1985 Land Use Plan Update-1985

DCM COPY DCM COPY
lease do not remove!!!!!
Division of Coastal Management
town of
NAGS. HEAD
p o r t h c a r o f i n a
198.5 LAND USE. PLAN UPDATE

The preparation of this report
was funded 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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NAGS HEAD 1985 LAND USE PLAN
Board of Commissioners
Donald W. Bryan. Mayor
Ronald E. Scott. Mayor Pro Tem
Carlton P. Nunemaker III -
Jeanne E. Acree
Robert W. Muller
Former Commissioner Phyllis S. Johnson
Former Commissioner T. Richard Harper
Plannina Board
A. F. Rollins. Chairman
Jerry McManus. Vice Chairman
Jennifer Frost
Robert Maher
Paul Royston
Ward Thompson
Plannina and Develooment Staff
William E. Collins. Director
David M. Ferris. Buildina Inspector
M. Edward Harrell. Zoning Administrator
Bruce M. Bortz. Code Comoliance Officer
Carole Lewallen. Administrative Secretary_
Ronnie E. Ballance. Buildina Inspector
Advisor
Timothy Beatlev
Coastal Resources Collaborative. Ltd.
Chapel Hill. north Carolina
Adopted by the Naas Head Bord of Commissioners on March S.
1986: and certified by the Coastal Resources Commission on
April 4. 1986.

'
TABLE OF CONTENTS
Chapter
1
Introduction
2
Assessing the Growth and Development Pressures
'
in Nags Head
3
Managing Growth in Nags Head
'
4
Shoreline Management and Protection
5
Hurricane and Coastal Storm Hazard Mitigation
6
Traffic and Transportation
'
7
Water Quality
8
Sewer and Water Service
'
9
Economic Development
'
10
3�
Housing
l
11
Visual and Aesthetic Resources
12
Recreation and Open Space
13
Nags Head Woods
14
Police and Fire Protection
15
Solid Waste
16
Public Participation and Intergovernmental
Coordination
17
Policies and Imolementation Methods
18
Land Classification System
References
Page
1
4
25
35
38
51
57
61
70
72
74
77
79
81
83
85
87
97
101

LIST OF TABLES
Pacre
2-1
Permanent Population
5
2-2
Population Projections
6
2-3
Buildout Factors for Unimproved Platted Lots
9
2-4
Buildout Factors for Unimproved Unplatted Parcels
10
2-5
Nags Head Building Activity
15
2-6
Residential and Motel Units
16
2-7
Commercial Building Square Footage
17
2-8
Current Develooment and Estimated Intensities
19
2-9
Future Total Buildout Under 1985 Com_oosition of
Land Use
20
2-10
Existing and Projected Water Consumption
21
2-11
Existing and Projected Trash Pick-up
22
2-12
Existing and Projected Square Footage of
Impervious Surfaces
23
2-13
Existing and Projected Assessed Value Structures
24
3-1
Acreage Comparison of Scenarios I and II
30
3-2
Effects of Shift to Single Family Residential
30
3-3
Acreage Comparison of Scenarios I and III
31
3-4
Effects of Increase in Commercial and Decrease
in Single -Family Residential Acreage
32
3-5
Density Comparisons Between Scenarios I and IV
33
3-6
Effects of Restricting Rate of Future Growth
33
5-1
Assess Value of Real Property Within 300 Feet
of the Ocean
44
ii

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LIST OF TABLES
Continued
Pace
5-2 Cumulative Summary of Real Property in 300-foot
and Flood Hazard Zones 45
5-3 Assessed Value of Real Property At -risk in
Incipient Inlets 45
5-4 Public Investment Vulnerable to Storm Damace 46
6-1 Evacuation Analysis 53
6-2 Evacuation Analvsis 54
8-1 Pro)ected Water Consumption at Residential Buildout 63
8-2 Water Distribution System 65
17-1 Interrelationships of Policies 96
iii

LIST OF FIGURES
2-1 Maximum Number of Dwelling Units with Total
Residential Buildout
8-1 Water Availability
iv
Page
13
67

LIST OF MAPS
Fragile Areas Map
Existing Land Use Mao
Hazard Area Map
Land Classification Map
v
Page
8
18
40
100

Chapter 1.
Introduction: Overview of Nags. Head_
and Land. Use Planning Process
The Town of Nags Head is a unique and attractive resort
community on the Outer Banks of North Carolina. A number of
characteristics make it an attractive place to live or vacation.
Among them are its proximity to water and beaches, its abundance of
open spaces, its generally low density of development, and the
' overall quality of its natural environment. Nags Head is primarily
an ocean -oriented community. The Town is fortunate to have
significant natural resources, including the ocean and its beaches,
' the Sound, the complex natural area called the Nags Head Woods
(consisting of stable, productive marshland, fresh water ponds and
steep migrating and stabilized dunes) and unique geological
' features like Jockey's Ridqe. Nags Head is a recreational
wonderland, closely tied to its natural environment.
Nags Head has been a quaint village consisting predominantly of
single family cottages and a few motels. Family operated
businesses and cottage courts made up the commercial sector of Nags
Head. These factors contribute to a certain charm, and a slow and
1 relaxing pace of life. The Town has been the annual vacation spot
for a countless number of families who make repeat visits from the
north.
' Nags Head has been slow to develop when compared to resort and
vacation areas along the eastern coast that offer similar amenities
1 (e.g., Myrtle Beach, South Carolina; Ocean City, Maryland). This
has partly been a result of the remoteness of the Town. However,
like all of the Dare County beach communities, Nags Head is
beginning to experience tremendous growth and development
' pressures. As an indication, the permanent population has been
growing at an annual rate of well over 10 percent. The most
significant growth pressures in the Town are, and will continue to
be, generated by seasonal resort development, however. Over
two-thirds of Nags Head property owners, for example, are not
permanent residents of the Town.
' A 1984 survey of the attitudes of residents and property owners
found that most were in agreement that Nags Head should remain the
' family -oriented beach it has been. The survey results also
highlighted the high importance placed by residents and
non-resident property owners on the quality of the natural
environment, including such things as access to beaches and the
' protection of open space in the Town. Yet, the extreme growth
pressures which Nags Head is currently feeling indicate that the
Town has been "discovered," and that this discovery puts in
' jeopardy many of the features and characteristics that make the
Town such an attractive place in which to live and vacation.

Furthermore, this growth is creating new and unique problems for
the Town, including such problems as effectively dealing with
hurricane evacuation and protecting the quality of its water
resources, among many others.
The local planning requirements of the North Carolina Coastal
Area Management program (CAMA) provide the framework in which to
' analyze and project these future growth pressures, identify the
problems and concerns they raise, and to identify appropriate
policies and actions for dealing with.them. CAMA mandates that
coastal localities update their land use plans at least every five
years, and what follows in this plan is the result of the updating
process. Nags Head is truly at an important juncture and this plan
update must provide essential direction and guidance for managing
Nags Head's growth, both in the short and long terms. It is
important to acknowledge that even if this planning effort was not
required under CAMA provisions, the Town would still have
' undertaken it.
The Town considers the following CAMA guidelines regarding
resource production and management issues not applicable and
relevant to Nags Head at this time and will not be discussed in the
plan:
' 1. Productive agricultural lands;
2. Existing and potential mineral productive areas;
3. Commercial and recreational fisheries;
' 4. Peat or phosphate mining and industrial impacts on any
resource;
5. Energy facility siting and development; and
6. Marina development and floating home development.
' The essential purpose of this plan is to permit Town officials
to make the most deliberate and informed decisions as possible
about future growth. The plan attempts to comprehensively analyze
' the likely impacts of growth, identify Town goals with respect to
these impacts, and present policies and actions to manage this
growth consistent with these goals. This plan will be used and
' referenced in future land use decision -making, and in particular by
several key sets of local actors: the Board of Commissioners,
Planning Board, Zoning Board of Adjustment, and the Town's
' Department of Planning and Development. As well, the Board of
Commissioners has appointed a Citizens' Advisory Committee to
collect public opinion on planning issues, and to act as liaison
between the Board of Commissioners and citizens in the community.

