Land Use Plan Update 1980-1990-1980

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Division of Coastal Management
LAND USE PLAN UPDATE FOR
THE TOWN OF NAGS HEAD
1980 — 1990
Prepared for the Town by
COASTAL CONSULTANTS, LTD.
November 1980

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.

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
Method for developing information 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 Census, N.C.
Dept. of Administration, as sources for materials
(a) On population, see
(b) On value and attitudes, see
(c) On environment, see
(d) On other environment constraints, see
(e) On transportation system, see
(f) On housing
(g) On recreation
(h) On cultural
(i) On carrying capacity
Major Conclusion
Existing Conditions
T. Pbpulation:.
pea
average
winter/srping/summer/fall
per sector
by housing type
Housing
type, size, number
density
housing starts
revenue generation and costs
from alternate housing types
revenue in NH
Economy
Agriculture, Mining, Industry
Forestry and Woodlands
Fishing
Seasonal Use
II. Existing Land Use
see map
housing patterns
and patterns
i
25-38
39-54
55-76'
77-96
97-110
111-138
139-144
145-148
149-158
1
36
36
30, 31
33
33
27
33
35
134-138
135
139-141
91
91, 154
142
30-31
157

II. Existing Land Use Continued
uses
as constraints
III. Land Use Compatibility Patterns
Problems from Unplanned Development
Areas Likely to Experience Change in Use
IV. Areas of Environmental Concern
The Woods
V. Summary of Existing Local Plans
Existing policies from 1976 Plan
Existing regulations
State and Federal licenses and permits
Constraints to Development
I. Land Suitability: Physical Constraints
A. Soils --relations with septic systems
and water quality
B. Steep Slopes
C. Hazard Areas
D. Water Supply
II. Land Suitability: Fragile Areas
A. Coastal Wetlands
B. Lakes and Ponds
C. Woodlands
D. Dunes
E. Other
See.too section on AECs
III -Land Suitability: Resource Potential
A. Biotic Community
B. Recreation
IV. Capacity of Community Facilities
A. Water and Sewer
B. Roads
C. Bridges
Capacity Analysis
I. Population Projection
II. Future Land Use Need
Standards
Existing
1990 Needs (Low density)
Carrying Capacity
Policies
See Table of Contents to Section 1.
157
149-163
164-165
165-6, 36-38
82-86
94- 95
159-161
162-163
162
171-175
55-66, 90
89
88-89
72-74
82- 92
139-144
70-74
104-110
97-104
36-38
155-156
155
156
157-158

INTRODUCTION
This Land Use Plan is designed to deal with problems anticipated
during the next ten years; hence, the description 1980-1990 Land Use
Plan for Town of Nags Head.
The Plan is organized into four parts: Section One consists of
the principal part of the Plan, its policy and decision element. This
is the heart of the plan and is condensed in an essay format to allow
easy reading by the public. The perspective is that of the Town of'
Nags Head. For the sake of brevity, the words "Town" and "Nags Head"
are used extensively throughout the Land Use Plan. Unless otherwise
indicated by the context, the words "Town" and "Nags Head" as used
throughout mean and refer to the Board of Commissioners as the govern-
ing body of the Town of Nags Head. The internal format of this sec-
tion follows a general format of policy on a particular subject
area, alternatives considered, and means of implementation. In some
instances alternatives were not discussed. Most of these situations
resulted from only a no policy alternative being considered. A gener-
al discussion of implementation follows at the end of the section.
Section Two consists of Technical Reports which provide some of the
information considered by the Town in its formulation of policy in
Section One. These papers were written from the point of view of the
consultants to the projects, namely Coastal Consultants, Ltd. Some of
the attitudes and conclusions of the consultants were rejected or
tempered in the formulation of policy. This is a natural occurrence

and reflects merely a difference of opinion as to a proper course.
The Town is not aware of any substantial inconsistencies between
policy and evidence towards the policy.
Section Three includes a description of existing plans, policies
and regulations of the Town, especially policies from the 1976 Land
Use Plan.
Section Four contains the Planning Element used for public par-
ticipation and a list of federal and state permits.
References are provided in Section One to allow the reader to
find support material in other sections. References are to chapter
headings (see top right corner of page) and page number.

SECTION ONE: LAND USE PLAN:. POLICIES.
Page
I.
Growth
2
II.
Water and Sewer:
4
Soils and Environmental Quality of Sound and
Groundwater
III.
Transportation:
7
Hurricane Evacuation
9
Road System
12
Public Transit
IV.
,Environmental Constraints (not water or sewer related):
AECs
13
Erosion
14
V.
Open Space:
Housing and Recreation
14
Beach Access
15
Environmental Use and Open Space
16
VI.
Housing
Housing Mix (Density)
17
Historic District
18
VII.
Surface Drainage
19
VIII.
AEC and Land Use Plan
19
IX.
Nags Head Woods
20
X.
ORft
21
XI.
Energy Facilities
21
XII.
Natural Resource Uses
21
XIII.
Commercial and Recreational Fishing
22
XIV.
'Public Participation
22
XV.
Implementation
23

k
TEN YEAR PLAN (LAND USE PLAN, 1980-1990)
Nags Head prides itself as a family beach resort community on
the Outer Banks of North Carolina. Located within a short driving
distance of the Norfolk, Virginia area and a longer driving distance
to the Washington, D.C. and Piedmont, North Carolina areas, the Town
boasts of broad metropolitan appeal. The population of the.Town,
which is less than 1500 during the winter season, swells to nearly
13,000 people during the -summer months (Population, p. 12).
Nags Head is primarily an ocean oriented community. It has the
largest percentage of persons staying overnight in motels of any com-
munity on the northern Outer Banks. 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 (which
consists of stable, productive marshland, fresh water ponds and steep
migrating and stabilized dunes) and unique geological features like
Jockey's Ridge.
Nags Head is growing at a rate of approximately 8% per year (Popu-
lation, p. 12). The Town has escaped the strip commercial development
prevalent to the north. It has a strong tax base and one extremely
large tract, extending from ocean to sound, of undeveloped land. Given
current growth rates and the protection of natural features, the Town
should be 50% developed by 1990 (Carrying Capacity, p. 10). Given the
Town's desire to pursue a low density growth pattern some redevelopment
seems likely.
1

