule for
improving beach access points during the next ten years. The Town
will work with Nags Head on grantsmanship leading to the funding of
bikeways, jogging and walking paths. Some motel development (30%
of new units) have been encouraged in order to provide greater
opportunities for the general public to use the beaches.
IN

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BEACH AND SHORELINE EROSION
Policies Considered
(1) Encourage projects aimed at preserving the existing beach,
including groins and jetties; (2) Encourage the projects depending on
how much local, state and federal monies are involved in the project;
(3) Discourage these projects.
Discussion
Projects designed to stabilize the ocean beaches and prevent
further erosion are expensive. Further State money for such projects
seems dubious. Private erosion control actions usually interfere with
the public's right to the beaches. They also affect the property
rights of adjoining landowners. The building of steel and concrete
structures along the oceanfront inevitably will require beach stabili-
zation or acceptance of severe damage to property and consequential _
loss of tax revenues. (Beach Dynamics, pp. 1-4)
Policy Selected
The Town is opposed to private and governmental actions that
would attempt to stabilize the beach rather than allow it to migrate.
Y
The Town is opposed to bulkheads, jetties, groins, and the like along
the oceanfront. The Town will not spend local tax monies to protect
private landowners from problems due to ocean migration. The Town
encourages motels to locate west of the beach road.
Implementation
The Town will rely on consistency review and existing C.R.C. and
D.N.R.C.D. policies to implement policies towards building jetties and
19

20
groins. The Town will amend its zoning ordinance to remove features
requiring bulkheads along the oceanfront. The Town will review its
zoning ordinance to allow new motel zones west of the beachroad, and
perhaps to curtail the possibility of motel development along the
ocean, or some sections of the oceanfront. The Town will investigate
the possibility of adopting different open space requirements for
oceanfront and non -oceanfront property in the goal of fostering motel
development beyond the reaches of the migrating beach.
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DUNEPLOWING, REBUILDING AND REVEGETATING THE DUNES,
BULKHEADING THE ESTUARINE SHORELINE
Policies Considered
(1) Encourage such actions; (2) Discourage such actions;
(3) Require or prohibit such actions.
n4r..vice4nn
The Town has always allowed duneplowing and other actions, even
if it considered such actions as futile, provided the actions were not
undertaken in such a manner as to damage a neighbor's property. The
Town encourages the bulkheading of soundside and canal property. This
type of bulkheading will reduce sedimentation in the canals and Sound,
increasing water quality and limiting expenditures by private indi-
viduals to maintain boat access.
Policy Selected
The Town encourages the building and rebuilding of the dunes.
Such action will require a C.A.M.A. permit. The Town supports the
individual private landowner's decision towards duneplowing, provided
such actions are not detrimental to the property rights of adjacent
landowners or to the public's right to the beach. Again, a C.A.M.A.
permit is required for duneplowing, limited to emergency situations
only. The Town encourages the bulkheading of property along canal
lots and adjacent to the Sound where such property is experiencing
• erosion and where natural barriers to erosion are.limited or non-
existent.
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22
BUILDING HEIGHTS
Policies Considered
(1) Limiting building heights to an amount that could be served
by Town fire equipment; (2) Limiting height in entire Town to 50 feet;
(3) Limiting height near airport to 50 feet to provide greater safety
there, but allow unrestricted heights outside of normal flight patterns
and anticipated deviations therefrom.
Kill Devil Hills has traditionally viewed the height limitation
as a capacity factor; maximum allowable height under the zoning
ordinance is 50 feet. Modern sprinkler systems would reduce need of
Town firefighting equipment being able to reach structures above 50
feet. Strong winds especially during hurricanes and storms pose
concern over the ability of tall structures to withstand the forces
of nature. Elevations above 50 feet in the flight path of an airport
or near an airport may be hazardous for pilots navigating landings
and takeoffs.
Policy Selected
The Town will retain its current 50 feet height limitation for
structures.
Implementation
Retain height limitation in the zoning ordinance.
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COMMERCIAL AND RECREATIONAL FISHING.
OFF ROAD VEHICLE USE.
Policies Considered
(1) Regulating conflicts between commercial fishing and bathing
and sport uses; (2) Not regulating the same.
The conflicts between fishing, ORVs, and other beach uses are not
as great as they could be. Kill Devil Hills does not have any
fisheries. Retail houses where fish are sold are permitted under the
zoning ordinance and restricted in terms of location. Commercial
fishing on the beaches usually occurs in the fall when there is least
likely conflict with beach use for bathing and swimming. The Town has
several access points to the beach which are suitable for use by
commercial four-wheel vehicles. The Town regulates the use of off- _
road vehicles for recreational use and prohibits that use from May to
September. The Town is not aware of any means to regulate commercial
fishing uses to prevent conflicts, even if they were to become more
significant.
Policy Selected
The Town would probably not support State or local regulation to
deal with conflicts between various beach and surf users at this time.
Note
The Town separates surfing uses from bathing uses.
Implementation
None required.
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24
AGRICULTURAL, FORESTRY AND INDUSTRIAL USES.
Policies Considered
(1) Encouraging or discouraging these uses; (2) Restricting or
prohibiting these uses.
Discussion
None of these uses is really significant in size or'contribution
to the Town. Only the land in the Woods is probably capable of being
used for agricultural purposes; the immediate use of this area appears
to be for residential development and conservation. The Woods are
suitable for forestry purposes; they have been cut at various times in
the history of development of the island. This use will conflict with
residential use and desire to protect the marshlands from disturbance.
Some industrial uses are currently existing in the Town (cement plant);
some areas are zoned for light industry, although these areas have _
been developed with mobile home parks.
Policy Selected
The Town opposes the commercial cutting of the Woods. The Town
does not consider agricultural purposes likely. The Town considers
additional industrial development a possibility with other businesses
in the Town.
Implementation
Direct regulation at the local level of commercial forestry or
agriculture is not deemed possible because of legal restrictions. The
Town relies on consistency review. Industrial uses are limited
through the zoning ordinance; these zones will be reviewed together
24

25
with regulations encouraging or discouraging industrial use during
the study of management tools during 1980-1981.
25

COMMERCIAL DEVELOPMENT
Policies Considered
(1) Encourage commercial development along the beach road and the
Bypass as allowed by the current zoning ordinance; (2) Encourage the
greater concentration of commercial development in the northern and
southern sections of Town (slight shift in pattern); (3) Attempt to
restrict commercial development.
Discussion
The zoning ordinance provides for commercial development along a
large portion of the Bypass and the beach road. Many of these areas
are already developed as residential; some are still vacant lands.
Commercial development is heaviest in the southern section near the
Nags, Head limits (Sea Holly Square, many restaurants, some motels),
with a smaller area of development in the northern section of Town.
Strip commercial development along the Bypass will interfere with the
functioning of this highway. Aggregating commercial uses in the
already developing southern section of Town would probably yield the
greatest benefits to the Town in terms of service, diminished inter-
ference with residential uses, and conflicts with the highway system.
Policy Selected
The Town will attempt to review its zoning ordinance and to
revise it to reflect a policy of attempting to provide more centrali-
zation for the commercial zone.
26

27
Implementation
The Town will consider amendments to its zoning ordinance. The
review of the management system is planned for the 1980-1981 fiscal
year.
27

r:
AECs, POLICIES OF THE COASTAL RESOURCE COMMISSION
Policies Considered
(1) Complete support of current and future policies of the -
Commission; (2) Limiting that support.
The Town disagrees with several recent decisions of the
Commission, especially on ocean setbacks on the basis of 30 year
erosion rates and regulation of land adjacent to the Fresh Water Pond.
The Town is opposed to nomination of land known as the Woods as an
area of environmental concern. The Town does not feel that such area
is a complex natural area. Furthermore, residential use is the
highest and best use of much of this land. The Town supports C.R.C.
regulation of the marshlands and the purchase of land having
environmental significance by the Nature Conservancy. The Town notes
the need for public access to lands held for public purposes.
Policy Selected
See Policies on Constraints To Development.
Kfl

29
ENERGY FACILITIES; UTILITY TRANSMISSION LINES
r
Policies Considered
(1) Designating areas suitable for pipelines, substations or
possibly even powerplant; (2) Requesting State to require powerlines
and other transmission lines, especially telephone and cable, to be
placed underground; (3) Retaining current situation.
Discussion
The development of off -shore oil along the Outer Banks appears
inevitable. The delivery of that oil to on -shore facilities requires
land transport and port facilities. Ample areas of undeveloped land
not presently being used for high intensity recreational uses are
available for transmission or pipelines for oil and natural gas.
The Outer Banks would be more.attractive from an aesthetic viewpoint
if telephone and other overhead transmission lines were placed under-
ground. Such a placement should also improve service; the salt air
probably causes more problems for the utilities (popping, crackling,
breaking).
Policy Selected
The Town is opposed to energy facilities, including pipelines,
docking facilities, plants, and substations locating within the Town.
The Town is not opposed to the reasonable location of facilities
necessary for the transmission of electricity for serving residents
of the Outer Banks, however, the Town prefers that transmission lines
be placed underground. <
29

30
Implementation
These policies should be implemented in consistency review.
30

31
HISTORIC PRESERVATION; ARCHAEOLOGICAL PRESERVATION
Policies Considered
(1) Study or encourage the study of two sections of beachfront to
determine the historic significance of beachhouses located there;
(2) Allow such initiatives to come totally from the private sector;
(3) Cooperate with State in identifying and providing for the
preservation and removal of items of archaeological or historic sig-
nificance; (4) Not adopt a policy.
n; cr,,cc; nn
Most of the beachouses of likely significance are privately
owned by the persons who originally built or purchased them. Many of
the houses do not seem to be intensively used. (Population, pp. 1-2)
Some of the houses are believed to be in need of substantial improve-
ments. Significant tax advantages are provided by the United States
to owners of structures which qualify for designation to the National
Register. The Town would benefit from restoration and maintenance of
this district culturally and financially. Infringement from motel use
is currently provided through density control in the zoning ordinance.
The Town is not aware of any areas likely to contain items of
archaeological or geological significance. The Town does not consider
the soundside dunes of geological significance. Archaeological review
often delays construction, yet serves a valuable purpose from a state
perspective.
31

32
Policy Selected
The Town will study the older houses along the oceanfront, with
the consent of the owners, to determine if these houses could be
nominated to the National Register. The Town will support the comple-
tion of studies currently pending with regard to the Lighthouse
Station. The Town will notify the State Department of Natural
Resources and Community Development in the event that it learns of the
discovery of items of archaeological or historical significance.
Implementation
Preliminary study by the Town to be undertaken within next five
years of beachfront structures of likely historic significance. The
zoning ordinance will be reviewed to determine if additional restric-
tions on development in areas where these houses are located are
needed. Letters will be sent to the State in the event archaeologi-
cally important items are encountered.
32

33
COMMITMENT TO STATE AND FEDERAL PROGRAMS
Policies Considered
(1) Commitment to receiving State and Federal monies and assis-
tance; (2) No commitment.
State and Federal programs have enabled the Town to study
problems with beach access and capital facility programming. They
have assisted in the provision of water availability for the Town's
residents; they are a necessary ingredient in providing public sewers,
increasing the capacity of the highway system, improving the local
roads, etc.
Policy Selected
Generally speaking, the Town supports Federal and State programs.
When necessary the Town will assist these agencies in finding spoil
sites, in acquiring right-of-ways, etc.
Implementation
Directives will be forthcoming to the Town Administrator on a
case by case basis.
33

34
TOURISM
Policies Considered
(1) Encourage tourism by providing for growth; (2) Discourage
tourism; (3) Extend season for tourism.
Discussion
Tourists are the backbone of economic well-being of the
community. The policies of the Town are inseparably united with
encouraging tourism and the recreational uses of the Town's natural
resources, both ocean beaches and the Sound. The increasing emphasis
the public places on recreation will inevitably extend the length of
tourist season. The Town knows of no way in which it could really
affect the vacation habits of Americans so as to extend the season
into the winter months.
Policy Selected
The Town encourages tourism. It encourages a level of growth
and provision of services necessary to accommodate anticipated demand
from all sectors of the population to the year 1990 (See Growth
policies). The Town supports and approves of extending the length of
the tourist season.
Implementation
This policy is implemented through the network of other policies
concerning growth and development.
34

35
PUBLIC PARTICIPATION
Policies Considered
(1) Encourage public participation; (2) No policy.
Discussion
During the planning process in thisland use plan, the Town held
a public forum to .determine the issues of importance to the citizens
of the Town. It canvassed viewpoints and attitudes of identifiable
interest groups connected with the Town. The Planning Board used a
scientific random sample procedure and an issue -oriented questionnaire
to sample public opinion (both residents and seasonal beach users).
The attitudes were analyzed in a sophisticated manner to reveal
groupings of attitudes. The Planning Board held over twenty meetings
which were attended by the press, representatives from State and
Federal agencies and private individuals. Summaries of the technical
papers and comments of the Planning Board were regularly reported in
the local newspapers. The consultants participated in radio interviews
and notices were put on television. The Town Board reviewed the plan
publicly on five occasions including two work sessions with the
Planning Board. This type of intensive public discussion is probably
not possible except in the development of the land use plan. However,
the Town desires to encourage the continuance of public participation
and the constant updating of its land use plan.
• Policy Selected
The Town will encourage the public to participate to the maximum
extent possible in the governing of the Town.
35

36
Implementation
The Town directs the Planning Board to set aside regularly
scheduled meetings to discuss land use issues. The Planning Board and
Town Administrator will continue to advise the public of the nature of
items being considered by the Town at its meetings. They will cooper-
ate with the press and prepare releases for bringing the public up-to-
date on government activity.
v
IN
36

4
SECTION TWO: TECHNICAL PAPERS
` Chapter
I
Population
_ Chapter.II
Psychological Constraints: Values and
Attitudes, the Questionnaire
Chapter
III
Environmental Constraints Relating to
Water and Sewer
Chapter
IV
Other Environmental Constraints
A. Beach Dynamics
B. AECs
C. Fragile and Hazard Areas;
Natural Resource Areas
D. Woods
. Chapter
V
Transportation System
A. Hurricane Evacuation
B. Road Network
Chapter
VI
Housing Analysis
Chapter
VII
Recreation Analysis
Chapter
VIII
Cultural Resources
Chapter
IX
Carrying Capacity

POP-1
CHAPTER ONE
POPULATION ANALYSIS
The proper place to begin the planning process in a beach
community in North Carolina is with the study of its population. It is
the changes in population that place demands on facilities, that pose
conflicts with the environment, with health and safety, with recreation.
This particular study will seek to focus on viewing population
in terms of its natural increase and the carrying capacity of the land,
the housing stock and facilities which could limit or restrict the
achievement of this growth. Growth may be limited by the inability to
evacuate the town in the event of a hurricane, or the inability to
move traffic effectively from one part of the town to another, or the
inability to provide additional water for drinking or bathing, or the
inability of the environment to accommodate effluent from septic
systems, etc.
Measuring Population
In most communities in the United States the permanent population
does not differ substantially from the population or inhabitants of the
community at any time during the year. Because it is necessary to
understand population in order to assess growth and impacts on housing,
transportation and the environment, much attention has been paid to
methods to determine the permanent population. In the North Carolina
37

beach community there is a considerable difference between the peak
summer population and the permanent population (both -in numbers and
composition). To fully appreciate the effects of growth we must con-
cern ourselves with the peak population and with the difference between
peak and permanent population. Peak population may frustrate our
capacity and cause irreversible damage to health, safety, the environ-
ment or certain facilities. The strong differences in population may
make the delivery of services and facilities difficult and costly.
The best method to measure the population of a community is
through a direct head count. Regrettably we are not aware that any
direct count of population during the peak season exists in Kill Devil
Hills. Certainly this is an undertaking which the town should pursue
in the future. To measure population in the absence of this data, we
resorted to measuring the evidence of population --the number of houses
occupied, the size of the units and the use of water.
Housing Information
During the months of December and January 1979-1980, we surveyed
the entire town of Kill Devil Hills. We mapped the location of every
building in town. We attempted to identify its use --residential,
commercial housing (motel and cottage court), and uninhabited structures
(restaurants, government buildings, etc.). This breakdown is useful
in that it shows daytime and nighttime use. We also attempted to
establish the number of bedrooms in each residence and the number of
rooms in commercial housing. .

POP-3
In order to portray this information in a more meaningful manner,
we artificially divided the town into eight (8) sections. These
sections are as follows:
` #1 The Beach Road from the Nags Head line to Prospect Avenue
_ (both sides)
#2 The Beach Road from Prospect Avenue to the Kitty Hawk
community (both sides)
#3 Between the Beach Road and the bypass, including the property
immediately adjacent to both sides of the bypass, between the
Nags Head line and Prospect Avenue
#4 Between the Beach Road and the bypass as in #3 above between
Prospect Avenue and Kitty Hawk community
#5 Remaining land west of the bypass and south of the Wright
Memos i a 1
#6 'Remaining land west of the bypass but between the Wright
Memorial and 5th Street
#7 Remaining land west of the bypass but between 5th Street and
Bickett Street
#8 Remaining land west of the bypass north of Bickett Street to
the corporate town limits.
39

POP-4
TABLE 1
RESIDENTIAL AND COMMERCIAL HOUSING UNITS
Section Residential (By Bedroom) Commercial Total
MH 2 3 4- 6 8 10 12 T CC M
#1
0
23
21
38
•32
6
2
3
0
8
16
149
#2
0
39
72
61
28
18
0
3
0
4
8
243
#3
0
61
173
52
7
0
0
0
0
0
1
294
#4
0,
156
278
56
2
0
0
0
0
0
0
492
15
71
57
111
80
6
0
0
0
0
0
0
325
#6
0
50
123
45
12
0
0
0
0
0
0
230
#7
0
140
200
36
4
0
0
0
0
0
0
380
#8
0
5
87
18
2
0
0
0
0
0
0
112
Total
71
531
1065
386
103
24
2
6
0
12
25
2225
MH-mobile home; T-townhouse; CC -cottage court; M-motel
Relating Water Use to Population
In order to establish a meaningful relationship between water use
and population, we focesed sharply on motels. Motels offered us the
opportunity to observe hundreds of people under similar conditions. -
Furthermore, because they were under one management or administration,
they afforded us the opportunity to probe for unusual uses.
The motel managers and owners informed us that they reached peak
population in the last week in June and sustained that population con-
stantly to the first week in September. The maintained that the average
occupancy was in excess of 3 persons per unit; that at least half of
the units were inhabited by children. Water for pools and outdoor
showers was provided from private wells. By reading the records on ,
water usage for the period June 15 to September 15, 1979, we surmised
that water use ranged from 11,500 gallons to 22,000 gallons per unit,
with an average of 14,600 gallons. In the 93 day period covered by the
40

POP-5
water records, we expect that the typical motel unit experienced full
occupancy at the average summer rate on 85 of those days.
TABLE 2
MOTEL WATER USE AND OCCUPANCY
Gallons/Unit Varying Rates of Occupancy
Season Day 2.5 3.0 3.5 4.0
11,500
135.2
54
45
38
34
14,600
171.8
69
57
49
43
17,500
205.9
82
69
59
51
In selecting a water usage rate and occupancy rate for the residen-
tial sector we were inclined to increase water slightly to account for
amounts used in food preparation, cleaning of dishes and a minimal
amount of care washing and lawn watering. From the data we examined
relating water usage in residences to proximity to the ocean, we began
to suspect that water use may be greater as one moves closer to the
beach. (Our current data was too sketchy to establish a correlation
but this relationship needs to be probed in the future.)
In order to check our presumption about residential use, we
examined some 50 units throughout the town together with all the units
on three distinct streets. From this information we noted that the
average residence used 14,700 gallons during the june 15 to September
15 period. Despite a broad range in the amount of water use by each
residence, we found that the span seemed to concentrate around two
points, 13,000 gallons (nearly 60% of the units) and 28,000 gallons
(about 20% of the units). Our small sample seems to suggest that as
41

many as 10% of the units are occupied only infrequently during the
summer.
Town Water
Uses (Flows):
Peak,
Average and Minimum
If we
examine the
town's
total delivery or sales of water for each
day during the same summer season, we can get a view of the flow of
population, of peak as opposed to average demand. We selected two
days, one during the week and one on the weekend, in order to compare
ranges. The average daily supply of water by the town from July 27,
1979 to August 23, 1979 amounted to 950,000 gallons per day.
TABLE 3
WATER SALES AT SELECTED TIMES IN PEAK SEASON
Day
Gallons (1000s)
% of Avg.
% of Peak
June
3rd
Wednesday
634
67
58
June
3rd
Saturday
801
84
73
July,
lst
Wednesday
903
95
83
July
lst
Saturday
883
94
81
July
3rd
Wednesday
907
95
83
July
3rd
Saturday
884
93
81
August
1st
Wednesday
912
96
83
August
lst
Saturday
1062
118
97
August
3rd
Wednesday
926
97
85
August
3rd
Saturday
1000
105
91
September
1st Wednesday
552
58
51
September
lst Saturday
722
76
66
Perhaps, the most noteworthy feature about the above data is its ab-
sence of significant fluctuation. The difference between the average
and peak or low points shows a range of less than 10%. This information
is meaningful because it establishes that the residential home or
cottage population is fairly constant throughout the summer months of
42
-41-

POP-7
July and August. If we assumed that 80%,of the units were occupied
during the peak days in the summer, then that percentage was maintained
during other days in the peak season. Similarly, if the percentage of
the units on the peak day were 50%, occupancy during the other days
of the summer was at that same rate. Although it is possible that more
units were occupied at lower rates of persons per house on peak days
than during the rest of the summer when fewer units were occupied at
greater densities (or vice -versa), this phenomena seems unlikely.
Another possibility that persons would use less water on peak days seems
also unlikely. The remaining problem is to establish the percentage
of occupancy. The' town should consider undertaking a survey in the
peak summer days to determine what percentage of the residential units
are occupied. In the meantime, we have chosen to accept the suggestion
of several realtors and developers that 80% seems reasonable.
We can calculate the residential occupancy through the following
steps. We can determine the water used by the commercial housing sec-
tor by multiplying the number of units (1237) by the gallons per day
used by each unit (171.8). We can tally the amount of sales to res-
taurants and major non -housing users and by providing an allowance for
other users estimate the commercial and governmental sector. Next, we
can estimate the total sales to areas outside the town boundaries by
determining the percentage of residential units in these areas over
those in Kill Devil Hills. By adding together these sums we can deter-
mine the amount of water available for residential units in Kill Devil
Hills. These computations are as follows:
43

TABLE 4
COMPUTATION OF RESIDENTIAL WATER USE
Average Daily Sales During Peak Month 950,000 gallons
Less: Commercial Housing 212,516
Comme rc i a 1 0 th er 77,419
Average Daily Residential Sales 660,065 gallons
Less: Sales to Residential Units
Outside Town Limits 88,449
(13.4% of all units)
Average Daily Sales to Residents of 571,616 gallons
Kill Devil Hills (1979)
Since the number of residential units (not including motels and
cottage courts) was 2,188, the average water use by such units during a
day in the peak season was 261.2 gallons. As we noted from a prior
page, the average daily use of residences west of the bypass suggests a
rate of 196 gallons. This is based on a presumption of 75 days occu-
pancy from June 15, 1979 to September.15, 1979. The difference in
these two averages seemed to be due to one of two reasons; either higher
water use per person as one lives closer to the ocean or higher water
use with an increase in the number of bedrooms in house (most 4 bedroom
or larger units were found in sections 1 and 2). Although logic tells
us that the number of residents should increase with the size of the
dwelling, there does seem to be some statistical evidence (although not
persuasive due to the small sample) to suggest that closeness to the
ocean may affect water use.
For purposes of completing the model, let us assume that the
number of persons per dwelling is directly related to the number of
44

bedrooms. Thus, a four bedroom unit could be expected to house twice
the number of persons as a two bedroom house. This number may need
adjustment as we noticed from water records that a high vacancy rate
occurred.in many of the older larger houses on the oceanfront.
The total number of bedrooms within the town of Kill Devil Hills
is 6842. This figure would establish an average daily water use of
83.5 gallons per bedroom. From our motel study we determined that the
motel residents used between 49 and 57 gallons per day. The residen-
tial range should be between 55 and 70 gallons per day. Using an
average figure of 63 gallons per person per day, we are able to arrive
at an average of 1.3 persons per bedroom (remember this was using a
presumption of 75 days occupancy). The following is a determination of
population in each sector:
TABLE 5
POPULATION BY HOUSING TYPE
Section
Residential
Commercial
Total
MH
2
3
4
6
8
10
12
T
CC
M
T
#1
0
61
81
202
255
64
27
48
0
714
2426
3878
#2
0
104
287
325
303
192
48
0
0
70
1033
2362
#3
0
162
690
277
'56
0
0
0
0
0
88
1273
#4
0
414
1109
298
16
0
0
0
0
0
0
1837
#5
189
152
443
426
48
0
0
0
0
0
0
1258
#6
0
133
491
239
96
0
0
0
0
0
0
959
#7
0
372
798
192
32
0
0
0
0
0
0
1394
#8
0
13
347
96
16
0
0
0
0
0
0
472
Total
189
1411
4246
2055
822
256
75
48
0
784
3547
13433
Because many land use standards and information about health and
the environment are often given in terms of density, we have expressed
this population in this manner in the chart below.
45