The land use planning in Nags Head is a continuous and ongoing
process. Numerous land use decisions are made each month. While
the following plan represents the codification of Town policies at
one point in time. the Town's land use plan is dynamic and
evolutionary. Hopefully. this plan provides the basis for
understanding the implications of future land use decisions
(including failing to take action), and will serve as an overall
framework for guiding future decisions by the Town.
Some significant ordinances adopted since the 1980 land use
Plan are: (1) Nags -Head Village Ordinance. which establishes
' stringent estuarine setbacks: (2) street standards for
environmental streets: (3) drainage ordinance; (4) motel, shopping
center standards: (5) water tan allocation ordinance; and (6) an
ordinance to eliminate multiple curb cuts.
Orcgnizat.ion_o* the Plan,
The plan begins with a review and analysis of population and
development trends in the Town, and the implications of this Growth
(e.g.. increasing service demands, impacts on environmental
systems, etc.; Chapter 2). Chapter 3 examines the different
dimensions of growth which can be modified to effect local Goals.
and the alternative approaches to growth management which might be
' used to accomplish this. This chapter also provides specific
examples of how the impacts of growth can be altered through growth
management intervention.
' Chapters 4 through 16 provide specific discussions of
particular substantive policy areas of relevance in Nags Herd.
These chapters discuss sub2ects such as water quality. shorelines
management and protection, housing, traffic and transportation,
hurricane and coastal storm hazard mitigation, sewer and water
service, economic development and others. Each of these chanters
' is structured in the same way, beginning with a discussion of
problems and issues. the delineation of a community Goal, and
finally the preparation of a fairly detailed .yet of land use
Policies to advance the goal.
' Chapter 17 ("Policies and implementation ,`Methods") analyzes
the policies identified in chapters 4 through 16 for their ability
' to advance a number of community Goals simultaneously. From this
analysis, a list of more specific implementation activities is
prepared. Finally, Chapter 18 discusses the Town's land
' clnssification system.

Chapter 2.
Assessing the Growth and Development Pressures In Nags Head
' Introduction
Nags Head is growing and changing, and the primary purpose of
this plan is to manage and guide these forces so that important
' values are protected and goals advanced. This chapter establishes
the baseline assumptions concerning future growth and provides an
initial starting point for identifying local growth -related problem
' areas, the magnitude of these problems, and the urgency with which
they need to be addressed. The theme of this chapter is that the
forces of growth and change are being seen in Nags Head as they
' have never been seen before, and that these forces will have
tremendous implications for everything from water quality to
hurricane evacuation.
This chapter begins by looking at statistics concerning the
growth of the permanent population of the Town. It goes on to
analyze the availability of land for future development, current
development and building trends, and projects peak levels of
development and population growth under total permissible buildout.
Finally, to illustrate the impacts of future growth in the Town,
' the increase in demand for such services as water consumption and
solid waste disposal, and the degree of negative side effects such
as impervious surfaces are projected.
' Permanent Population
Because Nags Head was incorporated in 1961, census data is only
available for 1970 and 1980. In 1970 there were only 414 permanent
residents in the Town (See Table 2-1). By 1980 this population
had more than doubled, and in the four years between 1980 and July
1, 1984, the permanent population is estimated to have grown an
additional 36%. Estimates of permanent population for Nags Head
beyond 1984 have not yet become available from the North Carolina
Office of State Budget and Management.
Some general conclusions can be drawn from the age class
' differences between the 1970 and 1980 census data. In 1970,
approximately 43% of the population was 45 years old, or older,
however, in 1980, 53% of the population was 45 years old, or older.
' Future projections of Nags Head's permanent population can be
made under different assumptions, using projections for Dare County
made by the State. Table 2-2 presents these projections under
' alternative assumptions. Column I provides population projections
for Dare County to the year 2010. Column II presents projections
of the Nags Head population based upon the proportion of the County
population that it constituted in 1980. It represents the most
' conservative projection. Column III calculates these projections

assuming that Nags Head's share of the County population increases
to 10:. Column IV computes the projection based upon the
percentage increase between 1970 and 1980, or 146%. Because of the
recent levels at which Dare County and the Dare beach communities
' have grown in recent years, the 146% projection assumption appears
most reasonable. Under this methodology, the Town will contain
over 6,000 permanent residents by the year 2000 and 15,000 by the
year 2010.
' Permanent population does not, however, capture the real growth
pressures to be placed on the Town of Nags Head. Rather, Nags Head
' is a resort community, which experiences dramatic increases in
seasonal population during the summer months. The problems of
growth with which the Town must wrestle in the future are generated
by this component of the population, and the residential and
commercial development produced to accommodate it. These premises
are better elucidated with other data discussed below.
Table 2-1.
Permanent Population, Dare County and Naqs Head
' Year Dare County Nams read
1960 5,935
' 1970 6,995 (17.9%) 414
1980 13.377 (91. 2%) 1, 080 (14W
' 1982 1,166 (14.3%)
1983 15,327 (14. 6%) 1.330 (14.1 %)
1984 1,395 (4.9%)
INote: Percentage increase from prior year shown in parentheses.

Table 2-2.
Permanent Population Projections for Nass Head_
Under Different Assumptions
Year Dare County bans Head
I II III IV
7.62% IN 146%
1985 16,529 1,260 1,653 1,764
191% 19,521 1,488 1,952 2,509
2000 25,805 1,968 2,580 6,172
2010 32,053 2,444 3,205 15,183
(I) Population estimates for Dare County from North Carolina
State Data Center, Office of State Budget and Management.
-(II) 7.62i represents the share of the Dare County population
that resided in Nags Head in 1980. This alternative
projects Nags Head`s future population based upon the
Town's population remaining a constant percentage of the
County's population.
(III) Population estimate based upon the Town of Nags Head's
population increasing to 1O% of Dare County's total.
(IV) Population estimate based upon 146: population increase
observed from 1970 to 1980. This alternative assumes Naas
Head will continue to grow by the same percentage that it
grew between 1970 and 1980.
6

Land Availability and Potential Development
The Town of Nags Head contains approximately 4,600 acres. There
existed in May, 1984, approximately 3,928 dwelling units in the Town,
with the vast majority in low -density residential uses. Of these
total dwelling units, some 3,633 are currently served by on -site
septic systems with the remaining 295 units served by packaged
treatment plants. Nags Head contains a number of platted lots which
have not yet been developed. Specifically, there are 2,592
undeveloped platted lots, of which 1,883 are acceptable for
development and connection to a conventional on -site septic system.
The remaining 709 undeveloped platted lots include 127 lots that are
completely unbuildable due to CAMA and the federal wetlands
protection program. The remaining 582 lots are unbuildable with
conventional septic systems due to unsuitable soils. These 582 lots
may be built upon, however, if alternative methods of wastewater
treatment and disposal are used. The fragile areas map on page 8
depicts the location of unsuitable soils and wetlands. The map also
' shows the small surface water supply watershed (AEC) around the Fresh
Pond.
' The total number of developed and undeveloped platted lots in
Nags Head is 6,520. Of these, the total potential number of dwelling
units is 5,811. An additional 582 dwelling units can be built, but
located on lots considered unsuitable for the use of conventional
septic systems (See Table 2-3).
In addition to these lots the Town contains land yet to be
Platted. The potential of unplatted parcels can be measured under two
scenarios: (1) assuming the use of conventional septic systems at a
density of 15,000 square feet per dwelling unit; and (2) assuming
' package wastewater treatment facilities at the maximum density
permitted by the Town zoning ordinance.
' As shown in Table 2-4, there are 1,526 acres in the Town of Nags
Head which are unplatted, undeveloped, privately owned and subject to
development. This acreage does not include Jockey's Ridge State Park
or property in the Nags Head Woods owned by the Town or the Nature
Conservancy. Nags Head Village (the Epstein tract), which contains
411 acres and is zoned SPD-C, already has an approved master plan
allowing 1,798 dwelling units and 900 motel rooms. The remaining
unplatted, undeveloped acres, if platted with 15,000 square foot
lots, would result in 1,848 dwelling units served by septic systems.
' If development on the unplatted and undeveloped parcels is served
by package wastewater treatment facilities, the density of this
development would be determined by the Nags Head Zoning Ordinance.
One thousand, five hundred and twenty-six acres, including the
Epstein tract, are available for development with the use of package
facilities. At the permitted levels of density in the various zoning
' districts, 6,576 dwelling units could be built on currently
undeveloped parcels, plus 900 motel rooms approved on the Epstein
tract.
7