Growth
Nags Head anticipates that if recent growth trends continue
the average summer population of the Town in 1990 will be between 30,000
to 35,000 people (Population, p. 12). This population is more than
double the 13,500 people who stayed overnight in lodging in the Town
in 1979 (Population, p. 12). The difficulty with the growth projection
in Nags Head is understanding what trends are likely to result from the
motels and cottage courts reaching and exceeding capacity, something
that appears to have occurred in the late 70's (See new housing start
data, Population, p. 12). In Kill Devil Hills a similar phenomena has
resulted in an increased rate of new building starts for single family
structures; recently at a rate in excess of 200 per year (See Kill
Devil Hills Land Use Plan).
Nags Head contends that many factors could affect the growth rate.
These include the stimulation of the rate from the rapid introduction
of a large number of new developable lots into the marketplace, the
introduction of new forms of housing types into the marketplace, and
the possible redevelopment of the oceanfront with new motels. On the
other hand the rate of growth could decrease in the.event that high
interest rates and tight money necessary for construction and home
building continue, or if a severe energy crisis should reoccur (See
new housing start data). Nags Head should realize the subdivision of
the largest undeveloped tract within the Town's jurisdiction within
the next ten years. Furthermore, an apparently strong desire for con-
dominium housing may stimulate the market. During the recession years
of the early 70's the Town's growth rate was nearly stopped. These short
periods tend to be overshadowed by even stronger growth rates following
2

the lifting of the frustration. Nags Head's population does not appear
very sensitive to the costs of fuel; it may respond, however, to the
lack of availability (Recreation, p. 1, also, see data in Town Planning
Department on building starts and water sales, 1968 to present).
The western boundaries of Nags Head are directly or indirectly
connected to the estuarine systems of the Roanoke and Albemarle Sounds.
A large portion of the soundside is marshland (See map of marshland).
Since much of the future population of Nags Head will settle in areas
west of the bypass (Population, pp. 12-14), the Town is concerned with
the effects that such development may have on the Sound., Salinity of
the Sound in areas adjacent to Nags Head and its vicinity is most suit-
able to shellfishing; [currently these areas are closed to shellfishing]
(Environmental Considerations, p. 9-12). Furthermore, marshlands in
the Woods are extremely productive and valuable areas for plant and
animal life (See report on Nags Head Woods). The major fear from devel-
opment is contamination from septic systems. Septic systems installed
on poor soils close to to the sounds are generally acknowledged to be
responsible for polluting estuarine systems (Environmental Considera-
tions, p. 12).
Although the Town considered limiting growth to only so much as
could be accommodated on good soils and without the construction of a
public sewer system, the Town rejected that policy. The Town allows
but does not encourage the construction of large motels to meet the
D ] demands for future growth. It is the Town's policy that the antici-
pated growth to the year 1990 is welcomed and that the Town will plan
to provide adequate services necessary to meet the demands of that
population.
3
J

Water and Sewer
In terms of the service needs for the 1990 population, the Town
notes that it formerly relied on the Fresh Water Pond for its municipal
water supply (Environmental Considerations, p. 8). During recent years
elected officials and residents have been concerned with the repeatedly
low water levels in the ponds following periods of heavy withdrawal.
The Regional water system was anticipated to be in operation long before
the 1980 summer season arrived (Environmental Considerations, p. 18.).
With the advent of Regional water system in August 1980, the capacity
of the water source is no longer a restriction on growth (Carrying
Capacity, p. 4). The Regional system will make available to the Town
sufficient water to accommodate the 1990 population, if the local water
distribution system were capable of delivering it throughout the Town.
[2] It is the Town policy that major improvements should be made to the
water distribution system to allow it to deliver the water available
from the Regional System and to accommodate expected growth to 1990.
The Town proposes to increase its water system's capacity to that of
the Regional System by following the recommendations set out in
the Engineering Study done by Williams and Works (1978);by
building a 300,000 gallon ground reservoir at Whalebone Junction and
by interdiciting the 24-inch transmission main at various points
throughout the town.
Nags -Head has historically developed on soils suitable for handling
on -lot dewage disposal. Future development, however, is likely to
occur on less suitable soils (Overlay soils map with developed
areas). Now that public water is provided from the Regional System,
4

the fear of polluting the surficial aquifer (of which the Fresh Water
Pond is a part) is diminished (Environmental Considerations, p. 16-17).
However, the Town is concerned over the possibility of increasingly
higher fecal coliform counts occurring in waters adjacent to its shores
(Environmental Considerations, P. 16). The Sound is important to Nags
[31 Head for commercial fishing and for recreational opportunities. The
Town supports efforts to improve quality in the Sound. It is opposed
to further deterioration in water quality of the Sound. The Town sup-
ports efforts initiated by the former Dare Beaches Water and Sewer
Authority and its contractor, Henry Von Oesen & Associates, Consulting
Engineers and Planners, to study the feasibility of a regional sewer
system. The Town will study the feasibility of several package treat-
ment systems to be located on future subdivisions which have.a high per-
centage of unsuitable soils (See.,analysis of costs of different systems,
Environmental Considerations, pp. 16).
The Town will address its participation in a regional waste -water
treatment system at a later time. In terms of installing a local col-
[43 lector system, the Town will serve areas under the following scheme of
priorities: areas with poor soils close to the Sound will be served
first, then areas with poor soils, then heavily populated areas, then
other areas. Nags Head places the lowest priority to extending public
sewer mains to the environmentally sensitive Nags Head Woods, to wet-
land areas and other areas which are designed for light population levels
provided the soils in these areas are adequate to take care of approved_
development levels (See Environmental Considerations, pp. 12, Question-
naire, pp. 7 and 10.)
5