POP-10
TABLE 6
POPULATION DENSITY PER SECTOR
Sector
Population
Square Miles
Persons/Square Mile
#1
3878
.315
12629
#2
2362
.281
8405
#3
1273
.395
3222
#4
1837
.502
3659
#5
1258
2.349
536
#6
959
.666
1440
#7
1394
.239
5832
#8
472
.399
1183
Total
13433
.5.146*
2610
*This number does not include the area in the Wright Memorial.
Differences with other surveys may be due to changing shorelines
and methods of computation.
Population Projection
Population projections for 1990 can be determined in several ways.
One method is to project the curve from the water usage into the
future. This method assumes that the capacity per unit does not change
(this excess is at least 0.7 per bedroom). Also, this method must rely
on the water uses not reflecting increased conservation measures. A
second method is to project the rate of growth through extending the
rate of new building starts. In any event these factors should be
tempered by market factors which can be determined, such as decreases
from unavailability of gasoline for transportation, high interest rates
and inflation which affect building and spending, increased importance
of leisure time and recreation, propensities in the national market
toward townhouse development, etc.
An analysis of the water sales of the town of Kill Devil Hills al-
lows us to watch the growth rate during the past 12 years.
46
1`

POP-11
TABLE 7
KILL DEVIL HILLS WATER.SALES 1968-1979 (MAXIMUMS)
Month
1979
1978
1974
1968
r74 r78 r68
January
325
412
204
247
11 -- 03
March
479
463
245
186
May
849
667
691
550
04
June
877
811
608
400
July
1030
1026
710
411
August
1093
967
754
519
13 08 07
September
1038
(NA)
(NA)
443
October
771
(NA)
508
(NA)
Peak 5 day
1020
(NA)
689
(NA)
08
30 day ave.
950
848
(NA)
(NA)
12
From examining the above chart it is apparent that the rate of growth as
measured by increases in water sales exceeds 8% per year for the past
five years. This rate has been sustained since 1968 (probably with the
averaging in of two poor growth years around 1974s
In addition this growth rate increased dramatically in 1979. At the rate
of 7% per year, the population of Kill Devil Hills will double in
population in slightly over 10 years. At a rate of 8% (which repre-
sents the minimum population over the best five day period), the popu-
lation will double in 9 years. At a rate of 12% or 13% the population
will double in about 6 years.
An analysis of housing starts since 1975 shows the following
47

POP-12
TABLE 8
NEW HOUSING STARTS 1975-1979
Year
# Starts
r75
1975
110
N/A
1976
118
N/A
1977
163
8.7
1978
208
9.3
1979
210
9.5
From this analysis we are able to tell that the number of buildings in
Kill Devil Hills in 1974 was 1379. Since then the rate of growth in
the housing stock has averaged 9.5% per year.
By combining our information on trends over.the past five and ten
years, we can predict (based on a continuation of past trends) that if
the population is allowed to continue at its past rate of growth that
the 1990 population will reach the following limits:
TABLE 9
POPULATION PROJECTED TO 1990
1980 1990 Increase
Minimum Peak Population* 14422 31137 16715
Average August Day Population 13433 29000 15567
*The minimum peak population is the minimum population sustained
over a five day maximum period. We seek to know this number
since this is a number which represents the capacity of our
water and potential sewer system. Once can't get aroung this
number by extra storage or decreased time in filtering.
km

POP-13
Projected Population and Housing
.A rough idea of the impact of this population on the land can be
obtained if we continue the trends of the 1970s with regard to housing
mix and location. From our housing inventory we have noted that new
residential and commercial housing opportunities, (since 1975) have
been limited to mostly three and four bedroom houses. By comparing our
housing survey with the survey developed by the town in 1977 we were
able to determine that the following sections seem to be experiencing
rapid growth:
#3 between Carolyn Street and Dean Street;
between Ocean Bay Boulevard and Woodmere Avenue;
#4 at the south end of Sir Walter Road;
between Wilkinson Street and Helga Street;
#6 north of Wright Memorial to Indian.Drive.
All areas are experiencing moderate growth.
We expect that future growth will continue the trends of the past
five years, however, due to a number of new subdivisions in sections
5 through 8, we expect these areas to grow at a stronger rate than in
the past. Several subdivisions west of the bypass, however, appear to
be stagnant. It also seems inevitable that the next ten years will
place a considerable amount of pressure `on redeveloping the beach road
sections.
If we assume that future residents will continue past trends, then
we expect that the future housing mix will look something like the
following (some adjustments for trends):
V
49

POP-14
TABLE 10
PROJECTED FUTURE HOUSING MIX
MH 2
3. 3
4 6
T CC
M
Total
3 10
55 15
15 5
5 2
5
100%
(Percentage of persons living in
each housing
type)
If we express
this information into
the number
of housing
units
anti-
cipated for each
type of housing
between 1980.and 1990, we
find
the
following:
TABLE 11
HOUSING UNITS ADDED
BETWEEN 1980
AND 1990 BY
TYPE
Unit Type
or Size # New People # New Units
(not bedroom)
Residential:
Mobile Home
467
180
Residential:
2 bedrooms
1556
598
Residential:
3 bedrooms
8562
2195
Residential:
4 bedrooms
2335
449
Residential:
6 bedrooms
778
100
Townhouse
778
199
Cottage Court
311
.97
Motels
778
243
Much of .the rest of this Land Use Plan will address whether this
growth and its locational trends are appropriate for the town of Kill
Devil Hills.
50
IV

POP-15
.The population for planning water, sewer and many services should
be 29,000 (1990), 13,433 (1980) and 15,567 anticipated new arrivals.
The market would place most of these persons in single family housing.
current zoning allows for mobile home use in.one zone (LB1). Most
mobile units are in RA6 at present time.
Kill Devil Hills has a strong rate of growth which is not particu-
larly sensitive to fuel availability, and only sensitive in the short
term to economic difficulties (high interest rates). The Town's growth
is steady and high.
The average house uses 250 gallons per day. The regional water
system is capable of meeting 1990 demands.
The Town's population during the summer does not exhibit strong
variations in number of residents. Most services will be satisfactorily
used if the demand for the service is there to begin with.
For altitudes of this population see next section.
51

QUEST-1
CHAPTER II
VALUES AND ATTITUDES OF PERSONS OF KILL DEVIL HILLS:
RESULTS OF RANDOM SAMPLE SURVEY OF CITIZEN ATTITUDES
TO LAND USE RELATED ISSUES IN KILL DEVIL HILLS1
The public participation element focused on a survey of.citizen
attitudes dealing with issues brought out in the public forum. The
survey was designed to measure the strength of attitudes, both against
each other and in terms of a willingness to pay. Furthermore, the
survey is designed so that profiles of interest groups are ascertain-
able. Lastly, a number of checks within the survey allow one to
measure consistency and gaps in the public's information.
The questionnaire was delivered to 250 persons,selected through
random sample out of all property owners and voters in Kill Devil
Hills. Out of 250 surveys, 75 were returned to the consultants within
the time set out. In addition, the questionnaire was made available to
the general public. Although many of these were returned and reviewed
by the town, only the results of one random sample are tabulated in
this analysis.
Conclusions
Before we analyze the results in detail, we should attempt to
extract the larger picture.
Four.
1Note: Questionnaire and results of forum included in Section
52

QUEST-2
1. Property owners and residents strongly favor restricting
growth to a level that will not force them to provide public sewer
within the next ten years. This feeling is even stronger in residents.
2. Respondents strongly favor preserving the environment and
open space. however, there is a general lack of awareness as to what
are environmental features and how they can be protected.
3. There is only a.mild demand for recreational facilities.
4. The respondents are not particularly sensitive to costs and
taxes in their decision -making. They give higher priority to protect-
ing the environment, preserving the social atmosphere they desire, cur-
ng their problems and convenience than they do to taxes or cos ts.
5. The people want to spend money on local roads to bring them
up to par. Non-resident property owners show strong support for more:
services, especially for water, sewer, hospital and parking for beach
access.
The Details: Interest Groups
Of the 75 returned questionnaires, we observed a fair and expected
cross -sample in the returns. Concerning residency, our split was as
follows:
TABLE 1
Residing Raw Score M
Permanent Resident 11 15
Non -Resident Real Property Owner 47 63
Regular Seasonal Visitor 11 15
Occasional Seasonal Visitors 2 3
Other 3 4
53

QUEST-3
Since the questionnaire was only sent to persons who were registered
voters or taxpayers, most persons who described themselves as seasonal
visitors belonged to one of the first two groups.l
Our respondents showed the following "interest" identifications:
TABLE 2
Occupation (Raw Score) (%)
Commercial &Motel 5 7
Sports Fisherman & Boaters 9 12
Beach User 34 46
Retiree 13 17
Other 13 17
In -analyzing the above information, the first choice placed in the
answer space was presumed to be the principal relationship. Note that
although commercial interests from only a small part of the democratic
whole, the importance of these interest groups in decision -making re-
quires they be accounted for outside this attitude survey.
We asked respondents to identify their political relationship to
Kill Devil Hills. These. results show:
iNote. Your consultants in preparing this analysis have attempted
to avoid unnecessary judgments and spurious remarks, yet one must
realize that in any sample you will find: (a) people who do not under-
stand the basics of citizenship or property ownership and (b) people
who despite "trying hard" get confused because they lack sufficient
information to make consistent decisions. Despite this handicap we
have always been pleasantly surprised at the good faith, honesty and
the general desire of the people to participate if asked to do so.
54

QUEST-4
TABLE 3
Political Relationship (Raw Score) (b)
A. Active voter in KDH elections 9
B. Eligible to vote, butnot'active 7
C. Not eligible to vote 57
Of the 16 persons who said they were eligible to vote only 10 identified
themselves as permanent residents; the other 6 identified themselves as
non-resident real property owners --a probable inconsistency.
The questionnaire also asked people to identify with which area
of the town they were most interested. Although over 30% showed an in-
terest in two or more areas, preferences appear to support a strong
interest in the beach.
TABLE 4
Area ( Raw Score) M
Beach 39 78
Sound 4 8
Bypass 5 10
Other ( and multiple answers) 23
Details: Growth
The first substantive question we asked the respondents was de-
signed to test their willingness to provide for a very expensive service
in the light of growth and attendant environmental consequences. We
found that 39 of 72 persons who replied to the question desired to have
the town participate in building a public sewer system. This response -
was sensitive to some interests.
55

QUEST-5
TABLE 5
Favor Building Oppose Building
Sewer Sewer
(Raw Score) (%) (Raw Score) (%)
Permanent Resident 4 43% 7 57%
Other 35 57% 26 43%
Non -Residents Intending
to Build
Commercial
Retiree
Sports Users & Others
Overall
14
70%
6
30%
2
40%
3
60%
7
58%
5
42%
30
54%
25
46%
39
54%
33
46%
In conclusion, the group most likely to oppose expensive future improve-
ments are those who have already moved to the beach, whereas those who
are of the urge of moving and fear their decision will be impeded by
the lands of the facility are most willing to see the facility built.
Commercial interests often refuse to pay for environmental costs because
they are not quantified in the market place.
We next provided the respondent with a different outlet then
"decided to build or not build" the facility. We allowed them the
option of slowing the growth rate and hence delaying the decision.
-The respondents felt the Town should adopt the following attitude
toward growth.
56

QUEST-6
Attitude to Growth
Increase projected rate
Accept natural growth
• Hold growth to below amount
which will require sewer
Slow growth
TABLE 6
Raw Score % Cumulative
4 6% 38%
23 32%
23 32%
63%
22 31%
The responses show a strong desire to restrict growth to a level below
that will not require building a sewer system.- There was a healthy
consistency between persons who favored accepting the natural growth rate
and building public sewers. As in the previous answer, the residents
were most in favor of restricting growth.
TABLE 7
ATTITUDE TO GROWTH - NATURAL RATE
Increase Accept Hold (facility) Slow
Permanent Resident 0 (0% 1 (9%) 7 (64%) 3 (27%)
Other 4 (2%� 22 (27%) 16 (27% 19 (32%)
Details: Housing Mix
Perhaps the least understood aspect of planning to the citizen
involves the relationship of housing mix to the environment and the tax
base. People are generally less aware of subtle shifts in this area
than any other. They will also hold to clickees and personal perferences
even when these preferences conflict strongly with other values they
cherish.
57

QUEST-7
During the past five years, Kill Devil Hills has not had any sig-
nificant motel or cottage court additions. Since the Town has never
had any significant townhouse development, there has occurred a sharp
shift toward single family development. Preliminary studies seem to
indicate that differences in the type of housing do not seem to influ-
ence the type of inhabitants on the beach.
Our prefactory material indicated that past development emphasized
a mix of housing types --motel and single family. The respondents indi-
cated a strong desire to keep the past mix. (Difficulty in discerning
if that meant, mix to '68, to '73 or to '80.)
TABLE 8
(Raw Score) (%)
Increase high density housing 6 .9%
Increase low density 16 23%
Keep past profile 48 68%
In terms of a rationale for the above choice, we found a strong
desire to continue the family beach atmosphere and to preserve the
environment. Tax concerns seemed unimportant when compared to social
and environmental costs.
TABLE 9
(Raw Score) (%)
Preserve family beach 41 57%
Preserve fiscal aspects of town 8 11%
Preserve open space and 23 32%
environment

QUEST-8
s
In.order to test the success of informational programs relating
.environmental preservation to residential land use, we cross -tabulated
persons who selected to protect the environment with those who desired
to increase single family development and with those who wanted to
slow growth.
TABLE 10
Preserve Preserve Protect
Open Space Family each Fixed Aspects
Desire and Increase 2 (13%) 11 (68%) 3 (19%)
single family development
Other 21 (37%) 30 (53%) 5 ( 9%)
TABLE 11
Increase Accept Hold Slow
Protect Open Space 0 (0%) 4 11 (52%) 7 (33%)
Other 21'�19%)-
'40%) 12 (23%) 15 (30%)
Details: The Environment
Next we wanted to test the people's perception of the importance of
open space and the environment. We asked the people if they wanted to
keep large tracts of open space, even if it meant purchasing them.
59

QUEST-9
TABLE 12
.Yes No
Preserve large tracts of open space, 58 (85%) 10 (15%)
without purchase
Preserve even if town must purchase 33 (48%) 35 (52%)
Concerning where these tracts should be located, a strong response
was associated with the beach area and vegetated areas.
TABLE 13
Location of Open Space (Raw Score) (%)
Beach 28 54%
Sound 4 8%
Interior Dunes 5 10%
Vegetated Areas 15 29%
As was expected, there was a poor awareness on the part of persons
desiring to increase single family development on its effect on open
space.
TABLE 14
Preserve Open Space
Yes Only without Purchase No
Increase Single Family 9 (60%) 4 (26%) 2 (13%)
Other 24 (48%) 21 (40%) 8 (14%)
W,
7

QUEST-10
We expected to find a sharp decrease in the desire to keep open space
on the part of those who desire to develop at lower densities.
We then asked the people whether they wanted to protect sensitive
environmental features and how they wanted to protect them. The pre -
factory material to the environmental questions draw attention to the
woods. Sixty-seven of 72 persons (93%) stated that they desire to pro-
tect the dunes in the woods and on the sound side. This score was the
strongest response on the entire survey. This score is even more sur-
prising in that one would expect stronger attitudes toward protecting
the dunes on the ocean, the live oak forest, the quality of the sound,
marshes, etc.
The strength of this response is gauged by examining the desire to.use
management devices to protect vegetation. Respondents were asked if
they wished to see large lot zoning or cost requirements' used to protect
vegetated areas. The answers were as follows:
TABLE 15
Willing to Use Following Devices (Raw Score) (%)
No.device 14 23%
Large lot zoning 34 49%
Limits to cutting cover 49 71%
Both large lot zoning and cover 29 42%
(Total Responses) 69
Responses to environmental factors were not different for the various
interest groups or to being a permanent resident versus non-resident
property owner.
61

QUEST-11
We also asked the people whether they wanted to see PUD style
development as a means to protect the environment and preserve open
space. Thirty-three of the 63 persons (53%) who answered favored the
device. 'Ironically, those who wanted a particular housing mix because
it preserved open space felt.strongest against using PUD's. (Only
32% favored the use.) This score should be anticipated and reflects
lack of awareness of the advantages from density transfer as well as
association of PUD with low income housing.
A significantly large number of people were concrened with the
amount of private or personal open space around their individual
houses. (Thirty-three of 69 persons felt lot sizes were too small.)
Details: Transportation
In light of the recent attention being given to transportation
issues --the future of the thoroughfare, internal roads and alternative
modes of transportation --we decided to probe these attitudes. We asked
the respondents to rank four alternatives to handling the problem of
poor movement on the bypass.
TABLE 16
Persons
Selecting
Alternative as:
Alternative
1st Choice 2nd
Choice Last Choice Weighted
Score
Keep present
situation
20
5
8
35
Four lane
21
13
4
104
Feeder roads
11
20
1
105
Two land sound
. road
4
7
5
-9
Restrict access;
eliminate left
turns
17
13
9
34
62

QUEST-12
The last column above presents a weighted score which gears five points
to the first choice, three to the second, and,a -10 to the last choice.
(See top of two pages hence.)
In terms of balancing factors in making a decision concerning
transportation, the people showed a strong preference for considering
two factors, namely.the degree to which the problem would be cured and
the costs to the taxpayers of the State and Nation.
TABLE 17
Most Important Factor
Degree of cure
Time to cure
Costs to taxpayers
Personal inconvenience
Amount of cooperation needed from State
(Raw Score) (%)
29 41%
6 9
20 29
7 10
8 11
Ironically, one would expect that this balance would be reflected
by a larger score for the alternative that called for restricting access,
eliminating turns and the like (but this wasn't the case). A profile
of those who acted on costs against the whole group explain the problem:
TABLE 18
Alternative Chosen:
Most Important Keep Present Feeder Sound
Factor Situation Four Lane Roads Road Restriction
Costs to taxpayers 9 (45%) 4 (20%) 3 (15%) 0 (0%) 4 (20%)
Other 11 (21%) 17 (33%) 8 (15%) 4 (7%) 13 (25%)
63

QUEST-13
Our tax conscious citizens are not balancing the relative importance of
the cure but are acting absolutely.
We should note that 33 of 69 persons (48%) favor a public transit
for the beach. However, this response needs to be gauged by a basic
willingness to spend for this facility. (As an ideally logical course,
one would expect a strong environmental response to the associated to
opposition to the sound side road, but only two of 23 persons who wanted
to preserve open space over family beach selected the sound side road
as their least favorite choice.)
Details: Recreation
In order to understand the people's satisfaction with recreational
opportunities in Kill Devil Hills, we asked respondents to select from a
list of facilities --those for which they.felt there was a strong enough
need to justify their being provided at public expense. We found the
following. (Note: the responses indicate those who felt there was a
strong enough need and a relative weightinq giving four points to first
choice, three to second, two to third, one to fourth choice..) Score of
permanent residents in parenthesis. A score of 38 (6) showed a majority
response.
64

QUEST-14
TABLE 19
Recreation
Numb6r'6f
Times
Facility
w
Selected
for Funding
Weighted Number
Marinas
25
(2)
80
(5)
Parking for beach access
45
(8)
145
(26)
Bath houses
13
(0)
30
(0)
Playgrounds
9
(1)
17
(2)
Tennis courts
9
11)
21
(3)
Indoor courts
0
f0)
0
(0)
Ballfields
5
(1)
11
(2).
Picnic facilities
24
(3)
54
(7)
Jogging paths
27
(3)
69
(8)
Bikeways
33
(8)
90
(24)
Convention hall
10
(1)
27
(4)
s
In order to understand this table, we note that if'50% of respond-
ents selected a facility for funding, it would score 38 (overall) or 6
(permanent residents only). Similarly, a weighted score of 75 (overall)
of 11 (permanent residents only) would signify strong responses. Using
this perspective we notice strong support by all respondents for parking
for beach access. Some support seems likely for bikeways and to a
lesser extent for marinas and jogging paths. The permanent residents
gave strong support to parking for beach access and to bikeways. The
majority of the people are unwilling to support more than two recreational
projects. Lastly, the answers to this question must be balanced with
responses to the general willingness to fund.
In response to whether the Dare beach communities north of the
Oregon Inlet should join to form one municipality, 38 of 67 persons
A (56%) indicated their support.
65

QUEST-15
Details: Funding
The culmination of questionnaires was an attempt to put all pro-
jects which are being considered for funding under "one roof." In this
manner we hoped to gain some perspective on the willingness to spend
for one project after having considered another more worthy project.
We asked respondents to indicate projects they were willing to fund
and their rank. We have expressed the results by indicating the number
of times the project was chosen for funding and its relative weight.
(We weighted first choices with four points, second with three points,
etc.) The results are as follows: (resident score in parenthesis)
TABLE 20
Facility Being
Votes for
Weighted Number
Considered
Funding
of Votes
Pave local roads
45
(10}
140
(33)
Improve water system
37
(3
ill
(9)
Build public sewers
29
(2)
96
(7)
Build recreation facility
8
(4)
15
(7)
Build regional hospital
35
(4)
94
(10)
Build public transit
10
(2)
22
(6)
Build parking area for
beach access
30
(5)
72
(16)
Purchase open space
.18
(4)
50
(10)
The majority of persons were willing to fund between two and three
projects. Very strong response and hence priority is given to paving
local roads. Other strong responses were given to improving the water
system (no longer really a problem), building a regional hospital and a
public sewer system. The permanent residents expressed a strong desire
to pave local roads. In fact, without the support of permanent residents,
this facility does not appear to have overwhelming support. Our own
66 -

QUEST-16
i
analysis suggests this is a matter of local pride rather than need.
Additionally, they might support the building of a parking area for
beach access. They do not support a public sewer system.
Additionally, we should note despite the impending energy problems,
there is no strong support for -funding public transit. Surprisingly
enough, there was a strong interest in the Town purchasing open space.
Comment
The questionnaire is designed to assist in decision -making and not
simply to control decision -making. The results of this survey were fol-
lowed fairly closely by decision -making.
A profile of the economy and of the residents and property owners
of Kill Devil Hills is discernable from the background of the respondents.
(Questionnaire, p. 2) Forty-six percent of the Town describe this
principal relationshiptto the Town to be a beach user, 12% sport
fisherman and about 7% commercial businessmen; 17% retired.
The permanent population resides largely in subdivisions west of
the Bypass. Obviously, the principal business of the Town is tourism
and especially that related to beach use and sportfishing.
The. Town's decision to provide public sewer represents a desire
avert risks to the Sound not necessarily apparent to those who replied
to the survey. The people did support a sewer (close to 50%1 and
were not very sensitive to costs in general.
Open space policies were adopted (no purchase). and build at low
densities, with low height. Density transfer was deemed infeasible
in that only a few small tracts in the Town remain unsubdivided or
not protected by purchase by nature conservancy.
WA

QUEST-17
The Town intends to change its zoning ordinance despite strong
satisfaction because the ordinance will not succeed in implementing
these policies and because of problems in the ordinance. Restrictions
on cutting vegetation were rejected (discrepancy). `
A four lane (six lane) road was approved for the bypass; a beach
road-- bypass,'one way system rejected (consistent). _.Parking for beach
access and increased access were adopted. The Town also backed
proposals for bike paths, jogging, marinas.
The local road paving policy was felt adequate (reflects recent
changes), the water system had already been improved.
68

ENV-1
CHAPTER III
ENVIRONMENTAL CONSTRAINTS RELATED TO WATER AND SEWER
Although a municipality may be under tremendous growth pressures,
it may not be able to accept that growth. The capability to accept
growth may be limited by the availability of vacant land in its juris-
diction, its willingness to rebuild at higher densities, or the
population it can accept without environmental damages reaching unac-
ceptable levels. In this section of the land use plan we would like
to examine capacity limitations related to environmental degradation.
First, we will discuss the capability of the soils for handling wastes
fron development using septic systems. Next, we will examine water
quality in the Albemarle Sound and the Groundwater System. Third, we
will analyze the relationship between the use of septic systems and
sound and groundwater quality. Lastly, we will look at the costs of
treatment alternatives.
Soils
The soils in Kill Devil Hills are generally unsuitable for septic
systems. However, even accepting this conclusion, we still must note
that there are varying degrees of unacceptability. The mapping of
soils presented in this plan follows the recommendations of the Soil
Conservation Service as to the capacity of various soil mapping units.
A typical profile of soil units in Kill.Devil Hills looks.as follows:
69