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i " '. --",V��' -t�,-Rv��`Q- , �; W� ID �,�-�::` ��---.'---,,�:'�,Uit-i'� �-�-,' ?�"��?,�,����,�.�-��,���---..*��,�',,�
,-��A� ... , SL.i L . - . � -`��%-�--� 47�,�----,,-:�- .k � -
_
, __ _*,_, _ _ ,__ * .4 , i_ _ - - 777 ---`W;� a-.- ull - '! -�-- - " i . I
_
- - - 1��U .*X . ,_�, �, . � ;. " i -: ' -.- . L., , .-,.. . _ .L , ,
_ . ., - , . L . ==�;�- , I :77777�L­' , -� � _." -L; "��.:: �.4---..� -L�--',;.�k!��,'�,*-' ?'M -, t ,m'.:'
- �
- - -- , . ,�. _� , '. ,�
,�, " .�. , - ., . , " I
.� ; .Z- . _ ,
- _ �Ve:�I'�, . ,
�
't , - B - . " .1 I .... :, . � , : - - � " li�: , -��j ,.,- :�:I-Wic�, ,. , , , ,­v -, �;�I, .'-�;"�.;,..Z,1.1;,�,�,,�.-�:-��� ....'., , ` I-,' - , .-- ,,-.--�, -t-W
04;
i
Ix I+xI - L� � I W1. 'Ile z I : % L: .. - : -, � , �6 � 'n �� ., I It
.� -- R I �- - 11� - - L , L : � I � I... a " f i;:� L "�,�., 7, . L . ., - " ,,-,. -4- ___
- 1� i - , . - -
. � , �4� � , 'W �!-- . , 1. i _ L . � " L � : ; , � , �5��-- ­ , � � , �� ,� ,- . �, . ,. , , vt Ulflc� , �
. � , . . -
. ,4. .
, . v ��,.: . .
� i- 7�: , � . ..... ­ .. , , . ,W::

Table 2-3.
Buildout Factors for Unimproved Platted Lots (May. 1984)
District
Total Platted Lots
Acceptable Platted Lots*
R-1
27
23
R-2
1,229
909
R-3
70
63
CR
108
73
C-2
9J9
625
SPD-20
199
190
Total
2,J92
1.883
*Acceptable based on marginal or suitable soils and located outside of CAMA AEC.
Existing dwelling units ifrom 1950 Land Use Plan 3,928 DU's
plus building permits to May 1984)
Unimproved platted lots 2.592
Total potential residential buildout on platted lots 6,520 DU's
ion septic systems)
Unacceptable platted lots -709
Watland AEC lots 8o
Ocean erodible AEC lots 47
Unsuitable soil lots 582
Estimated Residential Carrying Capacity 5,311 DU's
fusing septic systerirs on lots permitted
by State regulations.)
Source: Nags Head Carrying Capacity Study, 1984.
9

'
Buildout Factors
Table 2-4.
for Unimproved Unplatted
Parcels (May IEL
'
District
Total Unimoroved Acreace
Unsuitable Acreaoe*
R-1
95.3
31.5
R-2
237.6
25.6
'
R-3
25.2
0.0
CR
7.0
0.0
'
C-2
SPD-40
90.8
658.7
17.1
31.5
SPD-C
411.2
0.0
'
Total Acres
1.525.8
105.7
Note: This total does not include publicly
-owned land.
'
*Unsuitable soil on entire parcel.
'
Residential Buildout at Densities from State Health Regulations
(based on
15,000 square foot lots
for septic use)
'
District
Acreaoe
Buildout
R-1
95.3
249 DUI
R-2
237.6
03 DUI
'
R-3
25.2
66 DUI
CR
7.0
18 DU's
C-2
90.8
237 DUI
'
SPD-40
658.7
658 DU's
Subtotal
1,848
'
SPD-C
411.2
1,798 DUI
SPD-C
900 Motel rooms
Total
1.525.3
31646 DUI
900 Motel rooms
'
Source: Nags Head
Carrying Capacity Study,
1984.
-'
3.0

Table 2-4. Continued
Residential Buildout for Unimaroved Unnlatted Parcels
at Maximum Permissible Densities
(as found in the Zoning Ordinance May, 1984)
District Acreage Density Permittee
R-1 95.3 2.9 DU/acre
R-2 237.6 3.9 DU/acre
R-3 25.2 (8.0 DU/first acre
CR 7.0 12.0 DUlall subsequent acres)
C-2 90.8
SPD-40 658.7 4.0 DU/acre as in approved
SPD-C 411.2 Master plan
Total Acres 1.525.8
District
Acreage
Buildout
R-1
95.3
249 DU' s
13-2
237.6
834 DU's
R-3
25.2
272 DUI
CR
7.0
72 DU's
C-2
90.8
980 DU' s
SPD-40
658.7
2.371 DU' s
Subtotal
4,778
SPD-C
411.2
1,798 DUI
SPD-C
900 :hotel rooms
Total
1,525.8
6, 576 DUI s
900 Motel rooms
Note: Acreage
here not constrained
by septic regulations.
Source: Nags Head Carrying Capacity Study, 1984.
II

' As described above, there are 582 unimrroved nlatted lots in
Naas Head which cannot be deve.loDed with the use of a seotic
system due to unsuitable soils. These lots may however be
' developed with the use of alternative on -site wastewater treatment
technology. The two most widely -used methods of on -site wastewater
treatment on unsuitable soils are low-pressure pipe systems and
' mound systems. These systems require approximately one acre _per
dwelling unit for use.
' in summary, the total amount of residential development in Nags
Head on currently platted lots, assuminq no redeVelopment -tt higher
than existinq densities, is 6.520 dwelling units, not including
development on the approved Master Plan for the Epstein tract. Of
these 6.5.20 potential dwellinq units, there are 3.928 existing
dwellinq units and 2.59.' are undeveloped lots. AmDroximately 709
of these lots face severe constraints to develooment.-eavinq a
• likely buildout between 5,811 dwellinq units and 6.520 dwellinq
units.
' Total buildout of the Epstein tract is i.798 dwellina units
and 960 motel rooms. The total residential buildout on unp'_atted
parcels other than the Epstein tract is between 1.848 and 4,778
' dwellinq units. The total amount of buildout, includinq the
Epstein tract, on unplatted parcels is between 3,646 dwellinq
units and 6,576 dwelling units, plus 900 motel room?. As depicted
in Figure 2-1, the total residential buildout in Naas Head is
therefore between 10.166 dwellinq units and 13.096 dwellinq units.
Dlus the 900 motel rooms in the Einstein tract.
F
22

Figure 2-1.
Maximum Number of Dwelling Units with Total Residential 3uildout
15,000
10,000
.r.
R
b+
m
3
A
5000
cp
`v p • Q. G4- +11
O 4�~
C? G Source : Nags Head
tiN Carrying Capacity
�GGO4 ��� G�J yO��� Study. 1984
0F�
ti .a •e Q
13