North Carolina law will not allow a town to fail to serve with
water or sewer an area within its jurisdiction if it elects to provide
the same service -to another area. The only way to preclude service
would be to prevent the possibility of receiving demand. This can be _
realized by not allowing residential development. The Town proposes
to limit residential development in conservation areas by imposing a
low priority on improvements to facilities and through zoning.
[53 The Town believes that a decision on whether to support a single
regional wastetreatment system for the beaches or to support the build-
ing of several small package facilities within problem areas of the'
Town should be made within the next 48 months, or before the Town is
faced with having to approve the platting of a large subdivision with
a substantial portion of platted lots having poor soils and using
septic systems: (Recent developments at federal level, especially in
EPA hearings, may delay this decision).
The Town is concerned with possible pollution of estuarine
waters adjacent to it because the Town feels that septic tank ef-
fluent containing colonies of coliform is suspected of being able to move
10 to 20 feet per day and live for 30 days in significant numbers in
[61 soils with poor capacity to handle the effluent• Accordingly, the Town adopts a
policy requiripq future subdivisions to design areas nearest the Sound
or other estuarine water with generous, setbacks for septic systems
and with large lots and lot width to accomplish the lowest practical
density (Environmental Considerations, p. 12). The Town supports a
policy of future subdivisions utilizing a minimum one acre lot size
for lots within 500 feet of the Sound. Lots having soils designated
by the Soil Conservation Service as not severe for septic systems should

be exempted from this policy (See map of Soils Unsuitable for Septic
Systems). The Town will investigate the use of a soils overlay ordi-
nance and revision to the subdivision regulations to embrace this re-
quirement within the next two years. The Town notes that the Coastal
Resources Commission currently enforces a setback for septic systems
from estuarine waters. This policy should enhance the goals of this
legislation.
Transportation Systems
The transportation network is of special importance to the com-
munities on the Outer Banks. The Outer Banks live with a 9% chance
of a major hurricane striking the shores each year. In the event of
a hurricane the island and the Town possess few places which can offer
safe shelter; therefore, almost everyone must be evacuated from the
barrier islands (Transportation, pp. 3-4). Any evacuation of the bar-
rier islands from Corolla in Currituck County to Ocracoke in Hyde
County must pass through Dare County, using either route U.S. 64 or
U.S. 158, The capacity of both routes is severly limited by the bridge
capacity (Transportation, pp. 5-6). The consultants estimated that
capacity at approximately 115,000 under ideal conditions. Since the
current population of the "to be evacuated area" is currently at. that
level, the system is at or near capacity. Through better planning the
Town may be able to increase the capacity of the system. The major
capacity limiting factor in the system is the bridge capacity on each
[71 route (Transportation, p. 9). The Town supports the building of another
two or three lane bridge system from the barrier islands to the main
land. Nags Head has requested that the State Transportation Depart-
ment give priority to the building of such a bridge in its 1980 Trans-
portation Improvement Program.
7

The Town is concerned that the continuance of current growth trends
will result in an overnight population of over 250,000 people on the
Outer Banks (between Corolla and Ocracoke) by 1990. Since this capacity
seems well beyond that which could be accommodated by better planning,
[8] the Town believes that unless additional capacity to evacuate 60,000
additional people is provided by 1990 that all municipalities on the
Outer Banks, together with the U.S. Park Service, should take measures
to limit growth.
:The Town contends that additional capacity could be reached on the
present system by eliminating potential conflicts of use for the bridges,
requiring earlier evacuation, restricting removal of accident-prone
objects from the island and the like. Accident prone vehicles include
all towed objects such as campers, trailers, boats and the like and
vehicles of such mass as to be more likely to be blown over by strong
winds. The Hurricane Evacuation Plan does not address these conflicts.
The elimination of use of the bridges for boat thoroughfare and the
reduction of the possibility of accident should increase the capacity
[9] of the bridges. Nags Head recommends that Dare County revise its cur-
rent Hurricane Evacuation Plan (published August 14, 1980) to address
these issues.
During the past five years the Bypass has become increasingly
relegated to a role as a local city street. Speeds on the Bypass sel-
dom reach 35 mph during the summer as the road struggles to move vehicles
well in excess of its designed capacity. The constant stops and starts
are not only an inconvenience but a safety hazard (Transportation, p.
5-6). In 1972 the Department of Transportation developed a Thorough-
[10] fare Plan for Nags Head and Kill Devil Hills. The Town supports the

Plan's proposal to multi -lane the Bypass (it specifically incorporates
the plan into the Land Use Plan). In the event that the entire project
could not be completed at one time, the Town supports actions that would
multi -lane parts of the Bypass, even if the first sections to be paved
were in Kill Devil Hills. In the event that multi-laning the Bypass
[II] becomes unlikely, the Town supports other construction alternatives
which preserve the objectives of the Thoroughfare Plan (see problems
with priorities, Transportation, p. 8). The Town has already requested
the Department of Transportation to undertake improvements to the By-
pass. In the event this is unsuccessful, the Town will continue to
urge the implementation of the Plan until it is implemented.
The Town notes that most of its commercial development is located
[121 along the beach road. The Town favors the continued use of the beach
road as a local collector.
The Town is aware that a through road along the soundside has been
partially blocked by the building of the Villas condominiums. The Town
will investigate methods to improve the road from Kill Devil Hills to
the aforementioned condominiums. The Town believes that the road may
become important if it is necessary to provide basic services to the
[131 Nags Head Woods; especially fire, police and ambulance services. The
Town favors a road in NH woods that will utilize, to a large extent, the old
roadbed, and can be built with a below normal right-of-way and a minimum
[141 amount of pavement. It is the Town policy to protect the mature vegeta-
tion along and near the ridge road in recognition of the importance it
plays in the natural system of the Woods (see Nags'Head Woods Study).
The Town intends to modify its subdivision regulations to implement
this policy. (This road is intended only as a local collector).

[15] The Town favors Southside Road being connected with the Old Nags
Head Cove subdivision.
[16] The Town supports interim or permanent measures to alleviate traf-
fic congestion on the Bypass, provided such action does not result
in increasing the level of speed or amount of traffic on the beach
road, or result in another bypass along the Sound.
[17] In addition to the above, the Town supports the construction of
a two lane bridge from the northern limits of Nags Head or the southern
limits of Kill Devil Hills to Roanoke Island. The existence of such a
bridge and access roadways would decrease traffic loads on the Bypass,
and through the towns of Manteo and Nags Head.
Nags Head has considered numerous alternatives to the proposed mul-
ti --lane road. The Town rejects a bypass along the sound side through
Kill Devil Hills because such a road on the sound side would likely
encourage growth along the Sound which could be detrimental to this
unique natural resource. The Town opposes a one-way pair system be-
cause it would pose increased danger to pedestrians crossing the beach
road, the only street suitable for functioning with the Bypass as a
pair. The Town accepts the opinion of the Department of Transportation
that service roads are infeasible in light of the width of the rights -
of -way (Transportation, pp. 10-11).
As an interim measure for relieving congestion on the Bypass,
[18] the Town shall take and continue to take numerous nonconstruction -
alternatives. The Town shall continue to seek to cut back on the
[19] amount of commercially zoned area on the Bypass. The Town shall study
the possibility of restricting permitted commercial development on the
Bypass to only those types which do not generate substantial amounts
' 10