It
ZONING MAP
SOILS UNSUITABLE FOR TOWN OF
ON -LOT SEWAGE KILL DEVIL HILLS
DISPOSAL
DARE COUNTY, NORTH CAROIINA
le�isl� Kc. ►m
I i REVISED MAY, 1979
RA-6 RESIDENTIAL
00000 ,I 00000 -
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to 000 000 0°�00000000000a0 ,0 00°0a°0 000 aoo 000m00000000000000 00000000$' °°0000000 00am o0000000 ';m ',° N LB•1 LIMITED BUSINESS
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ENV-2
TABLE 1
Location Soil Unit Depth Perm. Use
Frontal dune
Beach road east
and between
highways
Bypass west
Soundside
Beach-foredune assoc.
Newhan fine
Newhan Corolla
Duckston fine sand
Duneland
Duckston fine sand
Newhan fine sand
Corolla fine sand
Carteret soils
0-6'
Rapid
VSevere
6'
VRapid
Slight
(See
qualification)
1-2'
VRapid
Severe
6
VRa id
Severe
ee
above
R;ee
above)
1-3'
VRapid
Severe
0-3'
Rapid
VSevere
(Note: "Depth" refers to depth to seasonal high water table;
"Perm." refers to permeability; "Use" refers to suitability for.
septic tank and filter field; "V" before Rapid and Severe means
"very." Soils graded as severe or very severe were judged
unsuitable for septic systems and so mapped.)
In conclusion, we found that the soils that were most suitable
for septic systems were found between the bypass and the frontal dune.
However, even the more suitable soils pose special problems due to
their extreme permeability which will allow effluent to be injected
into the shallow aquifer.
By overlaying the map showing past residential growth with the
map showing soils suitable for septic systems, we notice that the
past growth utilized many of the more suitable soils and that future
growth will probably utilize many of the more severe and very severe
soils. Furthermore, past growth has occurred at distances farthest
removed from the sound. (See maps on soils and development.)
'Quality of the Albemarle Sound
The Albemarle Sound system includes (for purposes of this
discussion) not only the Albemarle, Currituck, Roanoke and Croatan
70

ENV-3
Sounds, but also the estuaries and associated drainage of the Roanoke,
Chowan, Perquimans, Little, Pasquotank, North, Alligator and Scuppernong
Rivers.
The Albemarle sound is a drowned river valley estuary. It has no
direct outlet to the ocean but -connects to the Pamlico Sound and Oregon
Inlet through the Croatan and Roanoke Sound. Tides ranges are of small
magnitude in most locations; winds play a major role in water circulation.
The Sounds average dimensions are 55 miles by 7 miles. The central
area of the bay is about 18 feet deep.
The Sound and its tributaries have proven to be exceptionally
favorable habitats for anadromous fishes such as stripped bass and
herring and serve also as nurseries and commercial and sport fisheries
for a variety of shellfish and finfish. Dissolved oxygen is abundant
in the sound year-round. The percent oxygen saturation is usually
above 80 to 90 percent. There are few signs of eutrophication
although nutrients necessary for algae blooms are abundant. Algae
blooms and attendant fish kills have occurred in the Chowan River.
The lack of algae growth is probably due to low temperatures, insuffi-
cient light and washout in the winter and high turbidity in the summer.
Considering freshwater inflow and saltwater intrusion, we note
that the large drainage basin and the strong currents are making the
Sound increasingly- fresh -water. The water budget for the Sound is as
follows:
71

ENV-4
TABLE 2
Average Monthly
Values
in ft. /sec.
- Element
Drainage
March
July
December
Ave.
Precipitation
933 mi2
2900
5400
2600
3400
Inflow: Chowan
4943
8600
3000
4400
4600
Inflow: Roanoke
9666
10000
8000
8300
8900
Inflow: land
2817
5600
1900
1300
2900
Less -Evaporation
933
2200
4100
900
2600
Total Outflow
to Pamlico
18359
25000
14000
16000
17000
The salinity of the Sound is usually at a minimum in March as a result
of heavy spring runoff displacing saline water seaward, and is at a.
maximum in December, after relatively low freshwater inflows during the
summer have allowed saline water to again advance landward. Wind tides
prevent salinity stratification in the open sound. Typical salinity
values appear as follows:
TABLE 3
Salinity in Grams Per Kilogram
Location December March
Hertford to Columbia area 1 1
Elizabeth City to Alligator R. 3 2
Roanoke and Croatan Sounds 8 4
Near Oregon Inlet 18 11
(Sea water) 34.5
Although as a whole the Albemarle Sound is biologically healthy,
there are many potential water problems. Some areas have been closed
to shellfishing due to high coliform bacteria counts. There have been
several very destructive algae blooms. Large agricultural developments,
72

ENV-5
including livestock operations, will increase nutrient loads. Drainage
canals may lower salinities below that necessary for developing shell-
fish. High levels of mercury and metals may damage the marine life.
The control over potential problems in the Sound rests in a -
collection of overlapping government controls. The Commission of Health
Services sets standards for use of septic systems which are enforced
by the County Health Department. The CHS makes regular reports on the
quality of shellfishing. The Environmental Management Commission sets
standards for wastes and water quality parameters. The EMC monitors
water quality in each of the river basins discharging into the Sound.
the counties and the municipalities therein are responsible for
controlling land use and among other things for preventing high
density development on unsuitable soils adjacent to the sound.
Although man-made pollution from industry, commerce and residential
development can be controlled by some layer of government; agricul-
tural uses have been exempted by the State from almost all direct and
indirect control.
In their 1979 Water Quality Management Plan, the N.C. Department
of Natural Resources and Community Development noted that it is highly
probable that many streams and coastal waters are degraded but undetected
at this time due to a lack of water quality monitoring. DNRCD is
concerned with several water pollutants, namely oxygen demanding
substances, bacteria, sgdiment, nutrients and toxics. Wastes from
all sectors,of development pose demands on oxygen in the water --an
essential to aquatic life. Generally a level of 5 mg/l of DO is
required to sustain acceptable biological activity. Pathogenic
bacteria can be found in both domestic wastewater and runoff from
73

ENV-6
animal feedlots. Pathogens which are most frequently transmitted
through water are those which cause infections of the intestinal
tract, namely typhoid, and paratyphoid fevers, dysentery and cholera.
Livestock operations may cause bacterial contamination of shellfish.
• Also extensive ditching (agricultural, construction and residential)
can cause bacteria to enter estuaries. Coliform bacteria standards
for different classes of waters are as follows:
TABLE 4
Class Standard (Colonies/ml.)
Class A-1 waters 50/100 ml
Class A-2 waters 1000/100
Class B and SB waters (fecal) 200/100 ml
Class C and%SC waters (fecal) 1000/100 ml
Class SA waters 70/100 ml
As we noted before sediment loads have served an important function in
the Sound, especially by interfering with photosynthesis and preventing
algae blooms despite ample presence of nitrogenous materials. Sedi-
mentation in the coastal area is largely the result of erosion from
agricultural use (estimate of 80% from cropland, pasture, farmsteads,
farm roads) and urban use and construction activities. Sediment in
sound and streams disrupts the food chain. At moderate concentrations,
fish cannot spawn; at high concentrations, gills of fish clog and they
die. Sediments cover up bottom dwelling macroinvertebrates which are
the primary source of food for fish. Fish may starve or move away.
Nutrients (phosophorus and nitrogen) are required by plants in order
74

ENV-7
to grow. However if these levels become too high, algae blooms may
occur. Excessive nutrient inputs may occur wastewater discharges,
septic tank leakage and rainfall runoff from agricultural and resi-
dential areas. As was noted before, algae blooms have occurred in the
Chowan River estuary. It was.estimated that 85% of the nitrogen
delivered to the Chowan came from non -point sources. The State uses
"Chlorophyll a" to measure the amount of nutrients in the water. The
proposed standard for salt water sounds is 40 ug/l.
Toxic substances reach the surface waters from wastewater dis-
charge or runoff from agricultural lands or urban areas. These
substances include those whose discharge is immediately dangerous to
biological organisms (causes death) and those that interfere with .
biological processes over long periods of time (reproductive damage).
Toxic substances can reach groundwater from ponds and lagoons. Mercury
and zinc levels in the Chowan River estuary have exceeded existing and
proposed standards. (Mercury standard .05 ug/l fresh water and .1 ug/l
salt water.)
Groundwater System
In the Nags Head/Kill Devil Hills area there are six significant
hydrogeologic units above a depth of 500 feet. These units incivae
three aquifers and three confining units known as aquatards or non -
aquifers. The uppermost unit is a water table or "unconfined aquifer
which consists primarily of sand with some shells and some interbedded
clays and silty sands. The aquifer extends from the land surface to
about 100 feet of Bodie Island. This aquifer is the source of water
for many existing and commercial wells in the area. The uppermost
75

M-b
confined layer is the most significant aquifer in the region. It
has been designated as the principal aquifer in the region. It has
been designated as the principal aquifer by the Groundwater Division
of the State DNRCD. The top of this aquifer is at about 200 feet at
Nags Head/Kill Devil Hills and is about 45 feet thick. This aquifer
appears to be more than adequate to meet the needs of the area for
the foreseeable future.
Because of the high degree of permeability of the aquifer in most
of the area, it has been largely flushed of saline water. The aquatards
above and below the aquifer provide good protection from the encroach-
ment of saline water. Rainfall on the mainland appears to be the
source of recharge where the confining bed above the aquifer is
absent, thin, or relatively permeable. DNRCD data suggest that the
major center of recharge is on the west side of the Croatan Sound
where the confining bed possibly terminates, and where the permeability
and transmissivity of the aquifer are highest. From the recharge
area the water moves beneath the Sound towards Roanoke Island and the
beaches.
The Towns of Nags Head and Kill Devil Hills and the population
center on Collington Island currently derive their water supply from
a surface freshwater lake called Freshwater Pond located on the border
of Kill Devil Hills and Nags Head. The waters of this pond are approxi-
mately 35 acres in size and are supplied by the upper unconfined
surface aquifer.
Water Qualify of Surface and Groundwater System
Immediately Adjacent to Dare County Beaches
Water quality classifications immediately adjacent to the Dare
beaches vary from SA to SC. SA waters are suitable for shellfishing.
76

ENV-9
SB for bathing and recreation and SC for fishing. According to a
report prepared for the Army Corps of Engineers by Enviroplan, Inc.
in 1975, Shallowbag Bay is a spawning area for finfish, crabs and
oysters and a nursery area for shrimp, primarily in the vicinity of
Scarborough and Dough's Creeks. The N.C. Wildlife Resources Commission
in 1976 reported that Buzzards Bay, Kitty Hawk Bay and Collington =
Creek all offer good fishing for large mouth bass, white perch and
yellow perch. Other reports cite that the shallow freshwater marshes
cover 2000 or more acres bordering Kitty Hawk bay and Buzzards bay.
These areas are important as a nursery area for freshwater game fish.
The areas adjacent to Nags Head and Kill Devil Hills (including Colling-
ton community) contain extensive wetland areas and are located within a
rich estuarine complex.
Regretably a large portion of this area is now closed to shell -
fishing. In 1973 crabkilas were cited in Kitty Hawk Bay and Collington
Creek. High fecal coliform counts (in excess of 300 in many stations
during March, in excess of 70 in summer) has resulted in the areas being
closed to shellfishing.
Causes of Shellfish Closings
Due to the relatively small amount of land in the area in agricul-
tural use, this use is not considered to be a significant cause of
pollutants. A number of point sources in the Nags Head/Kill Devil
Hills area 'discharge to the surface or the Sound. They are as follows:
77

ENV-10
TABLE 5
Package System
Capacity (MGD)
Flow (MGD)
- Holiday Inn (subsurface)
.03
.03
Evans Seafood (subsurface)
.01
No data
Villas
.06
.05
Ocean Acres
.06
.08*
Ramada Inn (subsurface)
.03
.03
Sells Association (subsurface)
.007
NA
Cove Condominium
.03
Sea Scape Development (subs)
.08
Dunes Condominium (subsurface)
.03
Daniels Seafood
.02
With the exception of Ocean Acres, these point sources have not been
considered as a significant cause of the pollution.
The Town of Manteo operates a .25 MGD secondary treatment facility
which discharges into Shallowbag Bay. The facility is meeting secondary
wastetreatment requirements for BOD removal and suspended solids.
Despite meeting standards of EPA, this facility is still a major
contributor to pollution in the Bay. (Shallowbag Bay is closed to
shellfishing because of fear concerning a breakdown in the facility.)
The major cause of pollution in the Sound adjacent to the Dare
County beaches has been attributed to septic tank failures. Septic
tank failure is not limited to those that are cited for malfunctioning.
In January 1979 45 of 459 private sewage disposal systems examined
needed repair. Similar septic tank failure rates were documented in
the past. Health department statistics indicate 53-68 septic systems
* are condemned each year and 104-115 are in need of repair or replace-
ment.
W,

The major cause of pollution in the Sound adjacent to the Dare
County beaches has been attributed to septic tank failures. Septic
tank failure is not limited to those that are cited for malfunctioning.
In January 1979 45 of 459 private sewage disposal systems examined _
needed repair. Similar septic tank failure rates were documented in
the past. Health department statistics indicate 53-68 septic systems
are condemned each year and 104-115 are in need of repair or replace-
ment.
Other causes of pollution, especially fecal coliform count, may
be from the duck and geese population in the Roanoke Sound, estimated
by CHS to be approximately 42,100 in January 1979.
Septic Systems, Sound Quality and Land Use
Although a satisfactory model that would predict when septic
tanks would cause the pollution of adjacent waters has not been
developed, many studies point to some rather obvious conclusions. In
Nassau County, New York a population density of 2000 persons per
square mile has resulted in nitrification of surface and ground waters.
In New Hanover County monitoring was performed on four tidal creeks to
assess the impact of septic systems. Residential development on the
creeks ranged from heavy (Whiskey and Bradley) to almost non-existent
(Futch). Bacteriological and nutrient samples were obtained from
these creeks during the period July to October 1978. Results showed
the following:
If
79

ENV-12
f
TABLE 6
MONITORING RESULTS IN NEW HANOVER COUNTY
Whiskey Creek
Bradley Creek
Futch Creek
Fecal Coliform
196
228
21
Total Coliform
3970
2452
66
Septic Tank Density
(units/acre)
.367
.563
.036
Soils Rated Severe
(% of study area)
Distance from water
78
(Closer
70
'in Whiskey Creek than
10
Bradley)
In still another study on the Surf City area, the State DNRCD
was able to conclude that fecal coliforn survives in the soil in
significant numbers for 32 days. In addition these colonies will
travel tens of feet per day in soils. A range of up to 1000 feet may
be possible.
The relationship between septic systems and high fecal coliform
counts in adjacent water areas is also apparent from studying the CHS
reports for waters adjacent to the Outer Banks. Areas south of the
Washington Baum bridge to Ocracoke are basically unpopulated except
for small communities on septic tanks. With but one exception (where
there was cited a natural cause) the reports document that fecal
coliform counts in excess of State standards are found where there is
residential housing using septic systems. Interestingly, the highest
fecal counts are found in the spring when the population is low but the
land is wet and water table high, than in the summer.
In conclusion, septic systems (even when from a layman's
perspective they are functioning properly) are a cause of pollution
(fecal coliform and nutrients) in nearby water bodies. This

ENV-13
relationship appears to depend on the quality of the soils to remove
bacteria, the distance of the system from the watercourse, the density
of the systems and the capacity and quality of the system. The location
of past population adjacent to the ocean ( as opposed to the sound)
has probably protected the sound from pollution. However, future
development pressures will undoubtedly open up areas close to the Sound.
The level of fecal coliform will probably be directly related to
the amount of development on septic systems on poor soils. The problems
with high fecal coliform counts is not solely the elimination of
shellfish as a source of sport and commercial food for man. Shellfish
are collectors of bacteria and viruses. They are also part of food -
chain for finfish. In addition, high fecal coliform counts may
eventually close the area to finfishing and bathing as well.
Septic Systems and Groundwater Quality
Effluent from septic systems threatens to pollute the unconsoli-
dated aquifer. Although this may not appear to be significant, studies
have expressed some concern that contamination may pass through the
aquitard and affect the quality of the principal aquifer --the sole
water source for the region.
Sewage Treatment Alternatives
Several alternatives exist to the present handling of septic
systems. Among these are: decrease density on areas with poor soils,
decrease population in general, provide generous setbacks of septic
systems from the sound and canals, increase the vertical separation
to as much as 30 inches. (Vertical separation is the distance between
the nitrification lines and the top of the water table.)
f
a

ENV-14
Alternatives to.septic systems themselves include mounds,
evapotranspiration beds, low pressure pipe, aerobic systems, land
application and holding tanks. The alternative to the individual
private system is a municipal, community or regional system. In
1977 Von Ossen studied four alternatives to a regional system for the
Dare beaches. The alternative adopted by resolution by all munici-
palities concerned at that time involved a one plant system with
ocean outfall.
The proposed waste treatment facility will have a design capacity
of 3.4 mgd. This was based on a regional peak population of 37,200.
people in 1980. Based on our studies of water use and population, we
feel that the system would be capable of handling 52,300 people. The
projected summer population (average, not peak) for 1990 shows
32,200 for Nags Head and 29,000 for Kill Devil Hills. Von Ossen
projected 33% for other areas in the service region. Clearly, given
current rates of growth, the 1990 population of the service area
will approach 90,000 people.
An analysis of the approach used by the federal agencies in
designing this facility leaves no conclusion but that it was designed
to fail upon completion. The system was designed with the inference
that it would be used as an ultimate growth control tool. Intentions
appear to be that the system would be at real capacity upon completion
and that further hookups would be prohibited. Since the system
appears designed to fail, it seems important to understand the
environmental costs attendant upon the failure of the systems to be
able to handle the effluent being delivered to the plant. Here we must
recognize the distinction between design treatment capacity and flow

ENV-15
capacity. A second alternative would recognize that to avert failure
the municipalities could provide for additional capacity. This could
be done either now or immediately upon completion of the plant. If it
were done now, federal agencies would probably demand that an EIS be
completed. If it were done (say in 1986 following completion) the
entire costs of the addition (less perhaps 25% State share) would be
borne by the municipalities. A third alternative would recognize a
redesign of the plant in light of realistic population projections
and with perhaps a modification of federal policies towards the barrier
islands.
We would like to point out an interesting legal aside at this
point. Although there is no case law in North Carolina on point, case
law from other jurisdictions points to two conclusions; one that the
State can enjoin a municipality from adding on additions to a plant
that is operating with loads excess of its NPDES permit; secondly, a
developer or private individual can enjoin a municipality from keeping
him from making a hookup to a wastetreatment system, even where it
is under restrictions by EPA or the State. In conclusion, this puts
the municipality between the proverbial "rock and a hard place."
(See Westwood Forest Estates, Inc v. Village of Souty Nyack, 23 N.Y.
2d 424 (1969) and Charles v. Diamond, 42 A. 2d 232 (1973).
.
[ION

ENV-16
TABLE 7
COST ANALYSIS OF ALTERNATIVE SYSTEMS
System Cost Comment
Mound System $2500.00 (capital) A raised septic system
Aesthetic considerations
Evapotranspiration $2500.00 (capital) Unsuitable during wet
Bed System season when MPN high
Low Pressure Pipe $1500.00 (capital) Unsuitable where -high
System meter table
Aerobic System $5000.00 (capital) Need expert maintenance
Land Application NA Need large land area; does
not treat nutrient
From information supplied by Ocean Acres, one of two package
facilities operating on the Dare beaches and serving a large number
of residences, we concluded that the costs of such systems may
have.increased so substantially as to be extremely expensive, at
least when compared with the regional systems. Because of a parking
law suit with the State involving costs, we felt it inappropriate
to detail this information.
Regional 201 Facility
In 1977 Henry Von Ossen and Associates completed the Dare County
Complex 201 Facility Plan which provided for the construction of
sewage disposal facilities for the Northeastern portion of the County
comprised of the Dare Beaches region north of the Oregon Inlet.
Alternative A which called fora joint project by the municipalities
of Kill Devil Hills, Nags Head and Manteo (together with unincorporated
areas of Dare County) was chosen by all participants.

ENV-17
The total capital cost of the proejct in 1975 dollars was
estimated at $10,611,560. It is anticipated that EPA will fund 75%
of the project in the amount of $7,482,407. The State of North
Carolina will fund 12.5% of the nonfederal portion of the marine _
site survey for the ocean outfall and an additional 12.5% of the
capital costs. The participating governments will have to fund 12.5%
of the non-federal share. -The annual costs for debt service, operation
and maintenance will be paid for by means of user fees. It is
anticipated that the local share of the marine site survey will be
paid out of the general funds of each municipality. The collection
system will be provided totally out of local monies.
TABLE 8
PROJECT COST 1980 DOLLARS
Capital Facility and Interceptors:
$17,090,024.00
Total Project Cost
Less: EPA Grant (75%) $12,817,518.00
Water Bond (12.5) 2,136,253.00
Local Share of Capital Costs
2,136,253.00
Annual Debt Payment (FMHA loan
at 5% for 40 years)
123,903.00
Annual Operating and Maintenance
417,815.00.
ofi tal—Annual Cost
541,718.00
Monthly local costs
45,143.00
Average Monthly Cost Per User
4.10
(Based on 11,000 units)
Collection System: '
Total Project Cost
$ 6,000,000.00
Less: Water Bond"Grarni (25%). 500,000.00
Connection Fee ($250) 916,667.00
Local Share of Costs
4,,0 .00
304,50.00
304
Annual Debt Payment
Annual Operating and Maintenance
50,000.00
Total Annual Cost
354,500.00
Monthly local costs
29,547.00
7.00
Average Monthly cost per User
Total Monthly User Cost
11.10
Plus one time installation fee of $250.00
85

ENV-18
Water System: Kill Devil Hills
.The present water system in Kill Devil Hills was constructed in
1964. Average daily water pumped during peak months is 950,000 gallons
per day. Population peaks during this time were as high as 13,433.
The source of water for the Town is a fresh water pond and shallow well
fields.
The Dare County Regional System is nearing completion and will
soon be the supplier of water to the Dare Beaches. A 1,000,000 gallon
elevated storage tank and a l,000,000 gallon ground reservoir at the
treatment plant site will store water from a series of wells into the
primary aquifer on the Roanoke Island. Existing storage tanks and a
newly provided tank will supply more than adequate storage for Kill
Devil Hills. Estimates of peak water needs for Kill Devil Hills are:
1980, 973,665 gpd; 1990, 3,305,169 gpd. The 5 MGD present design
capacity will meet the present needs of the Town. The projected ex-
pansion of the system to 8.4 MDG. in 1990 should be adequate to serve
Kill Devil Hills at that time.
4 � �
9

ENV-19
In conclusion, Kill Devil Hills relies on groundwater system, .
especially the surficial quifer, for its drinking water. This part of
the aquifer is sensitive to groundwater pollution, especially from
septic tank effluent. The ability of soils to remove wastes from the
septic systems varies with soil type. Kill Devil Hills has a consider-
able amount of poor soils with limited capacity in this regard. Because
the regional water system is expected to be in operation very shortly,
the Town's reliance on surficial aquifer will be relegated to only a
back-up for the regional system which will use the "principal aquifer."
When the regional system (water supply) is operating, the Town's
major concern with wastes placed in or on the ground will be with the
effect such.wastes will have on animal and plant life, especially in
those areas where such life is significant and/or of high qualty and
where the wastes would endanger the survival of the species. The two
most environmentally significant areas are the freshwater and the sound.
These systems both center around water quality. Nutrient loads (from
septic systems) could make demands on dissolved oxygen, removing it from
the water. Without sufficient oxygen most plants and animals cannot
survive. Between State and local regulation, the Town has achieved
some setback from the sound and protection of water source. -But more
is needed.
In order to protect the water quality of the sound, the Town must
limit nutrients and pathogens from reaching that water body. Studies
on the movement of.pathogens show that they can travel up to tens of
feet per day and live for 30 days in poor soils. Pathogens are directly
related to shellfish closings.
It
m

ENV-20
If pollution of the sound is unacceptable, which the Town has
decided it is, then the alternatives are either to restrict growth to
a limit (density) that will not cuase po.11ution (density was one of
the factors cited as a Junction of pollution in Nassau and New Hanover
studies) or to technologically remove the limitation, by building
sewage treatment facility -regional or several small package facilities)
or using mounds, aerobic systems, etc. The most cost efficient,
technological alternative appears to be a Regional 201 Facility. The
Town has decided to limit development on poor soils as an interim
measure until a technological approach is adopted, at which time
limitations will only apply to areas within 500 feet of the sound.