H
n
I
Building and Develooment Trends
The density of actual construction that has occurred in Nags
Head since April 1980 has been higher than the density permitted by
the zoning ordinance. This is due to development on lots which
were Platted when the zoning ordinance allowed smaller lots.
The actual "market" buildout trend over the past five years
indicates that buildout is occurring at maximum permissible
densities or greater. In none of the zoning districts in Nags Head
is development proceeding at a density appreciably less than the
density permitted by the zoning ordinance (See Table 2-5). The
only significant differences between maximum permissible buildout
under the zoning ordinance and market trends over the past five
years are due to the development of grandfathered lots in
previously platted parcels.
During the five year period from 1975 through 1979, there were
526 residential and motel units built in Nags Head (See Table 2-6).
From April 1980 through May 1984, there were approximately 897
residential and motel units built. The development over the past
four years has consumed approximately 64 acres per year (See Table
2-5). With approximately 1,500 acres of undeveloped privately -
owned land subject to development, and assuming a continuation of
the recent development rate (64 acres per year), Nags Head -will
reach full buildout in approximately 23 years.
Increasingly, the more intense multi -family uses are locating
in the Town. In addition, commercial development in the Town has
increased substantially in the last five years. Table 2-7 lists
the most recent commercial protects and the square footage of
structures involved. The existing land use map, on page 18, shows
the location of the Town's present
development. Nearlv all of the
commercial
development is located
along the Croatan Highway and
most of the
multi -family and motel
development is on the
oceanfront.
While the following tables
describe the rate of
growth, the
existing land use map
depicts the mixture of land uses
throughout
most of the Town.
1
14

Table 2-5.
Naas Head Building Activity
(April 1. 1980 - May 23, 1984)
Densitv
Zone
4/1/80 to 12/31180
Calendar 81/82/83
1/1/84 to 5/23185
Period Total
Acres
iDwellino Units/Acre)
R-1
8 SF
3 SF
11 SF
3.8
2.9
R-2
58 SF
200 SF
44 SF
302 SF
104.:
2.9
2D
17D
2D
21D
10.8
3.9
R-3
5 SF
8 SF
13 SF
4.5
2.9
CR
6 SF
2 SF
8 SF
4.0
2.0
1 D
13 D
1 D
15 D
11.1
2.7
41 XF
45 Y'F
86 tF
6.5
13.2
69 MOTEL
17 MOTEL
85 XOTJ EL
5.1
16.9
C-2
25 SF
61 SF
9 SF
95 SF
16.3
5.8
1 D
1 D
2 D
0.7
5.7
Other: Restaurant,
retail, etc.
61.7
• SPD
i SF
13 Sr'
10 SF
24 SF
11.4
2.1
20&40
1 CHURCH
1 NS6 HOME
17.0
SF = Single Family Structure
D = Duplex Structure
MF = Multi-famliy Unit
S,-mmary
Total New Construction., 411/80 through 5123/84
453 Single Fat7i1Y DUI on 144.1 acres, or 3.1 DU's/acre
76 Duplex DU's on 22.5 acres, or 3.4 DUI s/acre
86 Multi -family DU's on 6.5 acres, or 13.2 DU's/acre
Other 83.8 acres
Total 257.0 acres
Total Residential Acreaoe 173.2 acres
Overall Residential Densitv 3.6 DU's/acre
Building Starts, Single Family, 1975-1979 Q 980 LUP) 479
Building Starts. Single Famiiv, 4/80 - 5184 5c9
Source: Nags Head Carrying Capacity Study. 1984.
15

Table 2-6.
Residential
and Motel
Units 1975
-_1964.
Year 5innle-Family
Ounlex
;",ulti-Family
?!otel
'otal Units
1975 38
0
0
0
38
1976 79
2
12
3
96
1977 124
2
18
6
150
1978 127
0
7
0
134
11379 108
0
0
0
108
1980 121
6
42
2
171
1981 109
22
16
19
166
1982 73
22
43
10
148
1983 112
28
18
59
217
1984 145
6
15
29
195
10-Year Averace 104
9
17
13
143
Source: Nags Head Planning and Development Department
Since 1974, the Town has experienced considerable commercial
development (see Table 2-7). Four major shopping centers have
been built (Surfside Plaza, 24,600 square feet; Nags Head Station,
18,000 square feet; Satterfield Landing, 44,700 square feet and
the Outer Banks Mall, 138,600 square feet). In addition to four
major shopping centers, seven restaurants were built in Nags Head
between 1974 and 1985, with a combined square footage of 35,000.
In the future, local seasonal economy will determine to some
extent the number of new commercial establishments in Nags Head.
As the year-round residential population increases, the need for
additional services and office space also will increase. The
commercial character of the Town has changed over the last ten
years from a community with no shopping centers, few restaurants
and little office space to a community which can provide many of
the amenities found in large cities.
16

1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
Table 2-7.
Square_Footage of Commercial Buildings Built or Remodeled in Nags
Head,
from 1975
through 198L
Year
Restaurants
Retail
Entertainment
Service*
i7ffice
1975
0
13.SOO (1)
0
3,796 (1)
384
(1)
1976
4,290 (2)
11,987 (3)
4,440 (1)
0
504
(1)
1977
224 (1)
39,038 (10)
0
2,500 (1)
108
(1)
1978
3,000 (1)
14,994 (8)
5,160 (2)
0
0
1979
0
13,670 (6)
0
0
7.330
(2)
1980
4,589 (2)
19.281 (3)
0
9.390 (2)
0
1981
20,964
5,580 (2)
20,428
37.960
7,360
(3)
1982
1,240 (2)
168,883 (8)
3,196 (1)
480 0
2,964
il)
1983
3,458 (2)
69,516 (4)
0
1,705 (3)
1, 020
(2)
1984
19,346 (4)
5,347 (2)
30.116 (3)
0
280
(1)
10-Year Total
57,111
361,996
63,040
55.831
2f>, 600
Service includes Health Care Center, Banks, Churches, yursina Hape, 8as Staticos.
;Vote: ;Number of huildino cernits issued in parentheses.
Source: Nags Head Planning and Development Department
17

Existing Land Use Map
FV-I

k
1
s
Iffes,"hm MMI mrJill I
W+
u
p �.S ��
il.4 - .����i, ..� ��
v u , OOB00 == �70CIF..rw . v ii iii-➢- :� \ rJUgO. ....... �►�.�.�iqt. nan r..:___ ,owyt.:•ll..T__
fl11f�11=1N1::1 :p\.�INIIIIIT ::_,.:IUNI _ ! ni 1:Il/-...��1.II:•�•:�::•:-�'�I���'�III��� �:}':':®•'�,1,.\gig\ •� III Is\\ xs :K
��!..S�I�\ 1N!M��7]!MS �.iS'Ml�w�vJt7ti4VXy.MVl7LRK.l _v. _�,_ I7ltlalJ.al7N74xIGM.uA�.......w.:weftY.nz.�rtm�..�xx.�v..•,��._.�..,........._...�..-..ur�_�aa: xx._ _� .�
L
10
MUM Immimp
..

Seasonal Population
Making certain assumptions about the number of individuals
residing in each dwelling unit and hotel/motel room in the Town
allows us to estimate the potential seasonal peak population. Table
2-8 presents the methodology and calculations for this procedure,
and indicates that under existing development, peak population can
exceed 30,000 people.
The estimated number of residents during the peak period (e.g.
when hotel/motel rooms are at full occupancy, and so on), is in
stark contrast to the 1.500 or so permanent residents residing in
the Town. It is clear that it is this peak or maximum population
which must be considered for planning purposes.
In addition to the population estimates, existing development
includes over 5.000 restaurant seats, nearly 600.000 square feet of
retail structures, over 300.00 square feet of service
establishments along with offices and warehousing.
Table 2-8.
Current_ Development and Estimated Intensities. July 15._1985
Current 'Land Use Potential Seasonal
Land U-ca Comnosition Current Development ?ovulation
Averace
Acres Fercentae Intensities
Develoced of Total Per Acre Total Factors Total
PTflr
SF� 616 65.8% 3.9 DU/AC 2402 DU's 8 PEDPLE/DU .216
MjF 33 3. 5% 7.8 DU/AC 257 DIP s 6 uS,DPLE/DU 1. 542
,1101X* ERCIAL
Restaurant
,rot el/Cott
Retail
offices
Warehouse
Services
37
3.91,
139 SDTJAC
5143 SEATS
26
13. 1y
7T
P.C� ,lflC
8 5 JEDJim I(� r
2�6o LNITS 3.:, u; iDU . Q. C..O
76
S.2:
7673 SF/A
583.1.48 S=
4
Q.4%
S-123 SF/AC
25.312 SF
2
V.L=
rla8o SF/Po
_9.2.60 SF
43
s.5�
8248 SF/AC
354.664 St
535
loo. i,A
30.768 .
5ource: Naqs Head Planning and Development
19