[201 of traffic. The Town shall, through zoning district amendments (to
boundaries of districts),. encourage commercial development to locate
[211 in commercial parks rather than in strips along the Bypass. The Town
shall study the feasibility of requiring deep setbacks for buildings
from Bypass right-of-way; it will also consider standards for the
design of parking lots so as to decrease the time required to exit
[221 from the Bypass. The Town shall encourage commercial development to
[231 exit into streets other than the Bypass where such options exist. The
Town will discourage the number of entrances and exits onto the Bypass.
(Such standards will be added to the subdivision regulations). Further-
[241 more, the Town shall encourage businesses with complimentary uses
(as where one has a day crowd and the other a night one) to share
[251 common parking facilities. The Town shall limit the number of new
streets entering the Bypass and it shall limit the number of mapped
streets from being paved and connected to the Bypass by assigning a
low priority to paving these and by paving them as if they were cul
de sacs.
The policies are intended to alleviate some of the existing flow
problems and to prevent the further aggravation of the situation. The
Town calls on the State to foster legislation at the State level whi:ch
will enable municipalities to restrict access to major highways where
the right of access was not purchased but where the lot owner has ade-
quate access to another street or road.
Nags Head has taken additional measures to immunize itself from
energy shortages; measures that should also help alleviate traffic on
the Bypass. The Town contends that if it and its neighbors can promise
11

the tourist that if he will drive to the beach communities he will not
need his car during his stay, it will alleviate the potential for poor
business years due to a lack of availability of fuel. Nags Head, with
4
the cooperation of Kill Devil Hills, has sponsored a demonstration pro-
ject providing mass transit along the beach road between the Kitty Hawk
Fishing Pier and Coquina Beach. This project was inaugurated during
the summer of 1980. If the project should ultimately prove feasible
[261 and acceptable by the public, the Town will.foster a policy of providing
public transportation to the beaches and commercial establishments for
its residents and visitors.
. Nags Head shall place a higher priority during the next ten years
[273 on paving local roads. In setting priorities, the Town will consider
whether the road is likely to encourage development on lots with poor
soils for septic systems. Paving with 100% local government funds
shall. be provided according to the Town's priority list (see preceding
pages for factors in setting priorities); persons desiring streets to
be paved that are not on the list can obtain consideration for a higher
priority by offering to share in the costs. Factors entering into set-
ting priorities include relation to moving traffic throughout Town,
alleviating congestion on the Bypass, number of people served, the like-
lihood of better access to the beach and the absence of promoting devel-
opment in environmentally constrained areas, dunes, poor soil areas,
wetlands, etc.
Environmental Constraints (Additional to those already discussed)
Because of the constant threat of a major hurricane or storm doing
major damage to the -Dare beaches and the Town of Nags Head, and because
12

most of the people who have built on the island have done so because
they were aware that their houses would be insured against major loss
[281 and catastrophe, the Town supports the continuation of federal flood
insurance policies. The Town shows its consistency with the federal
flood insurance program by enforcing standards consistent therewith,
including a requirement that houses be built above flood elevation
(see Flood Hazard Map).
The Town supports the policies of the Coastal Resources Commis-
[291 sion. It is Town policy to be consistent with policies and standards
[301 for areas of environmental concern. The Town desires to provide ad-
ditional protection to the frontal dune system and to property owners
relying on that system for protection. The. Town shall implement this
policy by encouraging all property owners of lots containing frontal
or primary dunes to fill in breaches, rebuild low spots, revegetate"
barren areas, build walkways over the dunes and avoid other actions
that could weaken the protective nature of the dune system. The Town in-
tends to accomplish this by voluntary compliance and attention through
media coverage via its regular newsletter except where such actions
are subject to an existing permit. The Town will continue to enforce
an appropriate building setback. The Town desires to review and devise
building standards specifically engineered for the climate and type of
structures built in Nags Head.
Nags Head is concerned that the Town not repeat the mistakes of
beach communities along the northeast coast of this country. The Town
believes that these mistakes resulted from allowing immoveable construc-
tion (buildings) along the ocean shore, which when the beach migrated*
(eroded) required the expenditure of public funds to protect the build-
13

ings (Beach Dynamics, pp. 1-2). Many of these communities have entirely
lost their natural beach, so that the beach must be imported for the
tourist season. In order to preserve the beach and the heart of the
[311 economy, the Town fosters a policy of encouraging future motel and
commercial development constructed of steel and concrete to locate west
[323 of the beach road. Furthermore, it is Town policy that no person or
legal entity be permitted to build a seawall, jetty, groin or other
artificial device designed to stabilize the ocean shoreline. The Town
intends to implement this policy by offering a bonus to developers in
the form of lessened open sapce requirements,in the zoning ordinance
if they will locate west of .the beach road. Also the Town expects
DNRCD to implement this policy in consistency review.
Open Space
Because of the strong demands for open space to meet the needs of
the public to the public's natural resources (Questionnaire, pp. 10-11).
and because of the desire to keep the oceanfront from becoming densely
developed with motels which might require tremendous public expenditures
[331 for shoreline stabilization, the Town shall increase the amount of open
space along the oceanfront by increasing the amount of open space re-
quired in exchange for allowing higher densities on parts of the prop-
erty and greater building heights (Housing, p. 24; Questionnaire, p. 11).
The Town shall consider increasing the amount of open Space required
to three times the developed area (being the area occupied by the
the building, sewage treatment system, recreational facilities and
excluding area regulated by the CRC) for development in zoning districts
14

east of the beach road (see current Zoning Ordinance). Areas west of
the beach road can be developed with a smaller open space requirement.
(Note, see open space fatures in Zoning Ordinance, also, Questionnaire,
pp. 4-5).
E341 It is Town policy to provide adequate recreational opportunities,
particularly beach access and parkinq'for use of the ocean beaches and
sounds for all residents of the Town. The Town intends to implement this
policy through actions that call for the Town to maintain as beach
access points the many dedicated street rights -of -way (extending from
the beach road to the ocean.) The Town notes that in the past many, of
these rights -of -way have existed only on paper; and, because the Town
had not taken steps to accept them, by clearing and maintaining them
for public use, it has risked the areas being withdrawn by the devel—
opers or landowners (Recreation, p. 3). The Town requests that the
State foster legislation that would remove this legal requirement for
effective acceptance of a public right-of-way where the public use is
not intended -to be vehicular.
Many of the beach access points are capable of handling about 10
to 15 parked cars. Either parking areas near the beach or mass transit
is needed if new development west of the Bypass is to have the same
E351 access to the ocean enjoyed by others in the Town. In the event that
the plans for providing public transportation for persons living west
of the Bypass to the beach do not prove feasible or otherwise accept-
able, the Town will provide beach parking areas for the use of persons
who cannot reach the beach by walking or mass transit. The Town will
make a decision on the amount of land that will need to be acquired
and the method for acquisition following its evaluation of the success
15