ENV-21
Sources for information in this section:
Soils
Soil, Survey of the Outer Banks, North Carolina. U.S. Department of
Agriculture, Soil Conservation Service. June 1977. Part I
discusses soils and limitations. Part II presents soils mapping
units.
Quality of Albemarle Sound
Hydrology of Major Estuaries and Sounds of North Carolina. U.S. Geological
Survey, Water Resources investigations, by G.L. Geise et al., 1979.
(especially Chapter IV, pp. 129 ff.)
Bowden, W.B. and Hobbie, J.E. 1977,,Nutrients in the Albemarle Sound,
North Carolina: University of North Carolina Sea Grant publication
75-25. ,
Water Quality Management Plan of North Carolina. DNRCD, Division of
Environmental Management, 1979.
Water Quality Inventory, North Carolina: 305(b) Report. DNRCD. 1799
especially sections on Chowan River)
Groundwater System
Heath, R.C. Hydrology of the Albemarle -Pamlico Region, North
Carolina, 1975.
Nelson, P.F. Geology and Groundwater Resource of the Swann Quarter
Area, 1964.
Peak, H.M. Potential Groundwater Supplies for Roanoke Island and the
Dare County Beaches, North Carolina, 1972. 1 1.
Dare County Complex; 201 Facility Plan. Henry Von Oesen and Associates,
1977.

ENV-22
Water Quality
See DNRCD and Von Oesen reports cited above.
Septic Systems
See DNRCD report. Section: Water Quality and On -Site Wastewater
Disposal.
Report of Sanitary and Bacteriological Surveys, Roanoke Sound Area,
2/77-10/78, 1/15/79. (See especially Reports H1, I1 & 2, I16)
Waste Source and Water Quality Studies, Surf City, N.C., U.S. Environ-
mental Protection Agency,1975.
An Analysis of Septic Tank Problems and the Vertical Separation
Issue in the Coastal Zone of North Carolina, Joseph H. Prater,
Conversations with Al Duda, J.F. Smith, Roy McCarter
Sewage Treatment Alternatives
See Von Oesen report cited above.
See also Prater report cited above.(alternative systems).
Conversation with Robert Burnett of Von Oesen and Associates
.e

CONSTR-1
CHAPTER IV
OTHER ENVIRONMENTAL CONSIDERATIONS:
CONSTRAINTS
A. BEACH DYNAMICS
Scientists believe that the Outer Banks were a product of the
rising sea elevation during the last ice age. Basically, as the sea
level rose, the shoreline retreated until the shoreline was out near
the continental shelf. Then, a ridge of sand dunes began to appear
parallel to the beaches, formed by wind and tide. The beach received
sand from the continental shelf through wave action. As sea level
rose, dunes were breached and the area behind the ridges became flooded --
the dunes became islands. Since then, both the mainland and the islands
have migrated. Migration is related to sea level rise and the slope of
the mainland. Accordingly, the horizontal island migration rates should
be 100 to 1,000 times the rate of sea -level rise (namely 1 foot per
century). The rate of migration is higher in the northern Outer Banks
than the southern. The North Carolina coast experiences a much slower
migration than we find in New Jersey or Maine.
The process of migration is not uniform, although most of the ocean
beaches are eroding. The back sides of the islands can widen. The
principal ways in which islands widen are (1) inlet formation and the
forming of tidal deltas and (2) overwash. The maintenance of the bulk
91

CONSTR-2
of the island is through vegetation and retention of the sand. Habita-
tion and the natural process favoring island stabilization are at odds --
development seems to require stabilization of inlets, prevention of
overwash and reduction in vegetation.
The methods used to stabilize the ocean beach include: (1) beach
replenishment (2) groins and jetties and (3) seawalls.
Beach replenishment involves pumping or plowing sand onto the beach
and building up the former dunes and upper beach. According to Orin
Pilkey, most beach replenishment projects involve only the upper reaches
of the beach --since they increase the slope of the beach, they increase
the rate of erosion. Most sand for beach nourishment is taken from
the sound, thus often increasing erosion on the beach side of the island.
The costs of replenishments are high (over $1 million to replenish
Wrightsville Beach in 1966) and the results very temporary.
Groins and jetties are walls built perpendicular to the shoreline.
Jetties are often very long and intended to keep sand from filling in
shipping channels. Groin§ are smaller and attempt to trap sand flowing
in the littoral current. Although both are effective sand traps, they
both work on the principle of "stealing from Peter to pay Paul," i.e.,
beaches upcurrent and downcurrent from groins will erode as the groined
beach accretes.
Seawalls are built back from and parallel to the shore. Seawalls
reflect wave action, and intensify currents steepening the profile of the
4 beach. The long-range effects of seawalls can be seen in New Jersey
and Florida. Pilkey relates a story of Cape May --once a sandy beach
resort of pre civil war presidents and the country's most prestigious
beach, now beachless, blockaded by a mile -long crumbling stormwall--a
92

CONSTR-3
community nearly "financially insolvent" and in fear of being submerged
by the tide.
The Dare County Beach from South Nags Head to Kitty Hawk has recently
experienced severe erosion in several spots following northeastern storms
in late winter. This year, several houses were damaged as their founda-
tion gave way on steep escarpments. Several others have been moved back
from the ocean to prevent.damage.
The ability to withstand a hurricane will to a large degree be a
function of the mossin storage in the frontal dunes and the provision
for overwash. Overwash areas are necessary to replenish the marshes
and reduce the pressure on the dune system. On the other hand, a solid
(high and broad) dune system is necessary to protect beachfront and
nearby low elevation cottages. Prior to 1977, a large number of
developments in Nags Head and Kill Devil Hills had removed primary
dunes in front of their businesses and cottages. These areas and
others where sand has moved following sand disturbance and lack of
vegetation are in danger of becoming overwash areas and breaking points
in a hurricane. Although future oceanfront developments are prevented
by CAMA from disturbing the frontal dunes, the many already existing
problem areas need to be identified and repaired.
Finally, areas that are extremely low in elevation are subject to
overwash during a hurricane. This problem is aggravated to the dimensions
of inlet formation possibilities where channels have been dug parallel
to the sound, with the land contour on a narrow stretch of the island
not protected by tidal deltas and marshlands. One such potential inlet
can be readily identifiable, namely The Cove. Damage from inlet
formation in this area could be more significant than the extreme loss
93

CONSTR-4
of property (several hundred homes are built in the subdivision and
several hundred more,possible), Losses could include separation of
'r
Northern Nags Head and Kill Devil Hills from Dare County Mainland, with
attendant costs for new transportation to Manteo. It would seem prudent
to explore possibilities for filling in the canals. (We should note
that canals are frequently blamed by scientists for causing pollution
of estuarine waters --each lot is technically within short distance
to sound).
In terms of building on the Dare beaches, we recommend identifying
and preserving several overwa,sh areas, building up and vegetating the
dunes. 'Secondly, we feel that those uses that are least likely to
result in the necessity of a seawall to protect investment should be
encouraged within 100 feet of mean high water on ocean. Also, uses that
are allowed within the first 200 feet should involve an amortization of
the use, such that the use will not remain after a certain time calcu-
lated to include the beach's migration. Thirdly, we concur with Pilkey
in his recommendation that development be placed back from the shore,
behind the dunes and on high ground.
94

CONSTR-7
g. AREAS OF ENVIRONMENTAL CONCERNS: TYPES ISTANDARDS, USES
Areas of Environmental Concern (AECs) are areas designated by the
State to be of special environmental or natural resource concern so
as to warrant protection of the resource or of man from the resource.
Kill Devil Hills has several AECs; other areas could qualify for -
nomination. AECs are protected through State permit letting (the CAMA
permit: the minor permit is issued by Kill Devil Hills under an IGE
Program for activity or development in the ocean hazard and f
shoreline AEC; the major permit is issued by the State). In'any event,
each AEC permit must follow the general standards set out in the
statute as well as regulations developed to guide development in the
designated area in accordance with the management objective. The
statutory standards require development within AECs to be consistent
with the land use plans.
Among the AECs in Kill Devil Hills are the ocean erodible area,
the V zone or flood zone, the estuarine shoreline area, the wetland
and the fresh water ponds. The first areas are part of the ocean
hazard AEC, the next two of the Estuarine System AEC. The ocean
erodible area is a safety zone and intended to prevent further develop-
ment in areas which will probably be under water in the next 30 years.
The zone protects persons from building follishly; it also may protect
persons living outside the eroding area from being damaged by those in
the area. The area is measured by multiplying the average annual
erosion rate times the estimated life of the structure, 30 years, plus
the one hundred year recession line. 'This measurement ranges.from 60
to 120 feet, with the higher rate in the -northern section of Town.
95

CONSTR-8
The V zone is the flood hazard zone as determined by the Federal
Flood Insurance Program. This is the. area likely to be inundated by
the 1% storm. This area has been depicted on the Flood Hazard map; it
follows the crest of the frontal dune where the elevation exceeds
15 feet in the ocean front; otherwise it reaches to SR1243. Develop-
ment is restricted in this area to design standards set out in CAMA reg-
ulations, stated simply to building above flood elevation.and with 8"
diameter pilings to a depth of 4 feet.
The estuarine shoreline zone extends from estuarine water (mean
high water mark) to 75 feet. The major concern of this zone is for
protecting the estuarine §ystem from pollution --both sedimentation and
'nitrification. Regulations severely limit the use of septic systems
and removal of ground cover.
The wetland zone is defined by the presence of commonly found
vegetation, particularly spartina and juncus. The wetlands are
recognized as important to the food chain and the estuarine system.
They are protected from development through limits placed on filling.
Water related Activities such as marinas are restricted by dredge and
spoil placement requirements.
The fresh water pond is a municipal water source for both Nags
Head and Kill Devil Hills. In order to maintain the quality of the
source, the State has designated the area as an AEC and regulates
development to prevent contamination of the water. Regulations require
a setback and density requirement not to be exceeded in the use of
septic tanks.

CONSTR-9
The full management objectives together with the regulations are
set out in the State Administrative Code at 15NCRC7H. Further in-
formation can be obtained from the CAMA permit officer for the Town.
Areas of Environmental Concern and Land Use Plan
An overlay of the zoning 'ordinance with the AECs show that in the _
Ocean Hazard Area the following zones occur: RA3, RA4, RA5 and B.. In
the RA districts single and multi -family dwellings are allowed, also
schools, clubs, churches, parks, playgrounds, home occupations, and
guest houses. In the RA3, RA4, RA5 zones, these uses are expanded to
include hotels, motorcourts, and auditoriums. The Town intends to
redesign this zone during 1980-1. All permitted uses within the RA3
zone must be bulkheaded (seawall) to tie in with adjoining property
owners (at 26 feet from property line on road). Standards are set
defining the construction of the bulkhead and the use of pilings.
The Town notes that in the Estuarine Shoreline Zone the dominant
permitted use is RA6 (single family, basic RA uses). The small ex-
ception are for two existing marina and boat access areas (one owned
by State and one commercial, including a restaurant) which are zoned
B. The Town has zoned the area in the Fresh Water Pond AEC and the
Wetlands RA6.
The zoning ordinance is consistent with zoning and AEC or Land
Classification in that the ordinance only establishes permitted uses
which could occur provided State laws and regulations which are more
restrictive can be complied with. An application of State AEC re-
OF
quirements for wetlands, for example, would result in a complete re-
striction on residential development in this area (although the State
97

CONSTR-10
regulations are, of course, development standards and do not eliminate
the use cost only the technical means by which the use can be created).
Such a result is not inconsistent with the zoning.
In.a municipality where a zoning ordinance exists, the Town cannot
eliminate uses from an established zone without redistricting and
creating a new zone. Therefore, unless the zoning boundary is iden-,
tical with the AEC or land.classification, the uses for the zone will
not be identical with the land classification and/or the AEC. Hence,
the uses- appropriate for the latter are the uses permitted by the
former.
Kill Devil Hills proposes to redraw boundary lines for zones in
keeping with natural features and constraints and set permitted uses
for each zone during 1980-81. This should result in 'a "beachfront-
erosion zone and a "wetland zone" and a zone to protect the "water
source." At that time, it is anticipated that motels`and immovable
structures will be eliminated from the first, development .of any sort
will not be permitted in the second and real residential use will be
regulated by density in the. third. The Town has no plans to make
special restrictions on uses for the estuarine shoreline zone.
98

loowwvler
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ZONING MAP
TOWN OF
KILL DEVIL HILLS
DARE COUNTY, NORTH CAROLINA
Kc. Im
REVISED MAY, 1979
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CONSTR-11
C. ENVIRONMENTAL AND AREA CONSTRAINTS:
FRAGILE AREAS AND HAZARD AREAS
In order to determine land areas suitable.for development, one
needs to assess the major constraints to land development. Constraints
arise from a desire to protect water supplies from contamination, to
preserve w etlands, to protect property (and property values), to save
lives, to protect wildlife, etc. Some of these values are established
by the government and some by the private sector. The following en-
vironmental factors are treated as fragile resources. or hazards wherein
man and nature need to be protected from one another: water bodies,
and water supply areas, wetlands (especially coastal wetlands, steep
slopes (especially sand dunes, frontal and soundside), parks and recre-
ation areas, woodlands, prime and unique agricultural soils, unsuitable
soils for on -lot sewage disposal.
1. Lakes and Ponds. Lakes and ponds play an important part in
the hydrological cycle --the circular path which water takes as it
falls in the form of precipitation, penetrates into groundwater re-
serves, collects in water bodies and low areas and is evaporated by the
sun or transpired by plants into the atmosphere.
In Nags Head and Kill Devil Hills area the fresh water ponds in
the Nags Head Woods and the wetland areas therein collect rainwater
directly and indirectly from soils in nearby land areas (the Woods).
Water falling onto the ground seeps into the high water table and
appears (in places) to be connected to the water quality of the Fresh
Water Pond, the municipal water source (at present) for Nags Head and
Kill Devil Hills.
r

CONSTR-12
Water is a natural constraint to development. Land areas near
water bodies and which drain into them directly or indirectly via the
groundwater (surficial aquifer) should be a constraint.
2. Wetlands. These areas provide a wide variety of functions.
Wetlands recharge groundwater reservoirs; act as a sediment and nu-
trient trap in which eroded soil and wastes are filtered out naturally
from water destined for human use;.retain flood water during heavy
rainfall; act as plant and wildlife habitats and provide the life -
cycle for wildlife. The wetlands on the Nags Head and Kill Devil Hills
soundside were determined to be an intricate part of the Dare County
economy as many species of fish and wildlife spend at least part of
their life cycle there. Coastal wetlands, regulated by CAMA as an AEC,
and hence constrained, are defined as any marsh subject to at least
occasional flooding by the tides. Most marshland adjacent to Nags Head
and Kill ' Devi 1 Hills is typified by the presence of Sparti ne al ter-
niflora, juncus romericanus or scirpus spp.
Land uses in'or adjacent to wetlands should be limited to con -
nervation uses.
In mapping wetlands, we attempted to identify areas according to.
the guidelines and descriptions set out under Wetland AEC under CAMA.
Interpretations were made from aerial photos. These interpretations
were checked with other work done for the Town using different scales.
3. Flood Hazard Areas. The cost of property loss from floods and
the cost of flood protection devices are so high that flood hazard
areas are best treated as areas on which industrial, institutional'; Y
residential and commercial buildings should not be constructed. If,
however, this action cannot be taken, development in these areas should
100

Jdl'.►�
i
AMENDED
FLOOD HAZARD AREA ZONING MAP
TOWN OF
KILL DEVIL HILLS
DARE COUNTY, NORTH CAROLINA
DEC. M
REVISED MAY, 1979
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CONSTR-13
be permitted only in accordance with the requirements of the National
Flood Insurance Program. The boundary used to delineate the flood
hazard area is the 100 year flood plain. We mapped both areas desig-
nated as subject to high velocity winds and storm surge and the A zone,
referred to above. We note the CAMA ocean hazard zone compliments this
area (its regulations are described in AEC section). Kill Devil Hills
cooperates in the flood hazard program. Although flooding is a con-
straint that in many places prevents development, here it is not.
In accordance with the flood regulations residential construction is
permitted where adequate flood avoidance measures have been taken,
namely living quarters must be above the flood elevation, efforts must
be taken to design sewage treatment system to make them flood proof.
No development is permitted in the V zone. See map of flood areas.
4. Steep Slopes. Development on steep slopes accompanied by a
disturbance of ground cover is a major cause of erosion. Almost all
steep slopes in Kill Devil Hills are on the sand dunes. The dunes
reach as high as ninety feet above sea level, although a number of
dunes are in excess of forty feet. The shape and slope of the dunes
are constantly changing. Most of the unvegetated dunes are moving in
a southwestern direction. The ridges usually twist direction as they
move. Moving sand dunes are a hazard which persons should consider
prior to buying property. The soundside dunes have been mapped. The L
district (Town zoning ordinance) offers some protection from this -
hazard as it promotes mobile uses. Development on the dunes is unwise
as shifting sand makes a poor foundation for roads and even for houses.
Development on dunes above 35 feet may be especially hazardous during
storms, due to higher wind velocity and less protection from man-made
101

CONSTR-14
and natural features. We have mapped these areas using aerial photos
and transfering reductions in topographical maps prepared for the
Town.
5. Woodlands. The natural vegetative cover for most of the inner
area is forest. Forests improve the macro -climate and are a major
balancing effect upon the water regimen --diminishing erosion, sedimen-
tation, flood and drought. The scenic role of woodlands is apparent,
as is their provision of a habitat for game. Woodlands offer substan-
tial potential for recreational use. The forest is a low maintenance,
self-perpetuating landscape. Forests can be employed for timber pro-
duction, water management, wildlife habitats, as airsheds, recreation or
for any combination of these uses. Woodlands can be constrained by
zoning ordinances and the marketplace. Often woodlands, although ex-
tremely important to the ecosystem, are not adequately protected.
6. Poor Soils for On -Lot Sewage Disposal. This constraint was
fully discussed in the section on "Environmental -Considerations Re-
lating to Water and Sewer." We have mapped all areas identified by the
Soil Conservation Service as severely or very severely limited for the
use of septic systems.
7. Recreational Areas, Historic Areas. Kill Devil Hills has a
major public park -and historic site, namely Wright Brothers Memorial.
The Town has a significant number of historic dwellings of 30 to 60
year houses along the beachfront.
8. Prime and Unique Agricultural Land. There is no land currently
being used for agricultural purposes within the Town of Kill Devil
Hills.
102

CONSTR-15
i
9. Mining Areas, Other Industrial Sites, Commercial Fishing and
Fisheries. These uses are of only limited importance within the Town
limits. The Town recognizes the importance of these uses in neigh-
boring areas for serving residents and visitors to Kill Devil Hills.
The Town currently has a cement plant, its one industrial use. Plans
are for gradually phasing out this use.(a non -conforming use under the
zoning ordinance). Fisheries are not permitted under the zoning or-
dinance. The Town is cooperating in preserving these uses by taking
measures to insure the quality of the Sound. (See Environmental Con-
siderations Relating to Water and Sewer.)
10. Developed Areas. Areas already developed by residential,
commercial or industrial uses are not available for further development.
Furthermore, transportation uses eliminate roads and. right of ways.
Redevelopment is not likely within the planning period. Developed areas
are mapped on the existing land use maps. Uses depicted on the
map were labelled so as to distinguish certain sets of uses from other
sets of uses, i.e., commercial (non -housing or residential uses) from
motels and residences, residential --single family and multi -family from
residential and commercial housing of high densities, such as motels and
cottage courts. The combination of uses is helpful in identifying con-
flicts caused by high densities of people and uses of automobiles.
Additional uses are identified on work maps so that further subsets are
possible.
11. Zoning. Zoning is a partial constraint to development. Where
the density of development is historically less than that provided by
the zoning ordinance as where historically the Town has developed on
103

CONSTR-16
half acre lots and the zoning of the undeveloped land is at one acre,
then.you have a constraint.
Implication of Building Constraints
The interpretation of the environmental factors provides a basis
for identifying areas where future development should occur. (See
Carrying Capacity section.) Absolute constraints to development such
as developed area, wetlands, streams, lakes, ponds (especially if they
are water supply), development of interior lands, and developed areas
when overlayed are dark in shade and should be completely removed from
possible future development. Partial constraints, such as Woodlands,
poor soils for septic systems, steep slopes (dunes), AECs (not wet-
lands), must be accounted for in terms of development prevented. This
is a function of the degree or percentage to which development already
attracted and not otherwise absolutely constrained can be accommodated.
Computations are set out in the section on carrying capacity.
The maps showing all constraints are attached following this
section. These maps have been reproduced on a single page for illus-
trative purposes. The actual scale of the maps is 1" = 800'. We have
included these maps where the plans are intended for use by persons
needing a very detailed scale. (Land classification map reproduced
elsewhere.)
i
104

CONSTR-17
D . THE WOODS
The Nags Head Woods extend along the southern portion of Kill
Devil Hills. The Woods is an important natural feature consisting of
marshes and hammocks, bay forest, ridge ponds and other wetlands,
forest and dunes. During recent years the Woods have been developed.
Private developers have subdivided the lots, built roads and sold some
of the lots. One large development Ocean Acres has built on the
southernmost property; recently it extended its already developed sub-
division (in the Woods) to the bay forest and marshland. Ocean Acres.
advertizes large home sites and attracts a large portion of year round
residents. The subdivision is served by a 600,000 GPD package plant
for waste treatment.
The Woods is important from a naturalist point of view in that it
contains species on the rare and endangered list; it has unique tran-
sition areas. The Woods was also the homeplace of the area's first
settlers, thereby giving it historical significance. Development in `
the Woods near or in the path of Run Hill or other large unvegetated
dunes may be unwise. The dunes are moving in a twisting southwesterly
direction and could bury houses and other structures in its path.
Various efforts have been made to protect the Woods from large
scale development. However, at the present time the tracts still
undeveloped lie either in private hands and were approved for sub-
division, or are owned (options included) by Nature Conservatory.
The existing subdivisions in the Woods are not unlike those of Southern
Shores, i.e., much vegetation remains, roads.follow contours and little
cut and fill is widened. We suspect that the developer will have
105

CONSTR-18
trouble retaining the small ponds in that too much vegetation around
th en.appears to have been removed. The unfortunate aspect to this
development is not its style, for it has class, but the destruction of
several of the most important aspects of the environment, particularly
plants and wi 1 dl.i fe and the fresh water ponds and wetlands ( not coastal
wetlands). The consultants felt that if the Town had a PUD ordinance
they could have allowed development and yet preserved some of this en-
vironment (and perhaps discouraged access to the rest of the Woods).
Kill Devil Hills has strongly opposed PUD development because they find
the higher densities resulting from such development inconsistent with
their desire to promote the family beach atmosphere.
In 1974 the Woods were designated as a National Natural Landmark.
Designation in this program is similar to that under the State Registry.
Through dedication the federal government recognized that the area has
significant natural features and indicates its desire to see these
features protected. Implementation of this policy is two -fold: the
federal government enforces the policy by discouraging development.
Reportedly FHA and VA loans for the sewer system were denied developers
desirous of building in the Woods. Also, the policy is enforced having
landowners within the designated area "register" their property, ac-
knowledging its uniqueness.
'The Nature Conservatory currently owns about 227 acres in the Woods,
all in Kill Devil Hills. Most of this property 1 i es near Run Hill, a ,
large unve�etated dune. On the property map these tracts are the seven
tracts near Ocean Acres subdivision. The Nature Conservatory intends
to manage the property for educational use and low intensity recreation,
106

CONSTR-19
such as walking. It is not expected that hunting, fishing and camping
will -be allowed on Nature Conservatory property.
Note: In designating conservation areas the Town set aside
wetland areas. It did not feel it.was appropriate to single out proper-
ty owned by non-profit corporations or single individuals who may
currently desire the property be used for only conservation type uses.
107

TRANS-1
CHAPTER V
CAPACITY OF MAN-MADE SYSTEM:
TRANSPORTATION SYSTEM
The Dare County beaches are.very sensitive to problems arising
from their transportation network. As Mayor Bryan stated at the
joint meeting of Kill Devil Hills and Nags Head with Planning officials
from the N.C. Department of Transportation, "They (the tourists) are
our bread and butter. We must be concerned about their safety." The,
problems of the Town of Kill Devil Hills are two -fold: one, the
capacity of4the bridge systems to handle an evacuation prior to a major
storm or hurricane, and two, the ability of the bypass (and Beach
Road) to move traffic from the Kitty Hawk area to Whalebone Junction
(where NC 12 and 64 meet) efficiently and safely.