Pro-Lectinct the Impacts and•_ Implications of Future Growth
As Nags Head continues to grow and develop, the size of its
peak population will grow as well. The previous analysis of land
availability, permissible development and building trends permits
us to estimate the extent of future peak population and in turn
demands placed upon the natural and man-made environment. Table
2-9 presents the likely peak population that would.result from the
maximum buildout, with the current composition of land uses. This
results in a predicted peak population under complete buildout of
over 100,000 people. Build out at the current composition of land
uses also will produce almost 3 million square feet of service
establishments and 1 million square feet of retail structures. In
addition to office and warehouse development, buildout will produce
almost 17,000 restaurant seats.
r
Table 2-9.
1
Future Total
Buildout Under
1985 Composition of Land Uses
Lant Use
L3Y.G Use Corimosition
Pro:etied Intensities Pa:ulation
^-rolected
Acreage for
Percentace
Total Acres
InL2nsitV
Develonsient
of ;oral
Developed
Per Site Acre
Iota:
Factors
_
o.a_
RSFD=_:�TiA'
5r
14(!7
55. 8�
cC!?3
3.9 DU PC
7394 DU' S
8 ::cC;p—/DU
__
cs..?O
r/F
76
3.J:
109
_
7.a DU/AC
RO DU's
_ _
6 �EG'L_iDU
�!u:,
r. r r:'IC AL
es:auraY!i
34
a. 9f
12i
139 SEA T /AC
161815 SEATS
`"ute/Coil
287
13.4.
413
22.7 LhiT/AC
:i\ITS
3.C_-PiiUvlT
??Lal
i
1/5
8. LP
�; �-/AC
i9.37
`FLJi a
Offices
9
0.4X
14
63218 SF/AC
88,592 S;
garehcuse
3
0.2%
5
SEW SF/AC
48.4OO SF
Services
98
4.6%
140
8248 SF/AC
1.154.7220 SF
ai
ISource: Naas Head Planning and Development Department
20

This projection can then be used to estimate the impacts on
public services and facilities. Tables 2-10 through 2-13 below
project the impacts of future growth to maximum buildout levels for
' several key community services and facilities.* For instance, Table
2-10 indicates that water consumption under future total buildout
will increase by over 200%, from.2,O6O to 6,766 thousand gallons per
' day.
Table 2-10.
Existing and
Proiected_Water
.Consumation
(thousands
of gallons
per day)
Land Use
Factors
Total under 1g85 Deveionment
Total under Caroiete luzlcout
;, _;11nriiI-{
5F
435 GAD/DU
1044
3432
N/F
326 GAD/DU
84
277
1
LC�. 'TCIPL
Restaurant
35 GAD/SEAT
180
587
*otel/Cott
213 GAD/UNIT
609
1997
Retail
15 GAD/100 SF
87
289
Offices
7.5 GAD/= SF
2
7
Warehouse
7.5 GAD/100 SF
1
4
Services
15 GAD/100 SF
53
173
Total
2060
6766
thousands GAD
tnousanvs AD
r
r
Source:
Nags Head Planning
and Development Department
21

1
1
1
1
1
1
1
1
L
1
1
1
1
Table 2-11 indicates that the amount of solid waste Generated
by the community will increase by a similar extent under future
total buildout. Specifically, the estimated cubic yards of solid
waste per trash pick-up is projected to increase from 2,171 to
7,130.
Table 2 -11 .
Existing and Proie_cted Trash Pick-un
(cubic yards per pick-up)
!anG Use
Factors Total
under 1?85 Develooment
Tozai uncer Cam ete Bun co r
RESIDENT I aL
Sr
0.30 CYD/UVJ
720
2357
M/F
0.50 CYDJDU
129
425
CL•XJMERC1AL
restaurant
0.05 CYD/SEAT
257
841
,Motallcctt
0.14 CYD/UNIT
400
1313
Retail
0.07 CYD/100 SF
408
1348
Dffices
0.02 CYD/100 5F
5
18
;are.�ousa
0.02 CYD/100 SF
4
10
services
0.07 CYD/1() S.=
248
508
ra�a1
2171
cubic yards
7130
cubic vares
Source: Nags Head Planning and Development Department
22

Table 2-12 indicates that projecting existing assumptions
concerning impervious surfaces into the future will also result in
dramatic increases under total buildout. This projection has a
significant impact on the Town's drainage systems. including ocean
outfalls. Table 2-13 suggests that as the Town grows so also will
its tax base. The Town's estimated existing tax base of
approximately $234 million is projected to increase to $768 million
under future total buildout.
Table 2-12
Existing and Pro Zec ed Sguarg Footaae_of Impervious _Surf aces
�ar.•c Use
Factors
Total urcer 1965 Develooment
Total under Future Blh ldout
R_"SID=;TIAL
SF
i580 SF/DU
3.795.160
_M08.400
/F
1679 SF/DU
431.503
1.427.150
irXrca I,A,
3estaurant
168 SF/MQ7
864.024
2.825.59c
otei/Col
L3 5FILNIT
2,325.180
7.621.275
"'etail
35-5 SF/IGOSF
2,128.490
7,029.518
D;rice
355 SFYI00Sr
69.-�58
314.502
sarenouse
204 SF/ IOOSF
39,494
98,736
ervices
316 SF/1OOSF
1.120.738
3.648.915
Total
10,794.547
35.2fiG.286
(247 acres)
(809 acres)
Source: Naas Head Planninq and Development Department
23

Table 2-13.
Existing and Protected Assessed Value of Structures_
(millions of dollars)
!anal Use Fact O-s Total under 1985 Deveiooment 7ctal under Future Kui cout
RSSIDEWIA_
SF
50.000 DU
$ 144.12
473.40
t^/F
45.926 DU
11.80
39.05
Restaurant
1.320 SLAT
5.79
22.20
�otelicott
'5.5UU L'tiIT
44.33
145.31
Retail
2,700/l00SF
15.74
51.99
D; ; ice
2.900/SUUSF
0.73
2.57
Warehouse
1.500/1UC'SF
0.29
0.73
Services
2,800/10USF
9.93
32.33
7o-al
$ 233.73
$ 767.58
Note: These estimated values are in 1985 dollars.
Source: Nags Head Planning and Development Department
These types of projections say little, however, about the
capacity of the Town, and its natural and man-made environments, to
accommodate growth demands. For instance, to estimate that local
I water consumption will triple in size at some point in the future
does not address the question of whether this demand can be
satisfied under the existing water supply and distribution system.
Moreover, this type of analysis is value -neutral and does not
establish whether such improvements, if needed to meet future
demand, should even be made given the high economic and
environmental costs which may accompany them and the desires of the
community. A complete analysis of the impacts of growth should
carefully consider these issues. More specific information
concerning the "carrying capacity" of local environmental and
man-made systems to accommodate these growth demands is contained
in the chapters which follow in this plan. These chapters also
identify local goals and policies which assist in determining when
and to what extent growth demands can be satisfied. and at what
economic, social and environmental costs.
1
1 24

I
Chapter 3,
Managing Growth in Naqs Head
In the previous chapter we described the population and
development growth trends that the Town of Nags Head is currently
experiencing and expect to experience in the future. Along with
this growth are numerous impacts and implications, from the
increasing demands placed upon public services and facilities to
the negative effects on the quality of the natural environment.
Yet, Nags Head is not powerless in the face of these effects.
Rather, through carefully guiding and managing of future growth the
Town can minimize negative effects and maximize the benefits and
opportunities growth presents.
Characteristics of Growth
Efforts to manage future .growth can focus on one or more.of the
characteristics of this growth. At least five dimensions of growth
can be identified and can be modified through public policy to
achieve certain local goals: type, quality, density, location and
timing. Each of these dimensions is briefly described below.
1. ape. Type of growth or development usually refers to the
use to which land and space is put. Typical growth types include
commercial and industrial, recreational, single family residential.
multi -family, and so on. A growth management program may control
the type of new growth occurring in the community, for instance, to
preserve the community's residential character, to minimize
incompatible uses and to avoid the negative effects of certain land
use activities (e.g., noise, traffic, pollution).
Throuah tradition Nags Head has become a community dominated by
single family structures. The Town can exercise control over the
mix of land uses developing in the community through the zoning
ordinance and zoning map.
2. Oualit_y. The quality of growth usually refers to the
construction and design of the development occurring in the
jurisdiction. A community may wish, for example, to pursue
building code amendments to ensure that the quality of construction
is such that structures will withstand certain physical forces,
such a hurricane force winds. Quality may extend, as well, to the
aesthetic features of the structure, and the community may regulate
the exterior design of buildings to preserve the visual and
architectural integrity of the community. The amount of open space
required around a building may be considered a question of quality.