of the mass transit system. At present the Town feels it is meeting the
demand for beach access form its residents. The public transit plans
together with the acceptance and maintenance of existing public access
points identified in Beach Access Plan prepared by Williams and Works,
1978, should be adequate to meet future needs. Individual streets in-
tended for paving are set out on the Town's priority list for paving
local roads. In the event mass transit is not adequate, then the pur-
chase of parking areas will be considered on an ad hoc basis. Neither
the purchase of a site, nor its preparation for parking use requires
long lead times (see Questionnaire, pp. 12 and 14 as to the importance
of this issue to Town residents and property owners). An amendment to
the Capital Facility Plan will be made to program the choice selected
to implement the general'policy of public access. ,The changes will be
made within'the next two years or as soon as the success of the mass
transit system can be determined.
In addition to open space for recreation, the Town also believes
[361 that open space should be provided for environmental protection. Through
the use of Planned Unit Development ordinances (to be adopted 1981) the '
Town will encourage developers to concentrate development in the more
developable areas and leave those more sensitive areas vacant. Also,
the Town has acquired some 400 acres of sensitive environmental land
in the Nags Head floods; these lands are mostly unprotected wetlands and
fresh water ponds. Through a-speci.al zone (called SPD) the Town
has encouraged density transfer as a method of protecting privately _
owned sensitive lands in the Woods. (SPDs are Special Planning Dis-
tricts) (Questionnaire, pp. 9, 11 and 14.)
In addition to recreational opportunities at the beach, the Town
16

[37] accents as a public responsibility the provision of access for recreation
to the Sound. The Town hopes that a mooring site for small boats could
be provided through subdivision review. Several sites are possible;
however, the waters adjacent to the shore are so shallow that any site
-may involve substantial dredging. The plan for Town property in the
Woods provides for walking paths and picnic sites in this natural area.
In addition to recreational opportunities for seasonal residents, the
Town also intends to provide recreational facilities (especially a
ballfield and picnic area) for the permanent residents on the Town's
property. (Questionnaire; p. 14 [Woods] and p. 12 [recreation]. See,
too, plan for Nags Head Woods.)
Housin
Nags Head realizes that,, given its limited amount of space for
r
development, the greatest net revenues can probably be attained by
using a high density growth pattern with.heavy motel and townhouse
development. (Housing, p. 24) However, the Town feels that the import-
ance that the seasonal and permanent residents give to the "family
beach" atmosphere with its single family cottages overshadows the
importance of taxes. (Questionnaire, p. 8) For the most part, the
property owners and residents of Nags Head showed a strong willingness
to pay for the facilities the Town will need to accommodate its growth.
[38] (Questionnaire, p. 15) Therefore, ­it is'Town policy to encourage a
housing mix that'is'heavily'sirigle'family. In environmentally sensitive
areas the'Town'encoutag et h10her'density development of less sensitive
lands in order that the more sensitive lands be left in open space.
(Questionnaire, p. 10) (Special zones [SPD's] are currently used; a
new PUD.ordinance will be developed.)
17

Nags Head will continue unstated policies of the past concerning
uses in the area known as South Nags Head; namely, exclusively
residential, and in the Floods; namely, low intensity residential.
As was stated before, the ocean front will be encouraged to develop
in single family or at least moveable structures. This has become more
important in the light of recent erosion problems which caused the
virtual destruction of several houses in South Nags Head and also caused
several other threatened houses to be moved. The zone immediately adja-
cent to the beach roadand west of it seems most desirable for future
motel development. It should be noted that motel development has nearly
halted since 1973; the loss of this market has-been attributed to the
i
high costs of borrowed money, the costs of building a package sewage
treatment plant, and Environmental Management Commission policies on
package plants. Another factor in the lack of motel development n1gy be
an overbuilding of motels with an accompanying high vacancy rate in
the units which has only recently disappeared. For whatever reason,
the motel development which constituted such a large portion of total
lodging units in the Town in 1973 has by 1980 significantly declined.
One of the most colorful areas in Nags Head is the old historic
area where beach cottages between 30 and 60.years old huddle behind
large dunes on the oceanfront for a span of over a mile. Many of these
cottages are on the National Register. The Town encourages the preser-
vation of this historic area. Many of the cottages are still in origi-
E393 nal ownership. The Town will consider the adoption of a'zoning ordinance
amendment, pursuant to authority granted by N.C.G.S. 160A-395 through
16OA-399 to designate the area as an historic district. Such action
would protect this highly aesthetic area from pressures of redevelopment
18

and from the possibility of incompatible archetectural designs on
neighboring tracts. Much of the information necessary to warrant
historic district designation has been completed by the Town.
Surface Drainage
The Town has made a concerted effort to.identify solutions to its
surface water drainage problems. A separate report was completed this
year by Coastal Consultants, Ltd., and McDowell -Jones, P.A. Recommenda-
tions are presented in that report and are incorporated in this report
by reference. The Town is concerned with waterflow in and around the
[401 Bypass, especially during and after major storms. The Town calls on the
State Department of Transportation to'engineer, design and build storm..,
surge culverts to allow movement of'water under the Bypass
[411 The Town is opposed -to the building of new finger canal systems.
Such systems.pose unacceptable risks to the pollution of the Sound and
may increase the risk of inlets being formed on the island.
AEC's and Land Use Plan
[421 The Town feels that appropriate uses within the Town's AEC's shall
be those set out in the AEC's by the Coastal Resources Commission, except
where more stringent restM-ctions have been placed on development by
the Town through its zoning regulations or subdivision controls. The
Town supports the efforts of local residents and property owners who
have attempted to stabilize the dune system by doing sand pushing and
vegetation. (AEC's, pp. 1-4)
Nags Head Woods
.1 .,Nags Head has undertaken a special study of the Woods to determine
a proper management scheme for it. The Town reaffirms its desires to
19