TRANS-2
A. HURRICANE EVACUATION
The problems associated with hurricane damage appear more critical
than those of an overcapacity highway system. A successful evacuation
in the face of Camille was earmarked to have saved 50,000 lives. 6,000
persons lost their lives when a hurricane hit the Texas coast in 1900.
Hurricanes are a fairly frequent occurrence on the Outer Banks of
North Carolina. Orin Pilkey notes that there is an 8% probability of
having a hurricane striking the Dare beaches. The Dare beaches have been
spared significant hurricane activity since the 1950's, when nine
hurricanes struck the coast, two of the more noteworthy being Diane and
Hazel. The Dare County beaches were relatively undeveloped during the
major hurricanes of the 50's. In 1954, Hazel extensively damaged one
of the few developed beach resorts at that time, Wrightsville Beach,
destroying 89 buildings and damaging 530 (only 20 escaped intact).
Storms along the Gulf Coast suggest that winds will topple tall build-
ings (motels) and floods will wash away buildings that are not built
above storm surge or properly fastened. In any event, during a hurri-
cane most persons will have to abandon their cottages or homes and
seek shelter on the mainland or in hurricane shelters.
In the event a hurricane were to strike the Outer Banks during
tourist season, approximately 100,000 to 150,000 people would have to
be evacuated through Dare County. The reason for this is that the entire
population staying from Corolla in Currituck County to Oracoke in Hyde
County (both on the Outer Banks) must pass through the Dare beaches to
reach the mainland. The two evacuation routes are Route 64 West from
Nags Head through Kill Devil Hills to mainland in Currituck County.
109

TRANS-3
Before discussing the capacity of the evacuation system, let us
consider the shelters that are available. The Dare County Hurricane
Evacuation Plan notes that Dare County shelters are extremely limited.
Of the 32 shelters available, most can accommodate only between 50 and
300 people. Many of the stations may not be usable at all because
of conflicting use for housing fire and emergency vehicles. The total
capacity of all shelters is probably less than 3,500 people. Some
shelters are not built to flood standards, let alone hurricane. Some
private sites, particularly the Villas and Dunes Condominiums may offer
suitable shelters.
The evacuation system has several problems. Route 64 West, which
goes through Manteo, involves three bridges (one on the intercoastal
waterway) and one causeway before reaching mainland. It is two lanes
and because of its many long causeway and bridge sections, would not
tolerate traffic along the shoulder. Route 158 North, which goes to
Elizabeth City involves two bridges, one a drawbridge on the inter -
coastal waterway. It is two lanes on the bridges, although there are
plans to four lane north of the bridge over the Currituck Sound. The
causeway from Manteo to Nags Head on Route 64 is subject to frequent
flooding and has become impassable during minor storms. Much of the
mainland route through Tyrrell County, which is extremely unpopulated,
with only two small motels,) s subject to flooding. Neither however
has flooded prior to past hurricanes striking. •
Pilkey suggests that a proper elevation for surviving a hurricane
is about 15 feet. However, heights in excess of 30 feet or unvegetated '
sites may also be a problem. Flooding will occur from the sound as well
110

TRANS-4
as the ocean. A major hurricane may cut inlets through the Dare
beaches; especially vulnerable areas may be near the 64 causeway, through
the Cove subdivision and north of Kill Devil Hills. This possibility,
together with the absence of housing in suitable."hurricane proof
locations; suggest a complete -evacuation is advisable.
The ideal summer evacuation could count on moving all evacuees over
a 48 hour period over the two evacuation routes at maximum capacity.
According to Department of Transportation estimates, the maximum
capacity of the road systems is limited by the bridges to 22,000
vehicles per day per each road. This is based on the premise that
both lanes of traffic would be used in a one-way direction. No
allowance will be made for emergency vehicles (except those that are
already east of the bridges desiring to go west). Thus it assumes
no wrecks or breakdowns --no need for ambulance or wreckers. Working
at full capacity, with an average population of four per car, the
entire population can be easily evacuated.
There are certain problems. From observations about the evacuations
in Carmen and Camille, and insights from Pilkey, we note that the Carmen
evacuation was fraught by an accident which tied up traffic for 19
miles. `Pilkey reminds us that people do not act normally in emergencies.
He observed that "excited drivers will cause wrecks, run out of gas,
have flat tires." Furthermore, conflicts will develop over use of
the draw -ridges. Not only will people in cars be seeking safety, but
also so will people in boats. In addition, we should expect that
many people will try to salvage personal property, driving off the
second car brought to the beach, towing campers and boats. Similarly,
ill

n
TRANS-5
commercial vessels and persons with large sports craft will be seeking
inland harbor for their vessels. The next result will be a demand to
open the drawbridges and.a low occupancy in vehicles with a poor flow
rate. Add to this the likelihood that only a small percentage will
evacuate during the first 48 hours (after all, relaxing a week at the
beach has required a substantial outlay in costs which will not be
parted with easily) because they fail to realize the danger and are
skeptical from lack of past experience. Finally, we must consider
the possibility of one of the bridges being damaged from collision by
a boat that couldn't hold a course in rough waters, and the possi-
bility that flooding will eliminate the use o_f the causeway to Manteo.
We would like to look at capacity with altered assumptions.
First, let's assume:
(1) Only 25% of the people will evacuate in the period 48 to 24
hours before the storm is forecast to arrive.
(2) Average number persons per car will be two.
(3) One-way systems will be used.
Then, capacity is as follows:
Shelters
Residences (high ground)
48-24 hours leaving over
64 & 158
24 hours to storm over
64 & 158
Total Capacity
(10,000 people)
3,500
1,000
25,000
88,000
117,500
Now if an accident occurs on one route during 48 to 24 hours, no
problem. However, within the last 24 hours, capacity may be sizably
reduced because the one-way system will not allow for easy removal of
wrecks. Presuming one lane were eliminated for half the time period,
capacity would be reduced as follows:
s
112

- -- TRANS-6
Wreck one-way system - 12,000
Total capacity 105,000
If instead, Route 64 was lost to flooding during last 24 hours,
capacity would be:
Flooding of causeway - Route
64 to Manteo - 44,000
Total capacity 73,500
If capacity were diminished to accept boat traffic at drawbridges,
capacity may be reduced 15 minutes on the hour or 25%.
Less: drawbridge use
for boats - 22,000
Total capacity 85,500
If capacity is reduced by wreck of drawbridge over intercoastal
waterway in Currituck in last 24 hours, capacity would.be
Less: one drawbridge from
damage - 44,000
Total capacity 73,500
In the event of combinations, such as flooding of causeway, and
wreck on 158 North, and conflicts over use of 158 drawbridge, we find:
Wreck - 12,000
Flooding 44,000
Conflict use 11,000
Total capacity 51,500
Or, if wreck of drawbridge north and flooding of causeway west
Flooding - 44,000
Damage to bridges 44,000
Total caaacit_v 29,500
It seems entirely possible to us that there will be a conflict in
use between boats and autos for the drawbridge and an accident as well.
We feel capacity is currently around 80,000. We should note that if a
wreck occurs, a two-way system may have allowed you to evacuate more
cars.
113

TRANS-7
Since we had to evacuate 100,000 people, and our current capacity
is 80,000 we are in excess of capacity. We can take several approaches
to this problem. We can ignore the risks or select a high -risk
scenario. We can seek to alter policy to effectuate an expansion of -
capacity: get a higher percentage evacuation on first day, build more
shelters, make arrangements for use of private structures, floodproof -
the causeway, prevent use of drawbridges.by boats during last 24 hours.
The gains from these alternatives are all calculable. However, in
any event, we can expect that normal growth in the next two years
will render even the ideal situation at capacity. The costs of
removing this constraint are the costs of a new bridge.. Bridge
costs are estimated at $50 per square foot. Two additional lanes to
158 could increase ideal capacity to 162,500--an estimated population
for 1985 for the Outer Banks. Two additional bridges could meet 1990
needs. The Department of Transportation has not studied the possibil-
ity of expanding the bridge systems on 64 or the bridge over the
Currituck Sound on 158.
4
114

TRANS-8
a
a
B. THE THOROUGHFARE SYSTEM
In addition to hurricane evacuation, the transportation system is
called on to safely move persons through and within the Dare beach area.
The current system is not capable of moving traffic; furthermore, its
poor traffic flow presents a danger to the life of its users. Accord-
ing to Ron Poole, Department of Transportation, the bypass is
currently at or beyond capacity. He stated that the average traffic
counts for lag spots in Nags Head -Kill Devil Hills vicinity were as
follows (1978 data expressed in average daily traffic rates). (To
allow for seasonal peaks the Planning Staff suggested using a range
of 2.6 to 2.9 times average daily. An ATR.exists at two points for
the summer months).
TABLE 1
Daily Average Average Summer 2.7
Washington Baum Bridge
7,000
18,900
NC 12
Intersection
3,600
9,720
North
of Oregon Inlet
2,926
7,904
*NH:
158 Bypass south of
Town Hall
5,000
17,500
(158 Business
3,600)
9,720
KDH:
158 at Wright Memorial
8,000
21,600
(158 Business
4,000)
10,800
SS:
158
5,000
17,500
*NH - Nags Head KDH - Kill Devil Hills
SS - Southern Shores
This traffic count squares with personal observations of the
residents. Traffic flows are worse on the bypass and in Kill Devil
Hills near Ocean Acres. Recently, people have resorted to using the
115

TRANS-9
beach road as their bypass. Traffic flows during the summer months are
fortunate if they maintain a 35 mph average.
To place this information in perspective, we should note the
growth in traffic since 1970.
TABLE 2
1970 Daily Average
Washington Baum
Bridge
3,200
NC 12
1,600
North of
Oregon
Inlet
1,700
NH: 158
Bypass
south
2,650
(Business)
2,850
NH: 158
Bypass
at Wright Memorial
2,950
SS: 158
2,200
Traditionally, the Department of Transportation expresses their
information in terms of capacity. The capacity of the beach road and
bypass varies with speed and road width. A typical rate is as follows:
TABLE 3
Standards on Capacity
(Road Width)
(Speed)
24'
22' 20' 18'
16'
35 mph
11,000
9,450 8,460 7,700
7,150
45 mph
7,500
6,450 5,770 5,250
4,500
55 mph
3,000
2,580 2,310 2,110
1,800
■
The capacity of our roads are 7,500 (beach road) and 11,000 respectively. s
The under capacity of this system is not only an inconvenience, it
is a safety hazard. Since 1976, the Dare beaches north of the
116

TRANS-10
1
Washington Baum Bridge have experienced 136 injury accidents with 232
total. injuries. Nearly all of these injuries occur during the tourist
season. One was fatal, 32 incapacitating. The data shows a consistent
increase in the rate of accidents:
TABLE 4
ACCIDENT RATES
No. of Injury
Accidents.
No. Fatal
No. Incapaci-
tating
Visible
Injury
1976
1977
1978
1979
17
27
39
49
0
0
1
0
4
7
9
11
.10
11
17
19
A larger number than usual were rear -end accidents (44.4% versus state-
wide 32.7%).
The outlook for the planning period forecasts that traffic volumes
will reach 35,000 to 40,000 vehicles per day on 158 Bypass by 2000.
In order to prepare for likely influx of people into the area,
the Department of Transportation prepared a long range thoroughfare
plan for Nags Head and Kill Devil Hills in 1973. According to that
plan, DOT intended to handle the future growth (a growth much greater
than they now anticipate for 2000) by building a six -lane highway
with a median. In selecting this alternative, they appeared to consider
several alternatives, including relocating the highway, the use of
service roads and four and five lane alternatives. A new highway
right-of-way was rejected because of the value of land on the beach.
Service roads were rejected because of the high likelihood of accidents
117

TRANS-11
from "helter-skelter" cross movement and the need for a greater road
right-of-way from 150 feet. Four and five lane systems were felt to
be aggravating and inadequate relief. 1979 costs for various road
alternatives are estimated as follows:
TABLE 5
CONSTRUCTION COST ESTIMATES FOR TYPICAL
THOROUGHFARE CROSS SECTIONS
(1979 DOLLARS)
Cross Section
Cost Per.Mile
A.
Four lanes divided with
median --Freeway
$1,850,000
B.
Four lanes divided with
median --Rural
1,025,000
C.
Seven lanes --Urban
1,400,000
D.
Five lanes --Urban
1,050,000
E.
Six lanes divided with
raised median --Urban
1,680,000
F.
Four lanes divided with
raised median --Urban
1,075,000
G.
Four lanes divided with
grass median --Urban
1,100,000
H.
Four lanes --Urban
740,000
I.
Three lanes --Urban
600,000
J.
Two lanes with parking
on both sides --Urban
600,000
K.
Two lanes with parking
on one side --Urban
560,000
L.
Two lanes --Rural
715,000
Diamond Interchange 1,400,000
Interstate Grade Separation 600,000
Bridges. $50 per sq. ft.
Widening for Adequate Lanes and Shoulders -
$ 20,000 per foot per mile +
$350,000 per mile
12.79 CWL
In evaluating the capacity of a six -lane bypass, DOT estimated
that such a road could handle 35,000 to 40,000 vehicles per day if it
had a high standard of development. Without a high standard of
development, the maximum would be 30,000 vehicles. Signalization
r
118

TRANS-12
would decrease capacity. A "high standard of development" was described
by Mr. Newman of DOT to mean control of crossovers, spacing of inter-
sections and limits on commercial entrance and exits. Currently, many
` of the public streets are at intervals of 350 to 400 feet. Measures
directed at controlling commercial access has met difficulties --the
Attorney General's office has written an opinion to a property owner
challenging the Town's restrictions of access to the bypass where
access to other streets exist. According to the Attorney General, the
Town cannot restrict access unless it buys the right of access from
the landowner. Additional methods to increase efficiency of the bypass
include: (1) requiring deep setbacks and designing parking areas with
deep entrances that will allow cars easy exit from the bypass --long
driveways to parking area; (2) keeping heavy traffic users from the
bypass, particularly banks; (3) limiting curb cuts.
The major problems with the six lane system are the unlikelihood
of its being built in the near future and its acceptance by the people
as being in keeping with the family beach atmosphere. Although recently
plans have been made to four and five lane 158 in Currituck County and
to build a bridge over the intercoastal waterway (at a 1980 cost of
$50 million), there is reportedly a scarcity of funding for new
projects. The low priority given to the Outer Banks in the past has
reflected the philosophy that the area is a destination or end point
and is not likely to increase industrial development in the state.
_ DOT planners expressed concern that frustration with immediate problems
might result in the development of alternatives that are incompatible
with long-range plans.
119

TRANS-13
If the long-range objective is to get support for a six -lane
bypas.s, have it prioritized, funded and designed by the state within
the next ten years to serve 1990 traffic flows of 25,000 vehicles/day,
then another problem arises, "what do we do with the traffic flow
until the six -lane road is built." DOT estimates it would take at
least three years to build a six -lane road from the Currituck Bridge
to NC 12. The costs of this road may exceed $30 million.
The short or mid -range alternatives are limited, they include
(1) signalization, (2) one-way pairs, (3) improvements to the Beach
Road. By improving the Beach Road to a 24 foot carriageway, we could
increase the capacity of this road from 7,000 to 11,000. According
to DOT, the costs would include purchasing additional right-of-way.
Signalization is not likely to result in better flow or capacity;
however, it may reduce accidents. The costs of signals average about
$10,000/signal. Converting the Beach Road and bypass into a one-way
pair would increase by 50%, so that as many as 33,000 cars could be
accommodated. (Current level is 27,000, current capacity 18,000).
The costs of a one-way pair system is difficult to estimate, but
DOT projects sign costs at $1,000 per intersection. Problems associated
with the one-way system include potential for accidents involving
pedestrians along the Beach Road and confusion to road users returning
to the old town and not reading the signs. The Beach Road is currently
a.local collector. The road is heavily used by pedestrians going from
their cottages to the ocean. A one way system would increase the speed
on this road as well as the volume --conflicts between cars and walkers'
seem imminent. We should note that the Beach Road is experiencing
increased traffic as a result of the inefficiency and poor flow on the
It
120

TRANS-14
bypass.
Finally, immediate action needs to be taken to alleviate dangerous
flow patterns near Ocean Acres subdivision in Kill Devil Hills. Strong
commercial development has caused a bottleneck in this area.
A traffic flow and time frame should be identified with a short-
range alternative. A time frame should be selected on the long-range
alternative and decisions made for handling growth in the event the
long-range project is not begun in a timely manner.
The Town has set a number of policies dealing with hurricane
evacuation, the Bypass and other parts of the transportation system.
Basically, the number one priority is to increase the current capacity
of the Bypass to prevent loss of life from accidents there and on the
Beach Road. The Town has requested that Department of Transportation
prioritize the 6 lane road set out in the 1973 Thoroughfare Plan.
The Town requests priority be given to increasing bridge capacity and
the mainland. In the event neither policy -results in actions within
a reasonable time, the Town will consider growth control measures.
r
121

HOUS-1
CHAPTER VI
ANALYSIS OF IMPLICATION OF DIFFERENT HOUSING MIXES r
A. MODEL
INTRODUCTION
Citizens and local officials are faced with increasingly difficult
decisions about how land should be used and how much and what type of
development should be allowed. Often they are being presented propo-
sals by individuals, developers, planners, and others for new types of
development that they may not have dealt with before: clustered
single family housing, townhouses, walk-up apartments, and high rise
apartments.
In addition to assessing traditional aspects of development on
the tax base, service levels, and the environment, officials must
analyze the needs of a coastal community dealing with a fluctuating
seasonal population, resident and non-resident demands for recrea-
tional amenities, public access to a limited, sensitive coastal
environment, and non-traditional housing structure of primary and
second homes and temporary shelter (such as motels, cottages, etc.).. y
Coupled with --or more appropriately, in response to --public pressures
and demand for shelter, recreation, and coastal access, is the
necessity for setting forth the policies.which will accomodate
individuals' desires while balancing the interests of the public at
122

HOUS-2
4
large in the local community, including development pattern, tax
rates, and service levels.
General Considerations
Determination of resultant housing patterns involves a variety of
considerations by citizen policy makers and the private individual.
Generally, these include:
(1) the supply and quality of housing and housing types;
(2) taxation policies affecting housing types;
(3) land development guidelines, including the existing
regulatory system and the basis for new ones;
(4) financing of housing purchases; _
(5) competition among suppliers of housing and various
housing types;
(6) the costs of municipal and governmental services (that is,
the public) to the population occupying various housing
types;
(7) aesthetic considerations involving environmental, density,
style, and architectural concerns.
Policy influences exerted (either potentially or actually) on such
considerations involve a variety of interests at local, state, and
federal levels, in addition to private sector concerns primarily of
a financial nature. Relative to the myriad of considerations, local
citizens and officials exert influence on a limited number of factors.
However, local concerns rightfully can and must address the community
development pattern and housing mix, and its resultant effect on tax
y base structure and the degree to which services can be effectively
provided.
123

HOUS-3
Projection of Effective Demand and
Consumer Considerations
Projection of effective demand for housing normally involves
analysis of four major determinants of demand: (1) household forma-
tion, (2) acquisition of second homes, (3) vacancies, and (4) net
removals. Household formation involves the desire of a given popula-
tion, through age attainment, changes in marital status, and other
factors, to secure residential structure. Acquisition of second
homes quite obviously reflects the decisions made to secure through
purchase or rental a residence in addition to the household's primary
dwelling.
The vacancy rate is the ratio of unoccupied units to the total
housing stock, and indicates the degree of pressure of demand for
housing on the available supply. Areas with more or less stable
population provide relatively stable data upon which local citizens
and officials can base decisions about future amounts and types of
housing. Coastal communities characterized by significant seasonal
population shifts can expect that plans for effecting a certain
housing mix may result in higher vacancies in off-seasons and shortages
during peak periods, other factors being equal. Thus it is important
to consider local sentiment weighed against the factors of tax base
structure and service level efficiency in order to achieve an optimal
housing mix best suited to the community.
Net removals involves simply the removal of housing from total
stock due primarily to age or changes in land values.
In addition to the above, other factors also affect demand for
housing. These include construction costs, financing terms, interest
124

HOUS-4
rates, personal income, and homeowner costs. All of these factors
affect consumer decisions to secure housing, although construction,
financing, and interest costs are associated as well with the supply
of housing. During times when construction costs are high and
financing is difficult to obtain, building construction declines.
Pressures to increase the available supply results. Factors of
personal income and homeowner costs deal primarily with the consumer
aspects of housing. A consumer evaluates to purchase a house by
considering his earning power and what the home will cost in terms
of mortgage payments, property taxes, and insurance..
Analytical Framework
The foregoing discussion identifies some of the important con-
siderations which need to be assessed before local communities can
decide on a course of action to achieve a desired community develop-
ment pattern and specifically; its housing mix. Thus far, the
discussion notes some of the different types of housing; that taxa-
tion policies affect housing types and community patterns; that land
development guidelines and housing policies will affect future
housing types and patterns; that population occupying various housing
types will entail certain services and a cost for those services;
that there are aesthetic factors involving appearance and environ-
mental concerns; and that coastal communities are subject to addi-
IF tional pressures involving recreation, shore access, seasonal
4 population shifts, and sensitive environmental factors.
Ultimately, local government must decide the extent of its
influence over development patterns and housing mix in consideration
125

HODS-5
of providing sufficient community services to support current and
future permanent and seasonal populations, and at what cost. Coupled
with this is the.concern for obtaining the revenues to pay those
costs, and inevitably involves the tax base. -
Model Approach
To address these issues, subsequent discussion describes the
adaptation of a model to.aid in assessing the relative costs of
various community types comprised of different housing mixes. The
model involves application of costs to each community type to enable
comparisons. Data and cost factors have been developed by the Real
Estate Research Corporation. Limitations of this discussion pre-
clude the inclusion of the detailed analyses which resulted in the
cost indices. Rather, the model presents a conceptual framework
for discussion of the issues and aids in comparison of relative costs
for different community types. Certain design factors have been
incorporated into the model, and include: design for a community
of 33,000 population; costs based upon 1973 constant dollars; and
a net average of 3.3 persons per dwelling unit.
Assumptions
The model described herein involves the following assumptions:
(1) different housing mixes result in different community
patterns or types;
M
(2) all development produces costs to government, both
initial capital costs as well as operating costs for
services;
(3) different community patterns will entail relative cost
differences for provision of services, all things being
equal as far as type and degree of service provision;
126

NOUS-6
(4) costs can be assessed to each community type in such a
way as to enable meaningful comparisons among the various
community types for.provision of such services.
Study Approach
The model is structured, according_ to the following procedure:
(1) identify different housing types;
(2) consider planned versus unplanned ("sprawl") communities;
(3) group different housing types (to obtain sample mixes)
and development plan types to produce community prototypes
for analysis;
(4) consider various capital and operating costs to produce
cost indices, and apply to each capital or service cost
center for each prototype;
(5) total costs for each community prototype mix, and indicate
government versus private expenditures;
(6) compare aggregate costs for each community prototype.
The section on community cost analysis which follows involves a
description of the model and its components. As noted, costs applied
to the model are.indices and should not be construed in absolute
terms. Rather, they have value in enabling comparisons of the
possible, relative costs associated with different housing mixes
and varying community prototypes.
Summaries are provided for much of the analysis undertaken prior
to incorporation in the model. These are presented in the form of
Ar tables, and display the application of accepted cost indices developed
by other researchers, primarily the Real Estate Research Corporation.
COMMUNITY COST ANALYSIS
Description of Prototypes
Below are identified various housing types and the community
127

HOUS- 7
types which are comprised of different groupings --or mix --of housing
types. Incorporated into the community types are considerations for
both planned and unplanned, or sprawl, development.
Housing Types
(1) Single-family home,.traditional lot --includes standard
primary residential homes, single cottages, mobile homes,
etc. on separate lot; includes seasonal and year-round
use;
(2) Single-family home, clustered --includes same types as 1
above, but grouped or clustered; in this sense, mobile
home parks and cottage courts would also be included here;
(3) Townhouses, clustered --includes groupings of townhouses
which may be individually owned or involve apartment -type
complexes in,townhouse style which are rented;
(4) Walk-u2 apartments --apartment buildings generally two or
threefloors; includes motor inns, motels, and so on;
(5) High-rise apartments --apartments generally six or more
floors; includes hotels and motels of similar design,
condominiums, and so on.
Such housing types developed homogeneously in an area can be
expected to utilize a certain amount of land. Assuming 1,000 units
for each type,(generally described as a "neighborhood"), Table 1
indicates the amount of land required to sustain such a housing
development and its supportive facilities.
Obviously, the same number of units of low density housing will
consume a much greater amount of land than will a relatively higher
density of housing. Also, the lower the density of the housing type,
generally the greater the number of persons occupying each unit will
be, although differences in absolute values are slight.
r
128