1 3 Den
sity. An important dimension of growth is the intensity
or density with which it occurs over the entire community and on
particular sites. A community may wish to control the density of
development to protect natural resources such as ground water
quality and estuarine areas. Controlling the density of
development has implications for the generation of traffic, the
consumption of water and demand for other public services and
facilities, and the scenic and aesthetic quality of the community.
The density at which a town develops has a profound impact on the
community's character. Nags Head is characterized as a low density
community.
4. Location. Certain uses and densities are appropriate in
certain locations, while others are not. Consequently, a key
dimension of growth which management programs are designed to
influence is its location. For instance, while a community may
decide that some identical uses are acceptable, placing them next
door to residential neighborhoods may not be. To preserve the
integrity of the beach and dune system in a locality or to reduce
the amount of the Town at -risk in a hurricane, it may be necessary
to locate development - and particularly higher density development
away from the oceanfront.
5. Rate. Depending upon the economic and other pressures
experienced by communities, unmanaged growth may progress at a slow
or fast pace. When growth demands are strong, and the resulting
pace of growth is quick, the problems created by this growth may
exceed the community's short term capacity to deal with it. Public
services and capital facilities become strained, with
cost-efficient expansion requiring additional time. Natural
systems become taxed, with little opportunity for local officials
to adequately assess these impacts and take appropriate mitigating
actions. Consequently, a growth management program may attempt -to
better deal with these problems by moderating and controlling the
permissible rate or pace of growth in the community. The recently
adopted Water Tap Allocation Ordinance is a local example of
controlling the rate of development in Nags Head.
Types_ofGrowth Management Techniques
A number of specific growth management programs and policies
can be employed to modify the above characteristics of growth to
achieve community goals. Six types or categories of growth
management programs are briefly mentioned here: (1) plans, (2)
development regulation, (3) capital facilities policy, (4) land and
property acquisition, (5) taxation, fiscal and other incentives,
and (6) information dissemination. The reader will note that each
of these types is represented in the policies and implementing
proposals contained in the subsequent chapters of this plan.
1 26

1. Plans. The Nags Head land use plan at its most general
level falls into this category. Plans represent the preparation of
guiding frameworks for making future decisions. Less comprehensive
plans can serve to guide and implement a larger plan. In
subsequent chapters, for instance, the capital improvements
program, and post -hurricane reconstruction plan, are discussed as
approaches to addressing and implementing the goals set forth in
this plan.
In addition to the 1980 land use plan, which this plan updates,
there exists in Nags Head a Surface Water Drainage Plan. It
identifies drainage basins, corridors and depicts problem areas.
The drainage plan is used in reviewing proposed development plans.
2. Development re_qulations. The tools and techniques included
in this category are those which seek to manage growth by directly
regulatioq it. Included here are traditional regulatinq devices
such as zoning and subdivision ordinances. as well as more
innovative programs such as the use of performance standards and
bonus and incentive zoning. The Town recently adopted a Water Tap
Allocation Ordinance intended to pace the rate of development with
the ability to develop a new water supply. The Naas Head Villaqe
Zoning Ordinance is another local example of an innovative
regulation. This ordinance is designed to facilitate bonus and
incentive zoning, cluster housing, shared common areas and other
techniques to enhance the quality of development. The Area of
Environmental Concern (AEC) program under CAMA is an example of a
shared state -local regulatory growth management program through the
issuance of major and minor CAMA permits.
One development control technique which represents a new land
use approach and could be implemented in Nags Head involves the
transfer of development rights from one parcel of land to
another parcel of land. The transfer of development rights (TDR)
concept is a simple idea. In TDR, a number of development rights
(density rights) is assigned to each land owner and a market is
established for exchanging or transferring these rights among
owners. Development is allowed in some areas and restricted in
others, in environmentally sensitive areas, for example. The
quantity and distribution of development rights is determined so
that the realization of the full development potential by the
owners of developable property requires them to augment their own
supply of development rights by buying development rights from
those who own land on which development is restricted.
The TDR system can lead to more effective preservations of
environmentally sensitive areas, open spaces, landmarks and
historic districts along with a more efficient use of land
earmarked for development. Implementation of the TDR system,
however, would require considerable staff time and public
acceptance.
27

3. Capital facilities policy. Many of the goals of managing
I growth can be accomplished through decisions concerning the
expenditure of public monies. For instance, a locality may be able
to redirect growth away from a particularly sensitive environmental
zone, by locating critical public services such as sewer and water
in other less sensitive locations. As a further example, a
locality may decide not to construct a public road to an
undeveloped part of town to prevent the future growth pressures
that such an investment would create. Nags Head, in conjunction
with the Town of Kill Devil Hills and Dare County, recently
expended funds to increase the water treatment capacity of the
regional water system. The impact of this decision is to allow the
area to continue developing.
4. Land and proeerty_acquisition. In many cases the most
effective way in which a locality can advance its growth management
objective is through the public acquisition of land and property.
The community may wish to preserve a pristine natural area, subject
' to intense development. through public acquisition. Acauisition is
typically used to secure lands for recreational and other public
uses. Acquisition may also be applied to structures and development
properties, for instance when a locality intervenes to purchase an
architecturally significant.buildin.q threatened by existing
patterns of development. Nags Head purchased land in 1981. for a
public beach and maintains ownership of 250 acres, most of which is
a maritime forest or watershed preserve.
5. Taxation. fiscal and other incentives. Growth can also be
directed and managed through taxation and other fiscal incentives.
This category includes mechanisms designed to influence private
development in a more indirect fashion. For instance, preferential
property tax assessment for certain desirable land uses (e.g.,
agricultural lands, open space) may reduce the private costs of
holding these lands in an undeveloped state, and thus reduce their
chance of development. As a further example, site value taxation
might be used in increase the holding costs of underdeveloped land
in areas where development is denied by the community, inducing
more compact and contiguous forms of growth, and deflecting growth
pressures away from rural and less suitable development locations.
While not under control of the Town, the federal flood insurance
program provides an example of financial incentive. Homeowners
employing sturdier construction standards can get reduced insurance
premiums. While the Town is not using fiscal incentives to guide
growth, it may deserve consideration to implement an open space
plan.
6. Information dissemination. Classical economic theory
suggests that consumers will make more informed decisions about
1 development and the use of land if they are given more complete
information. Programs in this category, then, involve efforts to
convey to consumers and the public certain crucial information.
28