protect this area containing rare and endanqered species, a special
ecosystem consisting of marshland, hammocks, bay forest, ridge forest,
fresh water ponds and dunes. Currently the Town is utilizing an SPD
zone (sort of PUD zone) with 40,000 square foot minimum lot sizes. The
Woods report would create a special zone for the Woods with densities
based on the capacity of natural features within the zone. The Town
feesl this system may provide fairer and more equitable relief to
residents of the Woods and preserve important public resources.
The policies for the Woods are as follows:
[43] It is the policy of the Town'of'Nags Head to protect from development
as much as is possible the unique and natural features in the Nags Head
Woods. It is also Town policy to respect the rights of those persons who
own land in the Woods to have a reasonable and practical use of their
property, including a•reasonable rate of return.
The Town feels that some features in the Woods deserve more protection
than others. This may be due to its unique environmental importance, its
geologic importance, its historic importance, its recreational importance
[44] or a combination of these. The Town is particularly interested in -protect-
ing those feature which if not protected would result in the loss of the
Woods as a unique natural area. In order of importance the Town wishes
to protect: the hammocks, the ridge forest, the edges of the fresh water
ponds, the ponds, the marsh, the dunes, the bay forest and scenic areas.
The Town hopes to accomplish this protection through Town regulations.
[45] It proposes to adopt district zones that conform to the natural boundaries
of the elements of the total system that makes.up the Woods and to pre-
scribe an appropriate development density for each zone. The Town pro-
poses to use PUD style development to transfer density from an entire
901

tract to that part of the tract which has been identified as most able
to be developed without damaging the environment (see map). The Town
also proposes to place setbacks on ponds; restrictions on filling ponds;
restrictions on building on steep slopes, in hazard areas, etc. The Town
proposes to revise vegetation standards from the SPD zone and to set
requirements on cover and protection of rare and endangered species.
Off -Road Vehicles
The Town shall continue its restriction on the use of off -road
vehicles during certain times of the year. Furthermore, it shall con-
tinue to control beach uses, to prevent conflicts between uses.
Energy Facilities
[461 The Town is opposed to energy facilities, including pipelines, dock-
ing facilities and plants, locating anywhere within the Town's jurisdic-
tion. Such uses are deemed incompatible with the intensive uses of the
beaches for recreation. These uses are not permitted in the zoning
ordinance.
Natural Resource Uses
Agricultural lands, commercial forest lands, mineral production
areas, and commercial fisheries are not a significant use within the
[471 Town. Nags Head is opposed to commercial or non-commercial cutting of
the Nags Head Woods timber and to mining activities there. The Town
feels that the sole agricultural use of the Woods will be discontinued
in the near future; it is not opposed to the use or its continuance.
The Town feels its policies on development on poor soils for septic
systems are adequate to protect fisheries near Nags Head. The Town
[483 feels that commercial fishery uses within the Town are incompatible with
21

other uses in the Town. Such additional uses have been eliminated in
the zoning ordinance.
Public Participation
The Town has attempted to encourage the public to participate in
the planning process. The public, including all residents, property
owners and other persons on the Nags Head mailing list, was mailed a
copy of the initial questionnaire. Over 300 of these were .returned to
the Town for its consideration. The issue -oriented approach used in
the questionnaire allowed the Town to benefit from the attitudes expres-
sed. In addition to the questionnaire, the Town used a Public Forum
(technique spelled out in consultants' reports) to allow the citizens
to determine the focus of the land use plan, especially the issues that
would be investigated. The Town Board met to discuss.reports and issues
in the Plan at its regular meetings and at several special work sessions.
The Town had considerable news coverage during the process.
[493 The Town will continue to provide a strong citizen participation
program for the future. The Town will accomplish this by heavy reliance
on distributing information to its residents, property owners and others
who request the information, via its regular newsletter. The Town publi-
cizes notice of its meetings in the local newspapers and over community
watch on local radio and television. The public is cordially invited
to attend Town meetings and Planning Board meetings.
[501 The Town has a policy of cooperating with other municipalities on
the Dare Outer Banks, with the County, State and Federal government in
pursuing all the aforementioned policies.
22

Additional Implementation
In addition to the specific implementation devices set out for
individual policies, the Town also will use priorities for projects
and funding as a means to implement the policies. In funding or seeking
funding for projects, the Town will follow the below -mentioned priorities:
(top priority set out first)
(1) projects remedying past problems or which are designed to
take care of the needs of the present population;
(2) projects designed to alleviate problems from anticipated
or future populations' needs;
(3) projects which offer convenience but are not necessary to
the health or safety of the people.
Although it is not possible always to select the timing and funding of
improvements without considering the funds available or the costs of the
project, the Town favors the following priorities for large capital
projects:
(1) water improvements;
(2) transportation. improvements;
(3) public sewer system.
In weighing the costs and benefits from individual projects, the Town
seeks to give the heaviest weights to recreational benefits, then to
safety benefits, then to convenience benefits. In resolving conflicts
in the use of the police power or the management system, the Town shall
favor: (most important set out first)
(1) environmental and health conditions;
(2) transportation and safety conditions;
(3) open space, amenity and welfare conditions;
(4) other conditions.
23

A Note on Implementation
In several instances the Town proposed to make changes in the
zoning ordinance, subdivision regulations, capital facility plan, and
the beach access plan to effectuate more harmony with policies stated
herein. The Town proposes to address these changes under the following
schedule:
(1) PUD ordinance to implement open space policy and Woods pro-
tection, etc., 1980-1981;
(2) revise zoning ordinance for handling density, uses on ocean-
front, commercial uses, beach access, etc., 1981-1982;
(3) revise subdivision regulations to do same as above, 1981-1982
(4) revise capital facility plan to reflect decision on water
and sewer improvements, building of local roads and beach •t
access, rights -of -way, use of mass transit and possible purely
use of open space, 1983-1984;
(5) revise beach access plan, 1983-1984;
(6) revise land use plan, 1984-1985
24

Chapter I.
Chapter II.
Cahpter III.
Chapter IV.
Chapter V.
Chapter VI.
Chapter VII.
Chapter VIII.
Chapter IX.
SECTION TWO: TECHNICAL PAPERS
Population Analysis
Values and Attitudes of Nags Head:
An Analysis of the Nags Head Questionnaire
Environmental Considerations Relating to
Water and Sewer
Other Environmental Consi.derations
A. Beach Dynamics
B. Areas of Environmental Concern
C. Environmental and Other Constraints
D. Nags Head Woods
E. Environmental Policy
Transportation System. Hurricane
Evacuation and Thoroughfare Movement
Analysis of Implication of Different Housing
Mixes
Recreational Aspects
Cultural Resources
Carrying Capacity: Methodology and Application