HOUS-8
TABLE 1 : NETMBORHOOD LAND BUDGET
-- For 1, 000 Housing Unit
Housinz
Pattern (Aces)
A
B
C
D
E
E
Residential)
Units/Acre
A - Single, Conventional
(3.0)
330
-
_
-
-
66
' B - Single, Clustered
(5.0)
-
200
-
_
-
40
C - Townhouse, Clustered
(10.0)
-
-
100
-
-
20
D - Walls -Up Apartments
(15.0)
-
-
-
66
-
13
E - High -Rise Apartments
(30.0)
-
-
-
-
33
6
Sub -Total
330
200
100
66
33
145
Ooen Space/Recreation b/
45
90
90
73
32
66
r.
Schools 1
Elementary
19
19
17
17
12
17
Secondary
10
10
9
9
3
9
Sub -.Total
29
29
26
26
15
26
` Other Public Facilities 1
Churches
5
5
5
5
5
5
Transportation d/
Minor, Collector and Arterial Streets
75
60
45
30
15
45
Vacant (Temporary) e/
16
16
34
-
-
13
Total
500
400
300
200.
100
300 —
a� Source: Real Estate Research Corporation.
1 Derived from ASPO, Standards for Outdoor Recreational Areas (ref. no. 02-001).
1 Derived from Council of Educational Facility Planners, Guide for Planning Educational Facilities (ref. no. 03-021).
Derived from Urban Land Institute, Innovations Vs. Traditions in Community Development_ (ref. no. 01-138).
5� Derived by subtraction from rounded totals. Little significance to these quantities.
20% each of A-E.
129

HOUS-9
Community Types
When various combinations of housing mix are identified (including
provision for planned versus unplanned development) different community
types will result. For this model, six different combinations are
considered, as described below. -All communities are assumed to contain
10,000 dwelling units.
I. Planned Mix Communit --Consists of a housing mix of 20
percent of each housing type; thus, there are 2,000 units
of each type in this community; neighborhoods are contigu-
ous and large areas of open space are preserved.
II. Combination Mix Communit --Housing mix is the same as I,
but -that 50 percent of the community is constructed as
planned unit developments, with contiguous and related
land uses, while 50 percent is unplanned sprawl develop-
ment.
III. Sprawl Mix Community --Housing mix is the same as I and II,
but development pattern occurs somewhat randomly in a leap-
frog manner, with many small parcels undeveloped with vacant
land remaining.
IV. Low Density Planned Community --Housing mix is 25 percent
traditional single-family and 75 percent clustered single-
family; neighborhoods are contiguous, as in I, but densities
are lower, resulting in less undeveloped vacant land; open
spaces are preserved and land uses are comprehensively
designed and interrelated.
V. Low Densit S rawl Community--Housingmix is 75 percent
Traditional single-family and 25 percent single-family
clustered; small parcels of passed -over land separate
neighborhoods, but no land is left vacant undeveloped.
VI. High Densit Planned Communes --Housing mix is 10 percent
sing e- ami y clustered, 20 percent townhouse, 30 percent
walk-up apartments, and 40 percent high-rise apartments,
housing types are mixed in contiguous neighborhoods; much
vacant land remains; considerable proportions of open space z
are planned, and land uses are related.
Based on the above, communities will show cost variations because of A
the following factors:
(a) differences in housing mix and residential density;
130

HOUS-10
(b) differences in degree of planning, reflected in differences
in land budgets;
(c) differences in timing of development; in planned communities,
housing constructed each year consists of a mix of types,
while in sprawl communities, lower density housing is con-
structed initially and higher density housing is built later
in the development period to fill in passed -over sites;
also, in planned communities, other facilities are constructed
earlier and are stated in larger increments, being phased
according to housing -construction; in sprawl communities,
other facilities are built later, in smaller increments, and
are not -necessarily in phase with housing construction.
Land Budgets
As discussed for each of the housing types in Table 1, land
budgets for each of the community types are also indicated (Table 2).
All six community types contain 6,000 acres. However, there is
significant variation among communities in acreage consumed by resi-
dential uses and open space. Three categories of vacant land uses
are also shown. The degree of community planning is reflected in the
acreage amounts allocated to these three categories, with the passed -
over land resulting in greater amounts of improved and semi -improved
vacant land in the sprawl prototypes. The three vacant categories
can be described as follows:
(a) vacant, improved --contains full complement of minor and
major streets and roads and all utilities; it is considered
fully developed and ready for construction;
(b) vacant, semi -improved --has arterial roads and utility mains
and trunk lines running through it; there are no local streets
or roads;
(c) vacant --contains only major arterial roads; contains no
uti ity lines whatsoever.
Environment
All costs presented in the analysis are based on "typical" terrain
and topographical conditions.
The impact of more extreme site
131

HOUS-11
TABLE 2:
CJ)-a-MtiITY LAND
BUDGJET
Community
Development
Pattern (Acres)
For 10, 000 Housing Units
11
111
1V
V
V1
Combination
Mix
Low
Low
High
Planned
S09 PUD
Sprawl
Density
Density
Density
Mix
50q Sprawl
Mix
Planned
Sprawl
Planned
—' DEVELOPED AREA
1. Residential a/
Units! A cre
A. Single, Conventional
3.0
660
660
660
833
2,500
-
B. Single, Clustered
5.0
400
400
400
1,500
S00
200
C. Ton-nhouse, Clustered
10.0
200
200
200
-
-
200
D. Wall, Up Apartment
15.0
130
130
130
-
-
2D0
E. High -Rise Apartment
30.0
60
60
60
-
-
133
Subtotal
1, 450
19450
3, 4 0
2, 333
3, 000
03
2. Open Space/Recreation b�
660
S30
.400
660
400
660
3. Schools c/
Elementary
170
170
170
170
170
170
Secondary
90
90
90
90
90
90
Subtotal
260
260
260
260
260
260
4. Other Public Facilities d/
140
140
140
140-.0
140
140
S. Transportation e/
Neighborhood R. 0. W.
450
450
450
640
710
300
Expressway
80
80
80
80
80
80
TOTAL DEVELOPED AREA
3,040
2, 910
2,780
42113
4, S90
7; 173
VACANT AREA
1. Improved, Land f -3/
130
180
23S
175
390
90
Improved, R. O. W.
22
33
43
31
69
19
Subtotal
152
213
278
206
459
109
2. Semi -Improved, Land f w
435
878
10320
585
903
310
Semi -Improved, R.O.W.
21
44
70
32
48
16
Subtotal
456
922
113.90
617
951
326
3. Unimproved, Land f /�
2,235
11857
12474
11010
0
3,220
Unimproved, R. 0. VP.
117
98
78
S4
0
172
Subtotal
2,352
19955
12552
1, 064
0
3,392
TOTAL VACANT LAND
2,960
3,090
3, 22D
18687
1,410
3,827
TOTAL COMMUNITY ACREAGE
6,000
60000
6,000
61000
6,000
6,000
Notes:
a/ Source: Real Estate Research Corporation. Extrapolated from neighborhood land budget.
Derived from ASPO, Standards for Outdoor Recreational Areas (ref. no. 02-001).
c/ Derived from Council of Educational Facility aaners, uide for Planning Educational Facilities.
d/ Assumes 10 acres + 1 acre/ 100 pupils for elementary and 30 acres + 1 acre/ 100 pupils for second.
Source: Real Estate Research Corporation.
e/ Neighborhood right-of-way acreage extrapolated from neighborhood land budget. Expressway right-of-way
width is 220' for a three mile length.
t/ Vacant Areas - Total Acreage I II III IV V VI
Vacant Improved
% of developed acreage 5% 7.59E 109 S% 10% SSG
Vacant Semi -Unproved
!G of developed acreage 1S96 32.5% 509 1S9 Balance M
of 6, 000
Vacant unimproved
% of developed acreage
$/ Vacant Areas - Rittht-of-W2Y
Percent of Vacant Improved Acreage
Percent of Vacant Semi -Improved
Acreage
Percent of Vacant Unimproved
Acreage
Balance Balance Balance Balance
of 6, 000. of 6, 000 of 6, 000 of 6, 000
acres aces acres acres
15%
5%
5%
aars
None Balance
of 6, 000
aces
1S%
15%
159
15%
59
519
S%
5%
S% SSG S% None SSG

HOUS-12
Population
INvelling Units
Acreage
Avelopment
Pattern
Housing Types
TABLE 3 t SUS i;iARY OF PROTOTYPES
Neichborhood
Varies according to housing type;
three populations ranging from
20 825 to 3, 520 used
1, 000 for each neighborhood
Varies from 100 to 500 acres,
depending on assumed densities
and housing types
Conventional and clustered
(A) Single-family, conventional
(B) Single-family, clustered
(C) Tovrnhouses, clustered
(D) Walk-up apartments
(E) High-rise apartment
(F) 20% mix of each type
(A)-(E)
Environments "Undiuing,fished" site with typical
environmental features; not site
specific
Commercial Convenience center, 7, 500 square
feet of building area, 21, 780
square feet of land area.
Comm mi«ty
Population of 33, 000; same for all
communities
10,000 for each community
62 000 acres for each community
Planned, sprawl, and combination
' (I) 20% mix; planned
(II) 205Z mix; combination
(III) 2056 mix; sprawl
(IV) 75% single-family conventional;
planned
(V) 7556 single -fa --Wily conventional,
25% sngle-family clustered;
spr awl
(NZ) 10% s.ngle-family clustered,
20Sd tow-rhouses, 30% walk-ups,
40% high-rise apa.-cents; planned -
Same as neighborhood
(a) Strip commercial development,
200, 000 square feet of building
area, 1, 056, 000 square feet of
land area
N Center commercial development,
240, 000 square feet of building area, 740, 000 square feet of land
area.
133

HOUS-13
J
conditions and environmental sensitivity --as might be expected in
the coastal environment --can be expected to yield greater costs.
Prior to the discussion of direct cost analysis, Table 3 pre-
sents a summary of the community prototypes used in the model.
Direct Cost Analysis --Neighborhood Level
Direct cost analysis.,at the neighborhood level --that is, housing
mix involving 1,000 units --involves analysis of direct capital and
operating costs for the following facilities and services: residen-
tial dwelling units, open space and recreation, schools, streets and
roads, and utilities (water and sewer, storm drainage, gas and
electric, and telephone lines). Information on the relative costs
of these items is summarized in Tables 6 and 7 at the end of this
report. Below is a summary of the total costs for each housing
type, the relative percentages of these costs to government and
private sectors, and a breakdown of the costs to households in terms
of capital costs, services charges, and taxes. Capital costs are
presented first, following by operating and maintenance costs.
Housing Type
Total
Capital Costs
Cost to
Government/Private
Household
Cap/Serv/Taxes
Single-family,
conventional
$
48,911
15%/85%
83%/3%/14%
Single-family
clustered
$
46,258
15%/85%
38%/43%/19%
Townhouse,
clustered
$
27,259
20%/80%
38%/43%/19%
Walk-up
apartment
$
21.,282
25%/75%
13%/62%/25%
High-rise
apartment
$
20,696
13%/87%
16%/71.%/13%.
Housing mix,
20% each
$
33,088
.18%/82%
46%/37%/17%
S
134

HOUS-14
Total
Cost to
Households
Housing Type
Operating Costs
Government/Private
Service/Taxes
Single-family,
conventional
$
1,721
67%/33%
35%/65%
Single-family
clustered
$
1,720
67%/33%
36%/64%
Townhouse,.
clustered
$
1,388
72%/28%
33%/67%
Walk-up
apartment
$
1,319
74%/26%
30%/70%
High-rise
apartment
$
548
57%/43%
52%/48%
Housing mix,
20010' each
$
1,410
71%/29%
34%/66%
Clearly, at the neighborhood level, the lower the density of housing
type, the greater the capital costs and operating and maintenance
costs. Relative proportions of costs to government and private sec-
tors also indicate that, generally, there is a lower proportion of
costs to government the higher the density of housing type.
Direct Cost Analysis --Community Level
The community cost analysis includes both capital and operating
costs for all facilities and services examined at the neighborhood
level. At the co munity level, additional items analyzed include:
police and fire services, government regulation, solid waste collec-
tionand disposal, postal service, health care. libraries, and
churches.
No economies or diseconomies of scale are assumed in the capital
or operating costs estimated. However, facilities which would be
inappropriate at the scale of 33,000 population (for example, an
electric power plant) are not included in cost estimates. Standards
and unit costs reflect national norms or averages taken from a number
135

HOUS-15
of studies. All costs are expressed in 1973 dollars, and financing
costs for capital expenditures are not included. Present technologies,
construction practices, and service standards are assumed.
Tables 4 and 5 summarize information on the relative costs of
the items addressed (as noted above) for each of six community develop-
ment prototypes. Below is a summary of the total costs for each
community type, the relative costs to government and private sectors,
and a breakdown of the costs to households in terms of capital costs,
service charges, and taxes. Costs are indicated only for the tenth
year, assuming a ten year period is required to facilitate the develop-
ment of 10,000 units with services capable of supporting an ultimate
population of 33,000. Capital costs are presented first, followed
by operating and maintenance costs.
Community
Prototype
Total
Capital Costs
Cost to
Government/Private
Households
Cap/Serv/Taxes
Planned mix
$
357,533
16%/84%
47%/38%/15%
Combination
mix com.
$
368,162
21%/79%
43%/37%/20%
Sprawl mix
community
$
372,833
24%/76%
41%/37%/22%
Low density
planned
$
489,806
12%/881%
81%/7%/12%
Low density
sprawl
$
514,559
19%/81%
75%/6%/19%
High density
planned
$
287,062
18%/82%
26%/56%/18%
V
136

♦1 4
TABLE 4
COMMUNITY COST ANALYSIS
CAPITAL COSTS
Community Development Pattern
Combination
50% PUD Sprawl Low Density Low Density High Density
Planned Mix 50% Sprawl Mix Planned Sprawl Planned
Cost Cost Cost Cost Cost Cost
COST CATEGORY
Open Space
$ 2,968
$ 2,826
$ 2,684
$ 2,968
$ 2,684
$ 2,968
Schools
$ 459302
$ 45,382
$ 45,307
$ 45,382
$ 45,382
$ 45,382
Public Facilities
$ 16,216
$ 16,441
$ 16,453
$ 16,259
$ 16,615
$ 16,304
Transportation
$ 27,077
$ 29,768
$ 32,353
$ 33,770
$ 37,965
$ 22,862
Utilities
$ 33,227
$ 36,042
$ 38,684
$ 47,444
$ 61,974
$ 22,432
Subtotal
$124,870
$130,459
$135,556
$145,823
$164,620
$109,948
Residential
$214,172
$214,172
$214,172
$318,291
$320,400
$160,300
(Exclusive of Land)
$339,042
$344,631
$349,728
$464,114
$485,020
$270,248
Land
$ 18,491
$ 23,531
$ 23,105
$ 25,692
$ 29,539
$ 16,814
Total Capital Cost
$357,533
$368,162
$372,833
$489,806
$514,559
$287,062
v
Source: Real Estate Research Corporation

COST CATEGORY
Open Space
Schools
Public Services
Transportation
Utilities
Total Ten Year
Operating Costs
Cumulative Costs
TABLE 5
COMMUNITY COST ANALYSIS
OPERATING AND MAINTENANCE COSTS
Communitv Development Pattern
Combination
50% PUD Sprawl Low Density Low Density High Density
Planned Mix 50% Sprawl Mix Planned Sprawl Planned
Cost Cost - Cost Cost Cost Cost
$ 380
$
320
$
260
$
380
$
260
$
380
$ 9,643
$
9,652
$
9,737.$
9,643
$
9,737
$
9,643
$ 5,103
$
5,296
$
5,405
$
5,165
$
5,575
$
5,164
$ 260
$
260
$
261
$
354
$
396
$
209
$ 3,987
$
3,988
$
3,989
$
5,130
$
5,141
$
3,335
$ 19,373
$
19,516
$
19,652
$
20,672
$
21,109
$
18,731
$.125,265
$
117,299
$109,489
$133,186
$116,827
$120,919
Source: Real Estate Research Corporation

TABLE 6
NEIGHBORHOOD COST ANALYSIS
CAPITAL COSTS
Housing Pattern
Single -Family Single -Family Townhouse Walk-up High -Rise Housing
Conventional Clustered Clustered Apartment Apartment Mix
Cost Cost Cost Cost Cost Cost
COST CATEGORY
Open Space
$ 220
$ 274
$ 274
$ 252
$ 203
$ 245
Schools
$ 5,354
$ 5,354
$ 4,538
$ 4,538
$ 1,646
$ 4,538
Transportation
$ 3,080
2,661
$ 2,111
$ 1,464
$ 801
$ 2,064
Utilities
$ 5,483
$ 3,649
$ 2,369
$ 1,579
$ 958
$ 2,782
Subtotal
$14,137
$11,938
$ 9,292
$ 7,833
$ 3,628
$ 9,629
Residential
$32,146
$31,724
$16,263
$11,766
$15,188
$21,417
(.Exclusive of
Land)$46,283
$43,662
$25,555
$19,599
$18,796
$31,046
Land
$ 2,628
$ 2,596
$ 1,704
$ 1,683
$ 1,900
$ 2,042
Total Capital Cost: $48,911
$46,258
$27,259
$210282 `
$20,696
$33,088
Source: Real Estate Research Corporation
W
l0

TABLE 7
NEIGHURHOOA COST ANALYSIS
OPERATING AND MAINTENANCE COSTS
Housing
Pattern
Single -Family
Single -Family
Townhouse
Walk -Up
High -Rise
Housing
Conventional
Clustered
Clustered
Apartment
Apartment
Mix
Cost
Cost
Cost
Cost
Cost
Cost
COST CATEGORY
Open Space
$ 30
$ 41
$ 41
$ 41
$ 30
$, 37
Schools
$1,168
$1,168
$ 989
$ 989
$ 270
$ 989
Transportation
$ 37
$ 28
$ 18
$ 11
$ 6
$ 19
Utilities
$ 484
$ 483
$ 340
$ 278
$ 243
$ 365
Total Operating
Cost
$1,721
$1,720
$1,388
$1,319
$ 548
$1,410
0
Source: Real Estate Research Corporation
`.
to

HOUS- 20
Environmental Concerns
With the exception of land consumption, the model does not consider
(as presented here) any environmental consequences of development
beyond "normal" site situations. Such factors need to be explicitly
identified and analyzed in terms of site specific information. How-
ever, all things being equal (and they usually are not when concerned
.with the environment), the more land utilized in development, the
greater the possibility of environmental disruption with associated
greater costs.
141

HOUS-21
APPLICATION OF HOUSING MIX TO KILL DEVIL HILLS
Although the model we have selected and modified above was chosen
because of its adaptability to the Dare County beaches, there were
obvious differences in revenue/costs which make this section dealing
with application necessary. This section attempts to draw some prelim- ".
inary conclusions about revenue and costs under (3) different scenarios,
one the trend of the 1970s, the others housing mixes under moderate
and high densities. All costs are in 1980 dollars. Information con-
cerning estimated tax values for different housing types was based on
values supplied by the Dare County tax office, with adjustments made
after spot checking a number of individual properties -in the Town.
CURRENT KILL DEVIL HILLS POPULATION
(Peak Seasonal/Monthly)
Housing Type
Pop. 1980
Units
Pop. 1990
Units
Mobile Homes
189
71
467
180
Single Family
8913
2117
13231
3342
Townhouse
0
0
778
199
Cottage Court
784
222
311
97
Motels
3547
1010
778
243
142

HOUS-22
TABLE 8
REVENUE FROM UNITS ADDED 1980-1990
UNDER SENCARIO OF CONTINUATION OF RECEN TRENDS IN HOUSING MIX
"
% Population
# of
Valuation
Total
Acres
Housing Type
in Stock
Units
Per Unit
Valu to ion
Used
Mobile Homes
3%
180
$10,000
$ 1,800,000
45
Single Family
85%
3342
18,000
60,156,000
836
Townhouse
5%
199
19,000
3,781,000
19
Cottage Court
2%
97
8,000
776,000
10
Motel
5%
243
8,500
2,065,500
5
Total
$68,578,000
915
TABLE
9
REVENUE FROM UNITS
ADDED 1980-1990
SCENARIO WITH A MORE MODERATE DENSITY
IN HOUSING MIX
% of Total
# of
Valuation
Total Acres
Housing Tyoe
Stocc
Un is
Per Unit
Valuation Used
Mobile Homes
3%
180
$10,000 $
1,800,000
45
Single Family
50%
1729
18,000
31,122,000
432
Townhouse
25%
865
19•,000
16,435,000
87
Cottage Court
5%
222
8,000
1,776,000
22
Motel
17%
756
8,500
6,426,000
15
Total
$57,559,000
601
143

HOUS-23
TABLE 10
REVENUE FROM UNITS ADDED 1980-1990 .
UNDER SCENARIO WITH A HIGH DENSITY HOUSING MIX
% Population
# of
Valuation
Total
Acres
Housing Type — in Stock
Units
e� Tr Tnit
Va u� ation
Used
Mobile Homes
0%
0
$10,000
$ 0
0
Single Family
35%
1210
18,000
21,780,000
303
Townhouse
35%
1210
19,000
22,990,000
121
Motel
30%
1334
8,500
11,339,000
27
Total
.$56,109,OOU
451
Total 'Val uation
Less: Vacant Lots
Net Valuation
Revenue Produced
Acres.Developed
Revenue/Acre
TABLE 11
COMPARISON OF REVENUE PRODUCTION
UNDER DIFFERING HOUSING MIXES
1970s Trend Moderate High Density
$68,578,000
21,960,000
46,618,000
247,075
915
$270.02
$57,559,000
14,244,000
43,315,000
229,569
601
$381.97
$56,109,000
8,424,000
47,685,000
252,730
451
$560.37
We notice from the above that the revenue produced during the
planning period from low density development should be higher than
under either moderate or high density development. However, since the
higher densities require less land for development, land that is undev-
eloped (vacant land) can still be developed in the future. Since
additional revenue can still be generated from this land, the more
proper test is one of revenue produced per acre. Higher densities of
development will result in greater profits per acre. One of the benefits
r
144

HOUS-24
of higher densities is the potential for retaining open space. In the
event that the town were to pursue a policy of taking some of its
profits from higher density development and acquiring open space, the
results would show less revenue per acre but the preservation of open
space. Where the land were utilized for recreational purposes, the
Town might expect indirect tax benefits from commercial investment and
sales taxes returned by the State.
Unlike the revenue side of the coin, the -cost side is not as easy
to portray. In fact, a more detailed analysis addressing future costs
of development is justified. However, we would expect the following:
TABLE 12
COST IMPLICATIONS FROM:HIGHER DENSITIES
Facility Effect on Costs Reason
Sewer Substantial decrease Fewer miles of mains
to serve future pop-
ulation
Water
Roads
Substantial decrease
Substantial decrease
Fewer miles of pipe
Fewer miles of road
to construct and
maintain
Solid Waste Decrease Fewer stops and
pickups
Schools (county expense)
i
Health (county expense)
Recreation Decrease Recreation planned
in high density
development
145

HOUS-25
In addition to quantifiable costs, we should also note that the
costs to the environment are considerbly less under planned high and
moderate density scenarios. Higher density styles of development offer
the Town more potential to assist in site selection and probably should
result in building on suitable soils, away from hazard and sensitive
areas. It should result in less disturbance of vegetated cover.
a
146

KtLK-1
CHAPTER VI
'DEMANDS, OPPORTUNITIES, NEEDS
RECREATION:
The population of Kill Devil Hills rises and swells every summer
with the tourist season. Tourism, which is predominantly beach use
oriented, is the major industry of the Kill Devil Hills as well as the
corporate and non -corporate areas of its neighbors. Therefore, it is
important that the land use plan.contain some analysis of recreational
opportunities.
Existing Demand
} From the attitudinal survey we discovered that the majority of the
persons connected.to the Town (residents and non-resident property
.owners) felt that the Town needed additional beach access points and
parking for beach access, and perhaps, some walking, jogging and bike
paths. Public marinas and boat launching facilities and picnic
facilities also received some attention. This desire list should be
tempered by noting that only beach access received enough attention to
merit consideration for high priority funding and even this did not
receive the support of the majority of the respondents.
Future Demand
The future demand for recreation is felt to be largely a function
• of the population. Because of the dramatic increase expected in
population the demands for access points should be several times more
147

RECR-2
acute. This geometric increase in demand could result because most of
the new population will locate in sections that are removed from the
beach. The plans being made to try a demonstration public transit
system on the beach could dramatically reduce the demand for parking _
areas incidental to beach access, but not the amount of beach use or
access.
In terms of total demands, the Town's growth should be affected by
tight money which might reduce the amount of housing starts and construc-
tion of commercial (motel) units. None of the Dare County beaches
appear to have been significantly affected by either the costs of fuel
or its availability in the past (see data on population in 1973 and
early summer 1979). From a regional perspective the North Carolina
Statewide Comprehensive Recreation Plan forecasts strong increases in
demand for nearly all types of recreational opportunities, but es-
pecially for water related ones. Regional recreational opportunities
which are highly mobile (Cape Hatteras) might be affected by availa-
bility of fuel.
Existing Facilities
Beach Access: Beach access is provided by the private and public
sectors. Perhaps the most significant opportunities are provided by
the significant number of motels located on the ocean or with ocean
access...Motels offer the entire public an opportunity for an encounter
t
at the ocean. In addition to motels, the public's right to enjoy the
beach is insured through public access points. Most of the existing _
and possible access points are road rights of way that are platted to
the ocean but which have never been built. Since these areas have been
148