For instance, a community may attempt to discourage future
development in high storm hazard areas by requiring the explicit
disclosure of this hazard to potential purchasers of land or
property in these areas. As a further example, a community may
attempt to bring about more environmentally sensitive building
practices by distributing information and data concerning the
environmental degradation normally incurred by the community.
The Town of Nags Head has produced several reports that
disseminate information about development. A Carrying Capacity
Report analyzes the Town's capacity to absorb growth in terms of
hurricane evacuation, water, sewage treatment and land
availability. The Hurricane Hazard Mitigation and Post -Storm
Reconstruction Report address the threats of severe storms and
hurricanes and depicts high hazard areas. The results of a public
opinion survey are cataloged in a report entitled 1964 Land Use
Survey. This document conveys the attitudes and preferences of
Nags Head's permanent and seasonal residents. A final document,
Storm Drainage Design Manual, explains to developers ways of
managing stormwater runoff.
Modifino_the Characteristics of Growth in Naqs Head
The above discussion indicates that communities are not
powerless against the pressures of growth. Rather, as we have
suggested, there are both a number of different dimensions to
growth which can be modified or managed, and numerous growth
management programs available for doing this. In this section we
will briefly illustrate how Nags Head can modify _growth trends, and
the implications of doing so.
To illustrate how the Town can control the impacts of growth,
we will return to the estimates of population and development under
the future total buildout scenario, described in Chapter 2. We
will compare the projected results of modifying one or more
dimensions of growth with the future total buildout under current
circumstances (i.e., no change from current land use).
Consider, for example, the possibility of shifting more of the
Town's available acreage to single family residential uses. What
are the implications of doing this? Table 3-1 below indicates that
Scenario II, as we will call it, increases the acreage in single
family residential uses to 81% of the total Town average, as
compared with only 66: under the buildout scenario which assumes
the existing land use composition (what we will refer to as
Scenario I). This would be accomplished by reducing the amount of
acreage in other uses, such as commercial and multi -family
residential.
29
1

1
1
1
1
i
1
1
1
1
1
1
1
1
1
1
1
1
1
Table 3-1
Acreacre
Comparison of Scenarios
I and I_I
Buildout Acreage Assuming
Buildout Acreage Assuming Ircreasinp
1985 Lard Use Comoosition
Amount Single Family Residential
Land Use
(Scenario I)
(Scenario 1I)
RESIDENTIAL
SF
2023 (66%)
2500 (81%)
MIF
109 (4%)
60 (2•)
CD?'M6RCIAL
:restaurant
121 (4%)
70 (2%)
4otel/Cott
413 (13%)
239 (8%)
Retail
251 (9%)
130 (4%)
Offices
14 (.59%)
5 (.c%)
Warehouse
5 (.2%)
2 (.06%)
Services
140 (5%)
70 (2%)
Total
3076
3076
Table 3-2.
Effects of
Increase in Single
Family Residential_
Scenario 1
Scenario it (increases SF)
Peak owulation
101,033
99,797
people
Water consumption
6,766
6,130
thousands UPD
Trash pickup
7,130
51518
cubic vard per cicxuo
impervious surfaces
35,260,286
27,353,048
scuare feet
Assessed value of structures $ 767.58
$ 747.60
million
30

The consequences of modifying the existing land use
configuration in favor of increasing single family residential
would have mixed results depending upon the goals established as
important by the Town. While Scenario II (increased single family
' residential) would decrease somewhat the peak population in the
Town, it would result in substantial reductions in water
consumption, solid waste disposal demand, and the amount of
impervious surfaces in the Town. Scenario II also leads to a
reduction in the Town's tax base, which may or may not be perceived
as a problem.
Now consider a scenario in which the amount of commercial
acreage under total buildout is increased and the amount of single
family residential is reduced (Scenario III). As Table 3-3 below
' indicates the amount of commercial acreage under the new scenario
constitutes about 41: of the total acreage, compared with about 32:
under Scenario I. Moreover, the proportion of total acreage in
single family residential drops from 66%t in Scenario I to 55% in
Scenario III.
I
Table 3-3
Acrea_ge_Comparison of Scenarios
I and III
Puildout Acreane Assuminn
Buildout Acreace Asseminn Increase in
1985 Land Use Composition
Commercial/Decrease in 5inale Familv
Land Use
(Scenario 1)
(Scenario III)
RE3IDE,N'TIAL
SF
2023 (66%)
1702 (55i)
IVF
109 (4%)
108 (4%)
CD?'tERCIAL
Restaurant
121 (4%)
120 (4%)
;hotel/Cott
413 (131%)
412 (13%)
Retail
251 (9%)
451 (15%)
Offices
14 (.5%)
22 (.7%)
Warehouse
5 (.2,Q
6 (.2%)
- Services
140 (5%)
254 (8%)
Total
3076
3075
' �1

Table 3-4_
Effects of Increase in Commercial
Decrease in Single Family Residential Acrea..ge
' Scenario I Scenario 1T1
Peak population
101,033
90,968
reooie
Water consunntion
6,766
6,555
thousands 5PD
?rash aickup
7.130
8,493
cubic vard per Pickuo
innervious surfaces
Assess value of structures
35,250,286
$ 767.58
42,212.569
3 761.20
square feet
niilion
The results of Table 3-4 indicate that such an increase in
commercial, and a corresponding decrease in single family
' residential, would result in a substantial reduction in peak
population and water consumption, yet an increase in the demand for
solid waste disposal and impervious surfaces. Under Scenario III,
the amount of assessed valuation would decrease somewhat.
Modifying these patterns of land use, then, will result in
different types and levels of impacts and service demands. Which
scenario is preferable will depend upon the _goals and priorities of
the community.
The implications of controlling the rate of growth can also be
illustrated through the use of these scenarios. In Scenario IV the
amount of development permissible by 1995 is controlled through the
issuance of limited water tap permits, under the Town of Nags
' Head's new Water Allocation Ordinance. Table 3-5 presents a
comparison between the expected development levels under the 1995
water tap scenario (Scenario IV) and the total future buildout
scenario (Scenario I).
While total future buildout is not likely to occur within ten
years, it can occur in 23 years under the current development rate.
The water tap scenario, however, imposes a specific limit on the
rate of town growth and will delay the time of total buildout.
1 32

Table 3-5.
Density
Comaarisons
Between Scenarios I
and I_V
Intensity
Total Density Buildout Assuming
1555 Under Water Tan
Land Use
Per Site Acre
1985 Land Use Composition
Allocation Ordinance
(Scenario 1)
(Scenario IV)
RESIDENTIAL
SF
3. 9 DU/AC
7. &?rD DUI
3, 758 LM s
y!/F
7.8 DU/AC
850 DU' s
454 DU' s
COMMERCIAL
Restaurant
139
SEAT/AC
16,819
SEATS
6.392
SSA-5
?otel/Cott
22.7
L'NIT/AC
9.375
UNIT5
3.321
UNITS
Retail
7,673
SF/AC
i,925,523
SF
895,078
S=
Offices
6,328
SF/AC
88.592
SF
i74.483
SF
Warehouse
9. 680
SF/AC
48,400
SF
25.234
SF
Services
8,248
Sr"/AC
1.154.720
SF
810.326
SF
Table 3-6.
Effects of Restrictinq Rate of Future Growth
Scenario I Scenario :V
Peak ovulation 101.033 44,410 oeooie
Water consumption 6,766 2,985 thousands SPD
Trash oicxuo 7.130 3,372 cubic yards oar pickuo
Iamoervious surfaces 35,260.286 16,972,290 souare feet
Assessed value of structures $ 767.58 $ 358.55 million
33

fl
As expected, Scenario IV yields much lower levels of peak
population, water consumption, trash pickup demand, impervious
surfaces and assessed property valuation. This illustrates how
controlling the rate of growth may prevent rapid buildout, and may
minimize the urgency of the tremendous service demands, and
pressures on the natural and man-made environments. Although the
water tap scenario is intended to depict the results of phased
growth, it also illustrates what the results might be of placing an
absolute cap on development and growth in the Town - in this case
at roughly the 44,000 peak population level. Such an absolute
limitation on future growth would prevent any future increases in
demands for such services as water consumption and solid waste
disposal, and would limit any further pressures on such limited
collective resources such as ground and surface water quality and
evacuation capacity.
As stated in the previous chapter, illustrations of the demands
of growth under different development scenarios say little about
the capacity of the natural and man-made environments to
accommodate them. Nor does this type of analysis indicate which
impacts of growth - negative or positive - are important or
acceptable to the community. If protecting the natural coastal
environment is not an important goal to the community, for example,
then there may be little reason to modify the characteristics of
growth to prevent its impact in this area. These are questions
addressed in subsequent chapters of the plan.
34