CHAPTER I
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, environment, much attention has been paid
2

POP-2
to methods to determine the permanent population. In the North
Carolina 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 concern 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 environment 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. Regretably we are not aware that any
direct count of population during the peak season exists in Nags Head..
Certainly this is an undertaking which the Town should consider
pursuing 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 November and December 1979 we surveyed the
entire town of Nags Head. 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.) We also attempted to
establish the number of bedrooms in each residence and the number of
rooms in commercial housing.
W

POP-3
In order to portray this information in a more meaningful manner,
we artificially divided the Town into sections. These sections are as
follows:
#1 Beach Road (both sides) from Kill Devil Hills town limits to
Empire Street
#2 From ocean to sound, between Forest Street and Empire Street
#3 From ocean to sound, between Forest Street and Whalebone
Junction
#4 South Nags Head
#5 From Whalebone Junction to Washington Baum Bridge,
#6 Between Beach Road and Bypass from Kill Devil Hills town
limits to Empire Street
#7 Subdivisions west of the Bypass, not included in #2 and #3
above.
TABLE 1
RESIDENTIAL AND COMMERCIAL HOUSING UNITS
Section
Residential
(By
Bedroom)
Commercial
Total
MH
2
3
4
6
8
9+
T
CC
M
#1
20
43
93
91
46
25
6
7
196
364
891
#2
0
0
0
4
0
0
0.
0
0
0
4
#3
18
11
60
10
0
0
0
10
387
441
937
#4
0
38
229
160
2
0
0
0
257
196
882
#5
0
5
13
7
0
0
0
0
10
0
35
#6
0
16
160
33
0
O
0
0
0
0
209
• #7
0
35
203
65
0
0
0
10
0
0
303
Total
38
148
758
370
48
25
6
17
850
1001
3261
Note:
MH=mobile
home
T=townhouse
CC=cottage
court
M=motel
27

POP-4
Relating Water Use to Population
In order to establish a meaningful relationship between water use
and population, we focused 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 ,
constantly to the first week in September. They maintained that the
average occupancy was in excess of 3 persons per unit; that more than
50% of them were inhabited by children. By reading the records on
water usage,for the July and August period, we concluded that water
use ranged from 4,600 to 23,100 gallons per unit, with an average
of.13,840 gallons. In the 62 day period covered by the water records,
we expect that the typical unit experienced full occupancy on 60 days.
TABLE 2
MOTEL WATER USE AND OCCUPANCY
[Range]
Gallons/Unit
Varying Rates
of Occupancy
Peak Season
Day
2.5
3.0
3.5 4.0
1,900
181.60
73
61
52 45
13,800
230.0
92
77
66 58
18,200
303.3
121
101
87 76
In'addition to examining water use in motels, we also examined
water use in three distinct residential communities, Goosewing sub-
division in South Nags Head, Nags Head Cove on the west side of the

POP-5
Bypass and the cottages along the ocean north of the Watertower. The
Goosewing and Cove subdivision contrast water usages between oceanfront
and soundside subdivisions made up predominantly of three and four
bedroom houses, whereas the Old Cottages along the ocean give us an
opportunity to examine the effect of large houses. Ideally we would
like to have done this through a bettersampling procedure.
TABLE 3
RESIDENTIAL WATER USE
Subdivision Units Ave.
0-10 11-20 21-30 31-40 41-50 50+ A
Goosewing
16
6
'25
31
38
0
0
24.4
Nags Head Cove
136
28
44
18
4
4
1
15.4
Ocean Cottages
22
0
14
32
14
14
27
38.2
TABLE
4
BEDROOM
SIZE PER
RESIDENCES (%)
,Ch . :1 r.L _..-?.:.K .. k�...v...✓.,--.: .�?:?; it', r3"rr`v.Yv�7nvJ-^;33ti�Rlict.4.-;nsnik.�'iw.v
rfii+a.s.-.;:...,.[.'-.r...
su.:,w...,ww,.i ... N.r rx a.....n s>
,. ..
Subdivision
Units
2
3
4 6
8+
Ave.
Goosewing
18
0
33
67 0
0
3.6
Nags Head Cove
141
7
58
31 4
0
3.2
Ocean Cottages
21
0
14
5 24
57
7.4
29

POP-6
TABLE 5
WATER USE PER UNIT (1000 gallons)
Subdivision Average Per Unit Average Per Bedroom Daily Ave.
Goosewing 24.4 6.8 .115
Nags Head Cove 15.4 4.8 .081
Ocean Cottages 38.2 5.2* .088
*It is possible that we have overstated the number of
bedrooms per unit in the old cottages.
Town Water Uses (Flows)
If we examine the town's total delivery or sales of water for each
day during the same season, we can get a view of the flow of population,
of peak as opposed to average demand. We decided to read water usages
for the period of July 27th to August 23rd in 1979 and '1977. This
period was chosen because it does not reflect a major holiday and
should exhibit patterns of occupancy.
TABLE 6
FLOW DATA (1000 gallons)
Year 0-650 651-700 701-750 751-800 801-850 851-900 901-950 950+
1977 5 5 6 6 3 0 1 2
1979 0 0 0 0 0 3 12 13
-------------------------------------------------------------------------
Year Max. Min. Ave.
1977 - 1332 417 751
1979 1011 894 949
30

POP-7
We should note that the January maximum and minimum for both years is
about the same, namely from 110 to 375 (thousands of gallons per day.)
Water usage in 1979 was constantly within 5%'of the average, showing
little deviation. This absence of fluctuation is significant because
it establishes a presumption that the residential home and cottage .
population is fairly constant throughout the summer months of July
and August. If we assumed that 90% of the units were occupied during
the peak days in the summer, then that percentage was maintained within
10% throughout the rest of summer.
We can calculate the residential occupancy through a second
procedure. We can determine the water used by the commercial housing
sector by multiplying the number of units (1951) by the gallons per
day used by each unit (230). We can estimate the amount of sales to
restaurants and other non -housing users. By adding these together and
subtracting them from the average daily use by all sectors we can
establish an average rate for the residential sector. These computa-
tions are as follows:
Average Daily Sales During Peak Month 949,000 gallons
Less: Commercial Housing 425,730
Other Non -Residential 94,900
Average Daily Residential Sales 428,370 gallons
Since the number of residential units (not including motels and
cottage courts) was 1410, the average water use by such units during a
day in the peak season was 303.8 gallons. We noted from the previous
page that water uses in three distinct sectors of Nags Head was:
(presuming 90% occupancy)
31