RECR-3
dedicated to the Town for public use they are suitable for public ac-
cess. There is one difficulty with rights -of -way dedication, namely
the Town must accept the dedication by maintaining the right-of-way
(typically by paving the road). Beach access plans relate that the
Town has 40 access points, of which 6 have been accepted and are main-
tained. Several of these access points provide for public parking,
in all 60 cars can be accommodated. In terms of standards for future
needs, Ron Johnson, author of Ocean and Estuarine Recreation Access,
noted that on the barrier islands in Carteret County that 20% of the
poeple use the ocean beaches at one time. Assuming that in 1990 the
population will be 30,000 in Kill Devil Hills, that 50% will live
within walking distance to the ocean and that no public transit
exists. Then, 15,000 people would need to frequent the ocean beaches
by way of the auto. The Town will need parking to accommodate 3000
people at one time, or between 750 and 1500 cars. Pat McDowell, a
local engineer, estimates that 15 cars can be parked on a typical 50 by
150 foot lot on the ocean. Large lots (over 100 feet) in width can
utilize economies of scale from better design, typically one car re-
quires 200 square feet. To accommodate the 1990 population approxi-
mately 2 to 4 acres for parking will be needed. (This allows for full
use of 50 foot lots on ocean.) If a one-way loop system for transpor-
tation is not built, it may be feasible for the Town to purchase land
M west of the beach road for parking. This land sells for a fourth of the
price of ocean front lots. Additional possibilities might be be per-
suade property owners who have been denied permits to build on the
oceanfront to dedicate the land to the town (this would enable them to
have a pretty hefty write-off for taxes.) Parking lots are a
149

RECR-4
permissable use in ocean hazard areas under CAMA. Oceanfront park
standards call for 2 acres/100 people.
Estuarine Access: Estuarine access is provided by both the
private and public sectors. This access is substantially less than
exists on the ocean beach because no motels exist on the sound in Kill
Devil Hills. The Wildlife Commission maintains one public access for
boat access and mooring. In addition, private moorings are available
in subdivisions connecting to Colington Harbor and at the Soundside
Restaurant. Ron Johnson estimates that 1 acre of soundside park should
be provided for every 1000 people. Since the future population will
probably locate closer to the sound, there will be a great demand for
soundside access in the.Town.
Walking and Jogging: Walking and jogging occur regularly on the
streets and the ocean beaches. There is an opportunity to provide
paths along the highways at minimal expense. If the paths are to be
used for bicycles, cost estimates run at $25,000 per •mile. The Town
has lost the opportunity to secure walking paths in most of the Nags
Head Woods but there are still some unplatted areas that could accom-
modate this use.
Unique and Unusual: The Town of Kill Devil Hills boasts Wright
Memorial Park. This park attracts visitors each year. In light
of the large land holdings of the U.S. Park Service, it would seem ap-
propriate that some of this land could be made available for picnicking "
and outdoor recreation. 'The Town should consider approaching the Park
Service with a joint undertaking.
Fishing: The Town has one privately owned fishing pier. Surf
fishing is also very popular. The Sound adjacent to Kill Devil Hills
f
150
w;

RECR-5
is legally closed to shellfishing`. The recent subdivisions in the
Woods will remove this area from use for duckhunting.
Conventional Facilities: Kill Devil Hills has private tennis and
handball facilities'. There does not appear to be any real demand for
other recreational uses.
In conclusion, the Town currently has undertaken policies leading
to expanded access to the ocean beaches. Future demands will make
additional demands that do not appear to have been considered. Sound
access.is needed to accommodate present need.
Bibliography
North Carolina Statewide Comprehensive Outdoor Recreation Plan, 1978.
Department of Natural Resources and Community Development, Division .
of Parks and Recreation.
Ocean and,Estuarine Recreation Access. Prepared for Cartaret County by
Recreation and Park Consultants, Inc., 1979.
Comment
The Town had decided to take an experimental step to see if it
can avoid purchasing oceanfront or beach road property for access or
purchase, namely the Town is cooperating in a mass transit system.
This system will hopefully provide access for existing subdivisions.
If the the system succeeds and can be expanded, existing access
points will be sufficient, if maintained. A policy on maintaining
these points has been adopted.
Requests to share facilities are being made to Park Service
representatives.
151

CULT-1
CHAPTER VII
CULTURAL RESOURCES
Kill Devil Hills is renowned for being the Town from which the
Wright Brothers made their first flight. It is therefore fitting
that a memorial site is situated on the grounds where the flight
and the preparation for it occurred. The Park Service operates and
manages the Wright Brothers Memorial. The Memorial is on the National
Register. Future building on the site will require review by
federal and state agencies.
Also, the State has included on its study list for future nomination
to the National Register the Kill Devil Hills Life Saving Station. Kill
Devil Hills has a significant number of old beach cottages which might
desire future study for possible nomination to the National Register.
The implication of a structure being placed on the National Regis-
ter is that it will qualify for special tax breaks under the Tax Reform::.
Act. These features include accelerated depreciation for improvements
for property and for commercial purposes.
w
152

CULT-2
Historic and architecturally significant buildings can be
adversely affected, both directly and indirectly, by a large number
of activities. All construction projects have the potential to
require the demolition of important, though simple, structures on•a
site as well as to alter the use of nearby land thereby causing
secondary impacts to a building of historic or architectural impor-
tance. In addition,.new construction is frequently unnecessary as
existing buildings can be renovated for adaptive reuses; often
these are uses quite different from the use intended at the time of
a building's construction. Rehabilitation is more energy conserva-
tive and job intensive than new construction, and recycles elements
of the coastal historic character into everyday use.
Archaeological resources are fragile and nonrenewable. Such
resources include both historic and prehistoric sites on land. These
sites are found in urban and rural areas, as well as along the shores.
Archaeological sites contain vast amounts of information about our
past; information that, at times, can be found nowhere else.
Due to the fragile nature of these resources, many different types
of activities damage or destroy archaeological sites. Most activities
that involve ground disturbance, such as construction, grading, excava-
tion, and even agricultural and timbering activities damage or destroy
these resources. Other types of activities that do not necessarily
involve ground disturbance can also affect archaeological sites. These
activities include recreational use, flooding, erosion and soil com-
paction.
Underwater cultural resources often hold a wealth of information.
due to excellent artifact preservation and their normally undisturbed
153

CULT-3
condition. Exploration and study of historic waterfronts, abandoned
or wrecked vessels, etc., can shed light on many aspects of maritime
history associated whith this planning area which might otherwise be
unknown. Therefore, the understanding and proper management of these
irreplaceable cultural resources is extremely important to prevent
their loss during future development.
Disturbance of submerged bottom lands,particularly during new
dredging, jetty construction, and beach replenishment, should consider
possible effects to underwater cultural resources during the earliest
stages of planning. Areas where known shipwrecks exist, many of which
are plotted on USGS maps or Geodetic Survey charts, and areas known
historically to have seen extensive maritime activities (such as inlets,
shipping lanes, and hazard areas) should be avoided if possible. If
not, documentary investigation and, where warranted, underwater
archaeological survey should be initiated to determine the existence
of cultural resources and to assess their significance.
A list of federal and state laws and regulations protecting
cultural resources is attached.
.
154

CULT-4
FEDERAL, STATE AND LOCAL CONTROLS
FEDERAL
National Historic Preservation Act of 1966
The Archeological and Historic Preservation Act of 1974, Public
Law 93-291
Executive Order 11593, Protection and Enhancement of the Cultural
Environment, 16 U.S.C. 470 (Suppl. 1, 1971)
National Environmental Policy Act, Public Law 91-190, 42 U.S.C.
4321 Et. Seq. (1970)
Community Development Act of 1974, Public Law 93-383: Environ-
mental -Review Procedures for the Community Development Block
Grant Program (40 CFR Part 58)
Procedures for the Protection of Historic and Cultural Properties
(36 CFR Part 800)
Comprehensive Planning Assistance Program (701) as Amended by
Public Law 93-393
The Department of Transportation Act of 1966, Public Law 89-670
Identification and Administration of Cultural Resources: Proce-
dures of Individual Federal Agencies
STATE
G.S. 121-12(a) Protection of Properties in the National Register
State Environmental Policy Act, Article 1 of Chapter 113A of the
General Statutes
Executive Order XVI
01 Indian Antiquities, G.S. 71.1-4
Salvage'of Abandoned Shipwrecks and Other Underwater Archeological
: Sites: G.S. 121-22, 23; 143B-62(1) g, (3)
Archeological Salvage in Highway Construction, G.S. 136-42.1
Provisions for Cultural Resources in Dredging and Filling
Operations, G.S. 113-229
155

CAP-1
CHAPTER VIII
CARRYING CAPACITY
In order to develop a set of policies to guide future growth, a
municipality must seek to balance the demand for development with the
land capable of being developed. The land capable of being -developed
is the carrying capacity. The carrying capacity of the land reflects
many private and governmental policies, decisions and attitudes.
Thus, if a municipality has a policy of evacuating persons from its
limits during a major storm, the number of persons who can be accommo-
dated during a reasonable period prior to the storm on its highways
and bridges would represent its carrying capacity. Similarly the
carrying capacity of the water system reflects its service ability
without incurring a diminution in water pressure or water quality.
To a certain degree this standard (as are many others) is personal,
to some degree it represents non -local standards as in State standards
for quality of municipal water supply, and to some degree it repre-
sents local municipal standards. Where public sewers exist the capa-
city of the system is the capacity of the waste treatment facility
(if it is exceeded the State will probably prohibit further connec-
tions), where public sewers do not exist the capacity of the land to
handle on -lot sewage disposal system will represent this constraint.
The ability of the land to handle on -lot sewage disposal reflects
government policies toward pollution of the sound and risks of health
hazards.
156

CAP-2
The carrying capacity of a municipality is the limit of its most
constraining system (be that hurricane evacuation, transportation,
water or sewer facilities, on -lot sewage disposal, health care, etc.).
As we suggested above, the carrying capacity must be matched with the
land demanded for development and the people desirous of being served
at a particular date. Where the amount of land suitable for develop-
mentis less than that demanded, the minicipality is considered con-
strained. A municipality must seek to become.unconstrained. This can
be accomplished by altering the demand side or the capacity side of
the equation. To alter the demand side, one can alter the attractive-
ness of the land consumed in development. This would involve slowing
the growth rate or creating a higher density housing mix. To alter
the capacity side, the minicipality can create additional facilities
or alter a policy which restricts development.
s
Calculating Demand
To calculate demand we need to know the number of persons in the
Town in 1980, the growth likely to occur to 1990, the land consumed by
the 1980 population and the land likely to be consumed by the 1990
population. In addition to these residential uses (motel, cottage
court, townhouse, single family houses), we need to know the amount of
land used in 1980 for commercial, institutional and recreational uses.
Where a deficiency exists in any of these uses at the present time,
we must consider adjustments to this use which will make it more in
y accord with our experience from dealing with similarly situated muni-
cipalities.
157 '9

CAP-3
To project the amount of land that would be needed to meet the
1990. population, we multiplied the additional population anticipated
to move into the area by 1990 times the standard for land needed in
that classification. Several non-residential classifications were
presumed to adjust to more typical ranges within the next ten years. -
The equation for determining land use requirements is as follows:
L90 - L80 + P80-90 IN + Kr + Kc + Ki•+ Kti
(Note: We modified this expression to handle the expression
of land requirement for transportation.)
Where:
L90 = Land required for urban uses in 1990
L80 = Land required for urban uses in 1980; therefore, L80-90
is land required for urban uses from additions to
the population during these years
P80-90 = Population added to municipality between 1980 and 1990
Kh = Standard land requirement for residnetial use
Kr = Standard land requirement for recreational use
Kc = Standard land requirement for commercial use
Ki =
Standard
land
requirement
for
insitutional use
Kt =
Standard
land
requirement
for
transportational use
Calculating the Constraints
In order to express the constraints in a way that would relate to
the use of the land, we either calculated the capacity directly or
mapped the land constrained and.then added up the acreage to compute "
the capacity. The following are some of the constraints we considered:
Sewer: We made no provision for a sewer system being built within
the ten-year period. If one were built, we calculate that the load
would be :far in excess of capacity at the time it is completed. See
158

CAP-4
capacity from paper on Environmental Considerations.
Hurricane: We feel that the Town is currently at or beyond its
share of the population that would need to use the bridges to leave
the barrier island during a 48-hour period preceding a major storm
or hurricane. (See Transportation Paper.)
Water System: We have presumed that additions will be made to
the water system to allow it to serve any level of population antici-
pated within the planning period.
Wetlands: We constrained only those wetlands that were regulated
as areas of environmental concern by the State. Other wetland areas
will be measured in land unsuitable for septic systems. Wetlands serve
many functions: they act as recharge groundwater reservoirs, as a
waste treatment plant by settling out sediment and nutrients, as plant
and wildlife habitats. Wetlands are suitable for non -intensive recrea-
tional and educational purposes (e.g., hiking and nature trials, fishing,
hunting).
Flood Hazard Areas: Although in many inland communities flood
hazard areas are considered a contraint to development, they are not
considered one in Kill Devil Hills. The reason for the lifting of the
contraint is that if one builds above the flood level by the use of
piling sunk into bedrock and utilizes construction methods designed
to prevent flood and related damages, then the constraint should not
" apply. The Town of Kill Devil Hills complies with the State Building
Code designed to prevent damage from wind and flooding.
I State and Federally Owned Land: Areas owned by governmental
agencies for recreational and other purposes are not considered within
the scope of developable lands. We removed Wright Memorial Lands from
159

CAP-5
the total land available from development.
Soils Unsuitable for Development: Areas which do not permit
proper functioning of septic system filter beds because of.wetness,
flooding, steepness, overly slow or rapid permeability are not suitable
for development without municipal sewage treatment. By not being
suitable we mean that a municipality will probably have to accept cer-
tain consequences for using such land for residential use; namely .
pollution of the water in the Sound and possibly the groundwater. The
County Health Department can be expected to prevent operation of septic
systems that malfunction and cause a danger to human health.
Dunes: Development on steep slopes is a natural constraint. Dunes
present a special problem for the developer and the municipality. Left
unvegetated the dunes offer poor support for roads and structures. To
allow the dunes to be leveled may result in substantial protest from
townspeople who consider the dunes part of their heritage. The sound -
side dunes are a unique geological formation and judged by'the people
to be of substantial environmental importance (see questionnaire
results). The ocean dunes (primary where one exists and and all dunes
within 60 feet where one does not exist) are regarded as a complete
constraint which cannot be lifted by the Town since they are an area
of environmental concern. However, almost all property owners who
own oceanfront lots should be able to build on their land in histor-
ically acceptable manner despite the regulations. Thus, only sound -
side dunes may be considered a constraint. Primary dunes are a con-
straint but we do not anticipate any land being lost to development
because of the application.
160

CAP-6
Woodlands: Forests improve the macro -climate and pose a major
balancing effect upon the water regimen --diminishing erosion, sedimen-
tation, flood and drought. The scenic role of woodlands is apparent,
as is there usefulness as a habitat for plant and animal life. Wood-
lands offer substantial potential for recreational use --picnicking,
bicycle and walking paths, etc.
Zoning: Zoning is not a constraint.to development in Kill Devil
Hills in that the historical lot size used for development is larger
than that mandated in the most restrictive zone in the zoning ordinance.
Note: In using the maps to measure the land constrained under
several constraints, it is important to avoid double accounting. Once
a land area is removed from development from the application of one
constraint, it cannot be counted as removed from the application of a
second constraint. This is a particularly difficult concept to grasp
when working with concepts such as zoning.
TABLE 1
STANDARDS FOR LAND USE PROJECTIONS
Land Use Land Consumed (acres/person)
Residential Single family .058
Townhouse .038
Cottage court .020
Motel .019
Commercial .0022
Institutional .0026
Recreational :0032
In developing the above standards, residential uses were descrip-
tive of the actual situation. In handling other uses, we consulted
161

CAP-7
national standards and uses our experience from similarly situated com-
munities. In handling recreational use, we used standards developed
for ocean beach communities by Ron Johnson, namely .00016 for beach
access, .002 for parks on ocean and .001 for park on sound.
TABLE 2
EXISTING LAND USE (1980)
Land Use
Residential Single family 530
Townhouse 0
Cottage court 16
Motel 67
Commercial
Institutional
Recreational
Transportational
Total Acreage
Land Consumed (acres)
TABLE 3
LAND REQUIRED IN 1990 (Low Density)
613
72
2
1
70
758
Land Use Land Consumed*
Residential Single family 1278.3
Townhouse 27.6 1428.4
Cottage court 26.1
Motel 96.4
Commercial 63.8
Institutional 75.4
Recreational 92.8
Transportational 166.0
Total Acreage 1826.4
Additional Acreage Needed 1980-1990 1068.4
*Land that should be consumed.
10
162

NOW
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CAP-8
L
TABLE 5
CARRYING CAPACITY WITH PRESENT CONSTRAINTS
*
Land Use Constraint Area Constrained (acres)
Developed land
Roads
Park Service
Wetlands
Total constrained 2040
Acres available for development 2110
Scenario #1•
Constrain —soils unsuitable for on -lot
sewage disposal and within 1000 feet
of sound.
Unsuitable soils 150
Total constrained 2190
Acres available for development 1960
Scenario #2:
Constrain all unsuitable soils, also
all soundside dunes.
Total constrained 3700
Acres available for development 450
Scenario #3•
Constraint of on -lot sewage lifted and
public sewer built.
Total persons that can be served [17,500 persons]
*Total Area of Town: 4150 acres.
163

CAP-9
Comment
Kill Devil Hills can accommodate its 1990 growth under an extension
of its present constraint system. Those constraints include currently
developed land, state roads,'Park lands and wetlands. Accordingly in j
1990, the Town will be 90% developed. Furthermore, the Town adoption
of an interim policy on not developing on soils unsuitable for septic
systems without fill may slow the growth rate somewhat. When public
sewers are available, this constraint could be removed leaving over
2000 acres available for development. The.Town can anticipate strong
pressures for redevelopment during the early 1990s, or if the soils
policy is abandoned in the late 1980s.
Several technical aspects limit the capacity of the Town at this
time: one is the water system which is at capacity (see Environmental
Considerations); another is the bridge and transportation system which
is at or near capacity (see Transportation System); another will or
may be the sewer system, when and if it is built.
164

SECTION THREE
Chapter I Current Plans and Implementation
Chapter II Previous Policies
Chapter III Land Use Compatibility
Chapter IV Land Classification

PLANS-1
CHAPTER I
CURRENT PLANS, POLICIES AND REGULATIONS
Kill Devil Hills has adopted the following plans:
Dare County Land Use Plan (1976)
Comprehensive land use plan propared by Dare County for all
municipalities within the county except Nags Head. See pp. 147-148.
The plan addresses problems from countywide perspective in a tradi-
tional manner. Several chapters should be consulted in connection
with information on current plans, namely population characteristics
(especially of permanent population) and economic characteristics.
One 1976 plan was prepared by NCDNRCD.
Kill Devil Hills Public Improvements Program (1979)
Set forth a public improvements program for the ten-year period
beginning in 1979. Improvements cover police, fire, administration,
sanitation, streets and water departments. Scheduling is provided
year by year. No costs are estimated. Prepared by Albemarle Regional
Commission.
y Kill Devil Hills Beach Access Plan (1979)
Inventory and analysis of beach access points including purchases
and improvements deemed necessary to oceanfront and sound to provide
better access for public. Prepared by Albemarle. Regional Commission.
165

PLANS-2
Nags Head--Ki11'Devil Hills Thoroughfare Plan (1972)
.The thoroughfare plan outlines future plans to accommodate growth
on the road system, particularly plans for a six -lane highway and
design of major intersections. Prepared by NCDOT. -
Kill Devil'Hills has adopted the following implementation devices: _
Zoning Ordinance (1975)
Traditional zoning ordinance addressing densities, heights, uses,
etc. Also includes flood hazard district and provisions for building
along oceanfront in eroding areas.
-Subdivision Ordinance (1975)
Established standards for subdividing land. Requires developers
to install streets and dedicate easements for utilities.
N.C. Building Code
Requires buildings meet State building standards,_ including flood
proofing.
166

POL-1
CHAPTER II
EXISTING -POLICIES FROM 1976 PLAN
In the 1976 county plan the Town of Kill Devil Hills through its
Planning Board submitted a list of policies concerning planning.
These policies (called "objectives") were as follows:
1. To promote tourism as the major industry of the community.
2. To encourage the extension of the tourist season into the
Spring and Fall months.
3. To encourage permanent residential development which will
attract more year-round visitors.
4. To promote wise development which will protect the unique
fragile environment of the Town.
5. To insure planned, orderly development for the most efficient
utilization of suitable land within the Town.
6. To provide for separation of incompatible uses such as
commercial and residential areas by the use of natural barriers and
open spaces.
7. To identify and consolidate centralized and compact business
areas.
8. To encourage future residential development which will
provide more useable open space and more cost-effective utilization
of municipal services through clustered growth.
9. To encourage the location of a suitable site for non-polluting
service industries to support the tourist and development sector.
167

POL-2
10. To encourage the development of a community -wide recreation
program which will provide community parks, bike trails, oceanfront
areas and other appropriate facilities.
11. To encourage and reinforce the family beach atmosphere that
makes Kill Devil Hills a pleasant place to live'and to visit..
12. To work for closer cooperation with Dare County and adjacent `
municipalities.
13. To improve municipal services and government organization
for better responsiveness to public needs.