I
Chapter 4.
Shoreline Management and Protection
A. Strategies for Addressing Erosion
B. Public Access to the Shoreline
C. Public Use of the Shorelines
' Problem Statement
The Town of Nags Head depends heavily on its proximity to the
' water. It is the Town's ocean and sound shorelines which bring
people to the community and which provide the basic recreational
and aesthetic amenities fundamental to Nags Head's existence. As
growth continues in the Town, the pressures placed upon the use and
development of these shoreline will increase dramatically. The Town
believes it must take an active role in managing and protecting
' these shoreline resources.
Problems arise when developers fail to understand or
acknowledge that barrier islands are dynamic and ever -changing
environments. Barrier islands have been shown to.migrate (e.a.
Kaufman and Pilkey, 1977) and are subject to a complex and numerous
set of natural forces (e.g. washover processes. littoral drift,
inlet formation, dune and beach dynamics), and are further modified
by storms and hurricanes. Coastal erosion, both as a result of
normal offshore littoral patterns, the occurrence of hurricanes and
storms, and the general sea level rise which has been occurring
(Titus, 1985), make development along the shores of barrier islands
particularly tenuous.
In the past, problems have arisen by allowing the construction
of immovable buildings along the ocean shore, necessitating the
expenditure of public funds to protect these structures when
natural forces threatened them. Several methods have been used to
stabilize the ocean beach. Primary among them are: (1) sand
moving programs (e.g.,beach nourishment, sand pushing), (2) sand
trapping structures (e.g. groins, jetties) and (3) shoreline
protection works (e.g. bulkheads, seawalls, revetments.).
' Beach nourishment programs involve efforts to push or place
sand onto the beach in an attempt to build back former dunes and
upper beach. Because most beach renourishment programs involve
only the upper reaches of the beach, they increase its slope, and
' can actually increase the rate of erosion. Moreover, beach
nourishment projects are typically very expensive and the results
very temporary. A single northeaster may eliminate much of the
' sand deposited under a nourishment program. Beach nourishment
programs, however, represent efforts to preserve oceanfront
property without damaging neighboring property or destroying the
public's use of the beach.
1 35

n
I�
Groins and jetties are structures built perpendicular to the
shoreline. Jetties are often very long and intended to keep sand
from filling in inlets and shipping channels. Groins are smaller
and attempt to trap sand flowing in the littoral current. Such
' structures are expensive, unsightly and cause extensive erosion
problems down -current, as they rob these beach areas of the natural
sand replenishment they would normally receive.
Shoreline protection works, such as seawalls and revetments,
are built parallel to the coastline and are designed to shield
directly shoreline property from the ocean forces. The City of
' Galveston, Texas, for instance, has constructed a 17-foot seawall,
which protects it urbanized area. Such structures, however,
reflect wave action, and intensify currents which steepen the
profile of the beach and damage the property beyond the ends of the
structure. In the long run these structures serve to destroy or
seriously undermine the beach, require continual maintenance and
investment and are largely ineffective at protecting property from
' shoreline processes without perpetual nourishment of the beach
seaward of the hardened shoreline, the portion of the beach
available to the public would soon erode away. Moreover, these
' structures are extremely costly to build. Recognizing the
inappropriateness of such shore hardening devices, the Coastal
Resources Commission has recently adopted a CAMA amendment
outlawing their use of North Carolina ocean beaches.
A more responsible approach is to acknowledge the natural
processes and dynamics of the shoreline and to manage growth
accordingly. The location, density and figuration of development
can be modified to take into consideration these valuable and
important resources and to respect their natural processes.
Results from the 1984 land use survey tend to support this
position. When asked about shoreline erosion prevention measures
only 17: of the respondents expressed support for such measures as
' building seawalls and pumping in sand that would permit increased
building density on the beach. However, almost half of the
respondents (46%) said they would like to see increased setbacks
and high density development off the beach.
Disallowing the hardening of the shoreline will preserve the
' public beach, which is defined as the beach which exists between
low and high water lines of the ocean. While this provides the
public with a means of enjoying the ocean shoreline, it is hardly
enough to adequately satisfy the demand for public enjoyment. The
preservation of the public beach should be accompanied with
acquisition and development of public lands and accessways on both
the ocean and sound shorelines. This subject is further discussed
' in Chapter 12.
' 36

Goal
It is the goal of Nags Head to protect its shoreline resources,
and to interfere as little as possible with the natural processes
' and dynamics at work in these areas.
Policies
1. It is the policy of the Town to encourage future motel and
commercial development constructed of steel and concrete to locate
west of the beach road.
2. It is the policy of the Town that no person or legal entity
shall be permitted to build a seawall, ;jetty, groin or other
artificial device designed to stabilize the ocean shoreline. The
Town supports the CAMA provisions which prohibit the use of
share -hardening devices in these areas.
' 3. The Town opposes any shoreline management strategy that
damages abutting property or endangers the public beach.
4. Beach nourishment, the movement of sand on a particular
site, and the use of sand bags are permitted by the Town, but only
when they do not interfere with access to and use of the beach by
' the public.
5. The Town believes that a healthy dune system is important
and shall take all actions to preserve and enhance this system.
This will include regulating development to minimize its impacts of
the dune system.
6. The Town encourages measures other than hand structures,
such as groins or bulkheads, being constructed on the estuarine
shoreline for the purpose of temporarily stabilizing the es.tuarine
' shoreline.
7. The Town places a very high priority on the provision of
' public access to and public use of the ocean and sound shorelines.
8. It is the policy of the Town that movement of beach sand out
' of the beach -dune system should be prohibited.
37
�

Chapter 5.
Hurricane and Coastal Storm Hazard.�Mitaaton
A. Mitigation of Storm Hazards Prior to the Storm
B. Reconstruction after a Severe Storm
1 Problem Statement
' Hurricanes and severe coastal storms represent serious threats
to life and property on the North Carolina coast. North Carolina
is second only to Florida among Atlantic coast states in the number
of hurricanes striking the mainland. Between 1890 and the present,
North Carolina experienced 22 hurricanes, or an average of
approximately one hurricane every four years (Neumann et al., 1978,
updated for Hurricane Diana). •In addition to hurricanes, Nags Head
' is subject to tropical storms and northeasters, such as the
devastating Ash Wednesday storm of 1962. Hurricanes and coastal
storms create severe conditions of high winds, flooding and wave
' action.
Collective response to hurricanes and severe storms might be
' conceptualized in terms of four primary phases: (1) pre -storm
Mitigation. (2) warning and preparedness, (3) response and (4)
recovery and reconstruction. This chapter of the plan deals with
the first and last of these stages, and divides the discussion and
policy statements accordingly. Issues of hurricane preparedness
and evacuation regarding traffic and transportation in Naas Head
are discussed in Chapter 6.
Vulnerability to hurricane and storm hazards can be assessed
first by analyzing the nature and location of physical hazards, and
' then by estimating the extent to which people and property are
exposed to these forces. These assessments are provided below in
brief fashion. A more extensive analysis is provided in the 1984
Hurricane Hazard Mitigation and Post -Storm Reconstruction Plan.
Location of storm hazard areas
There are two approaches to delineating areas that are
vulnerable to coastal storms. One uses proximity to the ocean; the
other uses topography or elevation of the land above mean sea
level. Because both have validity, both are explored. Attain it
' should be noted that currently the North Carolina coast is being
studied under a hurricane simulation model know as SLOSH (Sea, Lake
and Overland Surges from Hurricanes). When this study is completed
it will provide detailed information concerning the location and
intensity of hurricane forces under different storm assumptions,
and this data should be incorporated into the Nags Head plan at a
future date.
1 38

Map 5-1 depicts the high hazard areas
of the Town which
'
includes flood zones, the 300-foot setback
area from the ocean and
incipient inlets. Map 5-1 also delineates
the ocean hazard Area of
Environmental Concern (AEC). Not shown on
Map 5-1 is a 75-foot
estuarine shoreline AEC. This map and the
collection of data
'
presented below are based upon the flood zones
as designated at the
time this plan was prepared (Flood Hazard
Boundary Map LFHBM]
#4-01-07, dated October 17, 1975). It is
expected that the
National Flood Insurance Program will soon
change the Nags Head
flood insurance rate map. This plan should
be updated in the
future after the new flood map is adopted
to reflect new flood
zones.
�Ca'�1

m = m = = r = = = = r m = = r