LUC-1
CHAPTER III
LAND USE COMPATIBILITY
Significant Land Use Compatibility Problems
Compatibility in land use is often a highly subjective matter.
Traditionally, planners have observed that where residential uses are
segregated from commercial and commercial from industrial and vice
versa that fewer complaints about uses are encountered. In general,
commercial areas need to be located close to the residential and with
good access to a major road. In the beach community a preference lies
for segregating the permanent residents from the seasonal visitors,
for aggregating high density uses, such as motels, and for segregating
uses not in harmony with tourist uses to non -developed (at least,
residentially) parts of the Town.
Kill Devil Hills has some compatibility problems; however, the
residents and the Town do not feel they are significant. See responses
to questionnaire showing near 90% satisfaction with commercial area
uses and zoning. The major commercial area in the Town lies adjacent
to the Bypass near the Town limits of Nags Head. .(See existing land
use map.) This area is currently less than 50% developed under the
zoning ordinance. As the area fills in it is taking on more the char-
acter of a commercial district and less that of strip development.
The area includes professional offices, real estate offices, banks,
department stores, service stations, auto repair stations, restuarants,

LUC-2
quick shopping stores, fast food restuarants, ABC store, novelty shops,
athletic facilities, and much more. It is the major commercial area
on the beach. This section is complemented by a similarly developed
section on the Beach Road consisting of real estate offices, quick r
food restuarants, motels with -restaurants, indoor athletic facilities
and the largest shopping plaza on the beach (Sea Holly Square). This
area is in a flood hazard area and the uses in this section seem pre-
ferable to residential uses. Some already existing residential devel-
opment between the roads will slow the complete commercialization of
this area (although it seems desirable and inevitable).
The commercial section in the north end of Town has not developed
as much and is in fact a residential section. Although the area was
subdivided for extremely small lots, it has not developed as such.
Kill Devil Hills has fewer motel units than does Nags Head. Almost
all motel units are located along the Beach Road. The motels are
broken by sections of residential structures, at least one section in
the north has historic homes representing quality development during
the first part of the century. These homes are protected by zoning
regulations from ccmmercial encroachment.
Permanent residents of Kill Devil Hills have tended to live along
the oceanfront and in subdivisions west of the Bypass. Thus, conflicts
between these landowners and seasonal visitors have been minimized.
Major Problems From Unplanned Development
If Kill Devil Hills were an unplanned community, it would have
significant compatibility problems. Such problems might include con-
flicts between the commercial and residential. sectors and among
170

LUC-3
commercial uses themselves. Even with planning and zoning, the Town
still has had some conflicts, although not serious. These include
conflicts between noisy.commercial uses and small shops also being
Y used as residences. Traffic from commercial use often causes uneven
• traffic flows and bottlenecks, however this is seen as largely a tech-
nical problem which will be solved when the Department of Transportation
builds the road network planned for in the 1972 thoroughfare plan.
Ki11'Devil Hills has concentrated its commercial development at
the south end of the Town. This type of pattern has usually resulted
in fewer trips, less traffic hazards and better marketing.
Mixed land uses are often traditionally cited as unacceptable.
Residential users are annoyed by commercial operations --noise, lights,
traffic. However, where the commercial uses afford opportunities and
convenience to the residential sector, many less objectionable commercial
uses are welcomed. This is especially true of grocery stores and
offices. Most businesses desiring to be free of complaints have used
vegetated buffers and large lots to lessen the tension for neighboring
residential uses.
Industrial uses in Kill. Devil Hills lie west of the Bypass and on
the northeast side of the Fresh Water Pond. These uses consisting
primarily of cement plants and operations are a non -conforming use.
The zoning ordinance provides for a light industrial zone (LI)--see
area west of Bypass and north of Fresh water Pond --yet this zone is
currently in mobile home use, both on individual lots and in trailer
parks. This use is a permitted use in this zone where it will probably
be encouraged until the market justifies a higher use. This area is
a dune hazard area and the transitory nature of the use is appropriate.
171

LUC-4
Areas Likely to Experience Changes in Predominant Land Use
During the next ten years the most significant changes in land use
should occur west of the Bypass as vacant lands are developed for single
family residential use. Most of the land is already subdivided and
streets have been laid. In addition, single-family development shall
probably fill in areas between the Beach Road and the Bypass. Commer-
cial development will probably double, although Nags Head may receive
a heavier share of future commercial development, filling in a large
portion of areas permitted for this use. A rezoning of areas west of
the Beach Road will allow this area to receive motel and commercial
development otherwise likely to locate along the beach. We should note
that new motel development has been non-existent to slow since 1973.
0
172

LCLASS-1
CHAPTER IV
LAND CLASSIFICATION
Established: The purpose of the developed class is to provide for
intensive development and redevelopment of existing urbanized areas.
Areas to be classifed as developed include lands currently developed
for urban uses at or approaching a density of 500 dwellings per
square mile that are provided with usual municipal services including
at least public water, sewer, recreational facilities, police and
fire protection. In the Town of Kill Devil Hills, the developed class
Ms been subdivided into an established class to reflect a situation
where the Town has services listed above, except for public sewer.
The Town is currently involved in studying the feasibility of public
sewer under the Regional 201 Facilities Plan, and supports the
development of public sewer in the Town. The area in the Town classi-
fied as established is generally along the entire north -south length
of the Town from the ocean front to the U.S. 158 By -Pass. Also included
is a seFtign west of the By -Pass between Kitty Hawk Drive and 5th Street
(see classification map).
Transition: The purpose of the transition class is to provide for
future intensive urban development within the ensuing ten years on
lands that are most suitable and that will be scheduled for provision
of necessary public uti-lities and services. The transition lands
173

G
LCLASS-2
also provide for additional areas when lands in the developed class
are not available or when they are severely limited for development.
In the Town of Kill Devil Hills, all lands not classified as estab-
lished, rural or conservation are transition. The rural area is
the Wright Memorial, and the conservation areas are the AECs.
Rural: Rural areas are those that are identified as appropriate for
resource management. Generally areas classified as rural are intended
to be those areas with high potential for agriculture, forestry, or
mineral extraction; or lands that would make development hazardous
and costly; and lands containing irreplaceable, limited, or significant
natural, recreational, or scenic resources not otherwise classified.
In the Town of Kill Devil Hills, the area of the Wright Memorial is
classified as rural due to its historical value, rather than any poten-
tial for hazard (except for the man-made hazard of the air strip
located on the site) or for its natural resource potential. A
classification designation was also needed which could allow for
potential expansion of the facilities on the site.
Conservation: The purpose of the conservation class is to provide for
effective long term management of significant limited or irreplacable
areas. This management may be needed because of its natural, cultural,
recreational, productive, or scenic values. These values should not
be identified as transition in the future. In the Town, lands
classified as conservation include all AEC areas. Such areas would
be the ocean hazard are, estuarine shoreline, coastal marshes, and
all surface waters.
174

LCLASS-3
RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION
Established: In ,this class, present uses include a combination of
urbanized uses (e.g. high, medium and low density residential;
commercial, transportation; and institutional). It is the policy
of the Town to maintain existing growth and provide development
opportunity to allow for increased tourist economy. The zoning in
the established class allows commercial and high density uses in most
areas (see zoning classification, -maps). It is also the Town's
policy to continue to maintain services at the present level, and to
work toward implementing a sewer system. The Town is seeking to
attempt to limit motel development to west of the beach road. In the
next fiscal year, the Town will undertake a study of management tools
to implement its policies.
Transition: In the transition class, -the policies toward growth
and services are similar to those in the established class. However
densities are somewhat higher in these areas. Almost all of this
classification is presently platted for residential development. These
areas are expected to accommodate the urbanized population and economic
growth through the planning period.
Rural: This area is owned by the federal government and benefits the
Town as an area of open space and tourist attraction. (The Wright
Memorial).
175

LCLASS-4
Conservation: The purpose of the conservation class is to provide
for effective long term management of significant limited or
irreplaceable areas. This management may be needed because of
its natural, cultural, recreational, productive or scenic values. In
the Town, this class applies to all AEC areas, which include the
ocean hazard areas, estuarine shoreline, coastal wetlands, and all
surface waters. The Town supports CAMA regulations in applying
standards for these areas. The Town allows plowing to create
dunes, but does not support beach nourishment procedures or the
establishment of groins or jeeties. The Town allows bulkheading
on the estuarine shoreline. The Town allows the construction of
walkways and platforms over the frontal dunes as long as public
access is not interfered with.
176
0

r
sos'.r�
A' "
AMENDED
ZONING MAP
TOWN OF
KILL ®EVIL HILLS
DARE COUNTY, NORTH CAROLINA
DEC. ISM
REVISED MAY,1979
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SECTION IV
A. Federal and State Licenses and Permits
B. KDH: Questionnaire
C. Public Participation Element

UP 1
STATE LICENSES AND PERMITS
Agency Licenses and Permits
Department of Natural Resources and - Permits to discharge to surface
Community Development waters or operate waste water
Division of Environmental Management treatment plants or oil.discharge
• permits; NPDES Permits, (G.S.
143-215).
- Permits for septic tanks with a
capacity over 3000 gallonsday'
(G.S. 143-215.3).
- Permits for withdrawal of sur-
face or ground waters in
capacity use areas (G.S. 143-
215-15).
- Permits for air pollution abate-
ment facilities and sources
.(G.S. 143-215.108).
- Permits for construction of com-
plex sources; e.g. parking lots,
subdivisions, stadiums, etc.
(G.S. 143-215.109).
- Permits for construction of a
well over 100,000 gallons/day
(G.S. 87-88).
Department of Natural Resources and - Permits to dredge and/or fill
Community Development in estuarine waters, tidelands,
Office of Coastal Management etc. (G.S. 113-229).
- Permits to undertake develop-
ment in Areas of Environmental
Concern (G.S. 113A-229).
NOTE: Minor development per-
mits are issued by the
local government.
Department of Natural Resources and - Permits to alter or construct
Community Development a dam (G.S. 143-215.66).
Division of Earth Resources
- Permits to mine (G.S. 74-51).
177

UP 2
- Permits to drill an explora-
tory oil or gas well (G.S.
113-381)
- Permits to conduct geographi-
cal exploration (G.S. 113-391).
- Sedimentation erosion control
plans for any land disturbing
activity of over one contiguous
acre (G.S. 113A-54).
Department of Natural Resources and Permits to construct an oil
Community Development refinery.
Secretary of NRCD
Department of Administration - Easements to fill where lands
are proposed to be raised above
the normal high water mark of
navigable waters by filling
(G.S. 146.6(c)).
Department of Human Resources - Approval to operate a solid
waste disposal site or facility
(G.S. 130-166.16).
- Approval for construction of
any public water supply facility
that furnishes water to 15 or
more year round residences or
25 or more year round residents
(G.S. 130-160.1).
178

UP 3
FEDERAL LICENSES AND PERMITS
Agency Licenses and Permits
Army Corps of -Engineers
(Department of Defense)
- Permits required under Sections
9 and 10 of the Rivers and
Harbors of 1899; permits to
construct in navigable waters.
- Permits required under Section
103 of the Marine Protection,
Research and Santuaries Act of
1972.
- Permits required under Section
404 of the Federal Water
Pollution Control Act of 1972;
permits to undertake dredging
and/or filling activities.
Coast Guard - Permits for bridges, causeways,
(Department of Transportation) pipelines over navigable waters;
required under the General Bridge
Act of 1946 and the Rivers and
Harbors Act of 1899.
Geological Survey
Bureau of Land Management
(Department of Interior)
Nuclear Regulatory Commission
Federal Energy Regulatory Commission
t'
Deep water port permits.
Permits required for off -shore
drilling.
Approvals of OCS pipeline
corridor rights -of -way.
Licenses for siting, construction
and operation of nuclear power
plants; required under the Atomic
Energy Act of 1954 and Title II
of the Energy Reorganization Act
of 1974.
Permits for construction,
operation and maintenance of
interstate pipelines facilities
required under the Natural Gas
Act of 1938.
179

UP 4
- Orders of interconnection of
electric transmission facili-
ties under Section 202(b) of
the Federal Power Act.
- Permission required for
abandonment of natural gas
pipeline and associated
facilities under Section 7C(b)
of the Natural Gas Act of 1938.
Licenses for non-federal
.hydro -electric projects and
associated transmission lines
under Sections 4 and 15 of the
Federal Power Act.
Lists provided by the NC DNRCD.
We

QUESTIONNAIRE-1
B. KILL DEVIL HILLS --QUESTIONNAIRE
Instructions: Please place your answers in the space at the left of the
questions. Some questions have special instructions.
INTRODUCTORY QUESTIONS
1. Which of the following best describes your relationship to the
town?
a. permanent resident c. regular seasonal visitor
b. non-resident real property- d. occasional -seasonal visitor
owner e. other
2. If you are a non-resident real property owner, do you intend
to build a house on your property or to sell your property
during the next ten years? (Please leave the question blank
if you are not a non-resident real property owner.)
a. intend -to build a house on my property
b. intend to sell my property
c. do not intend to sell my property or build on it
3. Which of the following describes your principal relationship
to
the town?
a.
developer, builder
e.
beach user
b.
commercial business
f.
retiree
c.
motel owner or manager
g.
housewife
d.
sportsfisherman or boater
h.
other
4. Which of the following best describes your relationship to the
town?
a. active voter in Kill Devil Hills
b. ineligible to vote in town elections
c. eligible to vote, but not active in town elections
5. With which area of Kill Devil Hills are you interested?
a. beach c. bypass
b. sound d. other
SEWER
The permanent and seasonal population of Kill Devil Hills is expected to
exceed 40,000 residents during the peak week in the summer by the year
1990. Kill Devil Hills relies almost exclusively on septic systems for
sewage disposal. We are approaching a density at which the State may
restrict new construction using septic systems. A public sewer system
often takes over six years to construct. Also, it is very expensive.
6. Should Kill Devil Hills build or participate in the building of
a public sewer system to handle the growth anticipated during
the next ten years?
a. Yes
b. No
191

QUESTIONNAIRE-2
GROWTH
In addition to demands placed on the town to provide new services, a
doubling of the permanent and seasonal population may affect the image
of the town as a family beach community. Although it may make the
delivery of some services (such as fire and police) more efficient, it
will probably reduce the amount of open space.
7. How do you feel about the town's growth during the next ten
ears?
a. I'.he town should attempt to increase its natural (projected)
growth rate.
b. The town should accept its natural growth rate.
c. The town .should grow only as much as possible without costly
additional improvements.
d. The town should attempt to slow down the natural growth rate.
HOUSING MIXTURE
The housing in Kill Devil Hills consists of a mixture of single-family,
multi -family, townhouse, cottage court, low profile motel and.high-rise
motel. Our past emphasis has stressed single-family homes. Within the
last ten years we have added several high-rise motels. A shift in the
composition of housing can influence the persons who come here, the money
they spend, the services the town provides, the costs of those services
and the tax base with which to pay for them.
8. Which of the following statements best approximates how you
feel about the ideal future housing mixture?
a. Weshould increase the proportion of multi=family and
townhouse development.
b. We should increase the proportion of cottage court and
low profile motels.
c. We should increase the proportion of high-rise motels.
d. We should increase the proportion of multi -family, townhouse,
cottage court, low profile motel and high-rise motels.
e. We should increase the amount of single-family houses.
f. We should keep the same mixture as in the past.
9. What factor was most important in your above decision?
a. Preserve the "familybeach" atmosphere.
b. Increase in the amount of money spent by tourists.
c. More efficiency in the cost of services.
d. Preserving open space and the environment.
e. Strengthening the tax base.
10. Regulations in the town specify that no building can be higher
than fifty feet. Would you favor allowing greater building
hem?
a. Yes
b. No
182

QUESTIONNAIRE-3
OPEN SPACE
The moderate density we have reached in 1980 has left us with much open
space. Open s ace is undeveloped, vacant land. There are two types of
open space: 1� space around houses and.buildings and 2) large tracts
of several acres. Large tracts can be obtained through purchase or
density transfer, such as happens with planned unit development where
a developer dedicates open space in exchange for being allowed to develop
a portion of his propertywith greater density. Large lot sizes result
in small open spaces around houses.
11. Do you desire to see large tracts of open sace in'the town?
a. Yes unqua ifie
b. Only if it can be accomplished without the town purchasing
them
c. No
12. Where would you prefer to see largo tracts of'o en s ace?
a. beach c. interior or soundside dunes
b. sound d. wooded or vegetated areas
13. How do you feel about the lot sizes for single-family dwellings?
a. too small
b. adequate
c. too large
14. Should the town ado
planned unit deye o
a. Yes
b. No
ENVIRONMENTAL FEATURES
an ordinance fav6rinq'develoaing with
Environmental features in Kill Devel Hills include ocean dunes, wetlands
and the Nags Head Woods. The Woods contain rare and endangered species,
fresh water ponds (town water supply), dunes, forests and marshes. Ocean
dunes and wetlands are protected by the State. The State also requires
a setback for septic tanks and fields from the fresh water pond.
15.
Should the town -enact large
centa4e of the lot to be lef
a. Yes
b. Only large lot zoning
c. Only a requirement that a
vegetation
d. No
percentage'of the lot be left in
' 16. Should the town seek to rotect'the dunes in'the Woods and on
the soun sie.
a, Yes
b. No
• a.
183

QUESTIONNAIRE-4
RECREATIONAL FACILITIES
17. From the follow'inq facilities, please select and'rank'those
for which you feel there is a'stron enou h need to justify
18. their been rovided at ub is expense. Please place the
most important facility in the space at the top to the left,
19. second choice below it, etc. Leave blanks if you do not wish
to provide any more facilities.)
20. a. marinas and boat -access f. indoor ball courts
b. parking for beach access g. ballfields
c. bathhouses h. picnic facilities
d. playgrounds i. jogging and walking paths
e. tennis courts j. bikeways
k. convention and meeting hall
ZONING
21. How do you feel about the amount of land.zoned for commercial
use.
a. too little'
b. adequate
c. too much
22. Da
ap
a.
b.
u feel that the location
ariate?
Yes
No
TRANSPORTATION
commercially zoned lands is
The bypass is at capacity during the summer months. The costs of remedying
this problem vary with the land which needs to be purchased and the area
which needs to be paved. Some alternatives get better results, some require
major cooperation from State agencies, and some cause personal inconvenience.
23. Please rank the following alternatives in order of preference.
a. Keep present situation as it is.
24. b. Make the bypass four lanes.
c. Build feeder roads along both sides of the bypass.
25. d. Build a new two-lane road along the sound.
e. Restrict commercial access on the bypass; eliminate left
26. turns; prohibit new streets from entering bypass.
27.
28. Of the factors you considered in making your'decision in the
prior uestion,'which'was the'most im ortant factor?
a. the degree to which the problem would be solved.
b. the time it would take to solve the problem
c. the costs to the taxpayers of the State and Nation
d. the amount of personal inconvenience
e. the amount of cooperation needed from State agencies.
184

QUESTIONNAIRE-5
ALTERNATIVE TRANSPORTATION
29. How do you feel about a transit system to serve the area from
Southern Shores to anteo?
a. favor a public system only
b. favor a private system only
c. favor either a public or private system
d. do not favor any transit system
FUNDING PRIORITIES
30. From the following projects, lease'select and rank those
ro'ects which ou favor funding with u61ic monies. Please
31. p ace the letter of the item you feel is most important at the
top space to the left, etc. Leave spaces blank when you reach
32. your limit of spending.)
a. pave local roads
33. b. improve water system
c. build public sewer system
d. build recreational facility
e. build regional hospital
f. build public transit system
g. build parking area for beach access
h. purchase 'open space
RELATION WITH OTHER GOVERNMENTS
34. Would you favor the creation of one municipality from all the
Dare County commu m ties nort 'of" -the Oregon'Inlet?
a. Yes
b. No
COMMENTS:
185

C. ISSUES FROM FORUM
1. complete public participation
2. alternate routes for 158
3. public sewer system
4. growth policy
5. PUD as a method of developing
6. need for industrial uses
7. policies concerning high-rise development
8. need for public recreation facilities
9. need to address surface water drainage
10. holistic approach to planning
11. oceanfront development policies (mixed use)
12. need for transitional areas
13. need.for tax base to pay for facilities
14. need for beach access/public parking
15. need for pedestrian/bicycle ways
16. need for convention center
17. need to look at zoning
18. need for Outer Bank sewer authority
19. need to implement beach access plan (access structures)
20. need to protect the dunes
21. need to control beach driving
22. practicality of county -wide sewer (high costs)
23. need to coordinate management of Woods with Nags Head L
24. combine police/fire with Nags Head
25. establish priorities

QUESTIONNAIRE-7
26. need to look at other taxes (sales rather than property)
27. beach community consolidation
s 28. public transportation
187

—.. _.
C. PUBLIC PARTICIPATION PROGRAM
INTRODUCTION •
Public participation is necessary for effective land use planning.
Since land use planning affects a wide range of economic, social,
environmental and institutional. interests, it should be carried
out and implemented in a manner which meets public satisfaction.
When properly developed, public participation in the planning
process facilitated the identification of local issues and public
preferences and fosters the evaluation and development of manage-
ment alternatives.
Public participation is required by the North Carolina Department
of Natural Resources and Community Development for land use plan-
ning under the Coastal Area Management Act. The Land Use Planning
Guidelines (15 N. C. A. C. 7B .0207) state: "Local governments
are encouraged to employ a variety of participation technqiues to
assure that all segments of the community have a full and adequate
opportunity to effectively participate in planning decision -making.
The public participation program must be as carefully scheduled
and timed as the technical program, with specific activities keyed
into particular stages of the technical program. Thus, under such,a
public participation program, by the time preliminary plan alter-
natives are developed, more widespread response and more intelligent
reaction can be anticipated.
OBJECTIVES AND APPROACH
A. 04jectives:
to

PPP 2
The public participation program is designed as an integral part
of the planning process. The following objectives are to be strived
for during the planning process:
(1) to develop an understanding among citizens and the organized
•' private interest in the community of the principal physical problem
M
and needs of the area and the role of planning in dealing with
them and bringing about a more liveable environment.
(2) to cultivate the practice among civic leaders and organization
e
of sharing in the planning process, from the earliest stages to
review of the final plan.
(3) to provide media for reporting on planning studies and
recommendations so that civic action programs have the benefit of
studied analysis of the community's problems and needs.
(4) to overcome the lack of, or problems of, established political
mechanisms so as to reach segments of the population not adequately
represented in the planning and decisionmaking process.
(5) to communicate the concerns of interested citizens.
(6) to continue to build public confidence in the planning process.
(7) to continue to find ways to inform the public of plans, policies,
regulations and problems.
(8) to reflect changes in the public perception of their area, its
needs and resources, and the best use of these resources.
(9) to improve compliance with the planning program.
(10) to continue to disseminate and make readily availalbe infor-
mation that can lead to better land use decisions.

PPP 3
B. Approach:
The approach of the public participation program is to combine
an educational process with issue raising sessions, questionnaires
and public meetings. In order to assure participation of appro-
priate groups, a sector analysis will be prepared to determine what •
publics exist and their relative makeup of the community's population.
These groups need to be supplied with background information on
the basis for planning in the area. They should be given sufficient
lead time, before imput is needed, to review relevant information..
DETERMINATION OF PUBLICS
It is important to recognize, in reference to land use planning,
that there are many sectors of the public which vary in the time
they -spend in the community, their degree of participation in the
political process, their importance to the community, and the
interest group with which they must identify.
Some of these groups are listed below:
Groups Arranged by Political Imput
A. Permanent residents who participate in the governmental
process;
B. Temporary residents (summer inahbitants, monthly and
weekly residents)
w
C. Day users (close and remote)
D. Interested non-residents (absentee landowners and
a
others)
E. Permanent residents who do not participate in the
governmental process.
190

PPP 4
rz
Interest Groups
A.
General Public
I.
Vicarious Users
B.
Builders and Contractors
J.
Low Income Persons
C.
Realtors and Developers
K.
Retirement Persons
D.
Commercial Businessmen
L.
Farmers
E.
Commercial Fishermen
M.
Tenant Farmers and
F.
Sport Fishermen
Laborers
G.
Beach Users
N.
Industry
H.
Government Workers
0.
Military
P.
Civic Groups
During
a planning board work session,
the board was asked to
weight each
of the groups by percentage of
population and degree
of influence. Through this process a
list
of publics was prepared.
A. Forum:
A public forum was held with specific invitations to various
interest groups in the community. The first part of the forum
was educational; the second part sought to elicit community issues
and problems.
-B. Meetings of Governmental Bodies:
The planning process has been developed through the thoughtful
presentation of planning material and the discussion and reaction
of members of the planning board and the public. All meetings
are open to the public and advertised in the papers. In addition
the progress of the planning board has been reported regularly to
the elected officials at their regular, public meetings.
191

PPP 5
PUBLIC INPUT
A. Planning Board:
During the first planning board meeting, the various publics were
identified and weights were given to each group. Names and addresses
were determined through a selective random sampling procedure designed
to reach .at least some members from each group. These persons were
directly invited to participate in the issue forum. In addition, public
notice of the forum was placed in the newspapers and on community
bulletins of local radio stations.
B. Issue Forum:
The first part of the issue forum was educational. The second
part was designed to elicit planning issues from the community. These
issues were used to design the informational-questionnarie which helped
feed the decisionmaking process. In order to determine community
issues, the Nominal Group Method was selected to elicit responses.
C. Nominal Group Method:
The Nominal Group Method works as follows: The process begins
when an elected official or member of the planning board welcomes
the citizens of the community to the forum. The official will explain
the meeting's purpose (to solicit citizen's ideas about community
problems, goals and objectives). No attempt will be made at this time
to arrive at solutions during the meeting.
Thereafter the participants are given a sheet of paper with the
questions to be addressed. Such as, "In your opinion, what are the
development problems needing attention over the next few years? What
suggestions do you have to plan for the future of the area? What should
192

M.
the municipality lool like in the next 10 years? At this point -..an
identifiable example from a different situation indicating the type
of responses desired (problems, not symptoms or solutions) will be
shared with the audience.
It The citizens will then be divided into subgroups of five to ten
ps
people each. The subgroup members will be instructed to work
individually and silently on compiling a key word list of problems facing
the community. Particlpa�ts who finish early will be encouraged to
review their list for other -possibi1ities. After individuals are given
about a half-hour to compile this list of problems a recorder will join
each subgroup and ask each individual in a round-robin fashion for one
of his statements of community problems. The recorder will write
each participant's statement verbatim on a flip chart. No debate,
rewording or combining of items will be allowed. The purpose of this
phaseis to get as many ideas as possible listed without the immediate
burden of their defense.
This process will continue until each member in the subgroup has
the opportunity to enumerate all of his concerns. After this tabulation
is completed, participants will be allowed to mingle and discuss
among themselves the issues that were raised in the various,subgroups.
The subgroups will then be reformed so that a clarification of the
issues may be accomplished. Throughout this phase, the role of the
recorder is to minimize personalities entering the discussion and
a to keep a focus on the issues.
After a few minutes of clarification, the participants will be
asked to vote silently and privately on the five most important issues
193

PPP 7
before their subgroup. The voting will.be done by setting weights
on the problems selected (the most important item will be given a
weight of five (5). The votes will be collected and a tally made
for that subgroup. After each subgroup compiles its priorities,
the information is reported to the main group. Following a brief
discussion of the results, the citizens are notified of the use of
their concerns in policy settling. No statement of proposed outcomes
should be made at this point in the process to prevent false expec-
tations of potential courses of action.
Use of the nominal group process in setting community goals and
objectives may help reduce adverse reaction frequently associated
with land use planning. It may help citizens_to feel that it is
their plan. They will know what it contains and they will be familiar
with its purpose. Thus, they may be more willing to support future
management tools based upon the guidelines set forth in the plan.
It is important to recognize that land use planning involves the
resolution of conflicts among people about what the best uses of the
land are.
Having determined pertinent issues from the forum, these issues
will be discussed with the planning board. A questionnaire will be
developed to ascertain public attitude and opinion on the issues. The
questionnaire will be completed by telephone interview with attendees
of the issue forum and persons selected by andom sample from the.
voter registration lists. The results,of the questionnaire will be
tabulated and used by the planning board to develop tentative goals,
objectives and policies. At each stage of the technical planning
process, the forum attendees will be asked to continue to participate
as an informal advisory group to the planning board.
9%
194