TABLE 7
WATER USE IN RESIDENTIAL SECTOR
Sector Gallons/Day/Unit Gallons/Day/Bedroom
Goosewing 435 121
Nags Head Cove 275 85
Ocea Cottages 682 93
Since 3 bedroom and smaller units comprise 67% of the residential
housing stock in Nags Head, a water usage rate that is somewhat
higher than the Nags Head Cove subdivision seems reasonable. From
our analysis of the motels, we concluded that a water usage of about
65 gallons per person per day there seemed reasonable. One would
expect that this number should be adjusted upwards for the residential
sector to account for additional uses, such as food preparation,
washing of dishes, cars, and clothes and lawn -watering. Yet from
our own experience we doubt that water use equals that of the permanent
home dweller. Our data suggests that water use varies with proximity
to the beach and with number of bedrooms in the dwelling. For purposes
of estimating population, we have used the following rates.
TABLE 8
WATER USAGE
Sector Gallons/Day/Bedroom Persons/Bedroom
Beach 110 (75 gallons/person) 1.5
Bypass and Sound 85 (65 gallons/person) 1.3
32

In the following table we have attempted to estimate population
for each sector.
TABLE 9
POPULATION BY HOUSING TYPE
Section Residential Commercial Total
MH 2 3 4 6 8 9+ T CC M
#1 60 129 419 546 414 300 90 26 686 1274 3944
#2 0 0 0 24 0 0 0 0 0 0 24
#3 47 29 234 52 0 0 0 33 1355 1544 3294
#4 0 114 1031 960 18 0 0 0 900 686 3709
#5 0 13 34 27 0 0 0 0 35 0 109
#6 0 42 624 172 0 0 0 0 0 0 838
#7 0 91 792 338 0 0 0 468 0 0 1689
Total 107 418 3134 2119 432 300 90 527 2976 3504 13607
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.
TABLE 10
POPULATION DENSITY PER SECTOR
Sector Population Square Miles Persons/Square Mile
#1 3944 .650 6068
#2 24 .750 32
#3 3294 .500 6588
#4 3709 .850 4364
#5 109 .350 311
#6 838 .400 2095
#7 1689 1.500 1126
Total 13607 5.000* 2721
*This number does not include the area in Jockey's Ridge.
33

POP-10
Population Projection
Population projections for 1990 can be determined in several ways.
One method is extend the increase of 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
consistency in the amount of water used by an average resident. 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 including the availability 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 towards townhouse
development, etc.
An analysis of the water delivered by Nags Head Water system to
its customers shows the following growth details.
TABLE 11
NAGS HEAD WATER SALES 1968-1979
1979 1977
July -August
29 day period (average) 949 751
From examining the water records it is apparent that the rate of
growth as measured by increases in water sales exceeds 8% per year
for the past five years. In addition the water sales indicate that
this growth rate has increased dramatically during the past two years
34

POP-11
to 12.5%. At a rate of 8% the population will double in 9 years; at
a rate of 12 to 13%, the population will double in about 6 years.
An analysis of the housing permits since 1975 shows the following:
TABLE 12
PERMITS FOR NEW HOUSING STARTS 1975-79
Year
Single family
Multifamily
Motel
1975
38
0
0
1976
80
12
0
1977
124
14
0
1978
127
1
0
1979
110
0
0
We noted that in 1979 there were 1355 single family dwellings.
From 1975 to 1979, 479 units were built. Thus, the number of single
family units in 1974 appears to be approximately 876 units. Between
1975-1979 the housing stock of single family dwellings increased
54.6%, with an average annual rate of 9%.
From analyzing the housing starts, we also noticed that the
number of multi-fami-ly units added to the housing stock was consider-
able due to the building of the Villas during the last five years,
however, these building permits were added prior to the year 1975.
New multifamily units may add a significant amount to the population
during the coming years, however, it will be difficult to forecast
the number of units since these decisions appear to be without enough
regularity to establish a pattern. The amount of motel and cottage
court development during the past 5 years does not appear to be
significant.
�5

POP-12
By combining our information on trends over the past five years,
we can predict that if past trends continue that by 1990 the population
will reach the following limits:
TABLE 13
POPULATION 1980-1990
1980 1990 Increase
Average daily August 13607 32212 18605
Maximum day 14560 48318 33758
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 noted that since 1975
new opportunities have been limited to mostly three and four bedroom
single family houses. Also, the areas exhibiting the greatest growth
rates appear to be in South Nags Head and the subdivisions west of the
bypass and north of the water tower. Future growth will probably
.continue this trend. In addition the availability of the Epstein
tract for development should result in growth in that section. It
also seems inevitable that the next ten years will place considerable
pressure on redeveloping some of the beach road.
If we assume that future residents will continue the trends of
the recent past (especially the past 5 to 10 years); then, we expect
that.the future housing mix can be predicted and contrasted against
the past and the complete 1990 housing stock as follows:
36

POP-13
TABLE 14
PERCENTAGE OF PERSONS LIVING IN
EACH HOUSING TYPE
Year
MH
2
3
4
6
8
T
CC
M
' 1980-90
0
3
45
27
5
0
10
5
5
1980
1
3
23
16
3
6
4
22
26
1990
0
3
38
23
4
2
8
12
14
In terms of new housing units, the housing breakdown to meet
residential demand may result in the following new units being built
by 1990.
TABLE 15
NEW HOUSING UNITS
Unit Type # New People # New Units
Residential:
2
bedroom
558
215
Residential:
3
bedroom
8372
2147
Residential:
4
bedroom
5023
966
Residential:
6
bedroom
930
119
Townhouse
1860
580
Cottage court
930
290
Motels
930
290
Comment
The prificipal purpose of this section is to show the number of
people likely to reside in the town throughout its tourist season and
where and in what type units this population can be expected to live
based on past trends. In conclusion, the town can expect 18,600
additiorr residents to 1990. Most of these people will live in a
37

POP-14
variety of single family housing types. Sections 1, 3 and 4 are already
beyond the density suggested by the state for public sewer, sections
2,A and 6 are most likely to incur new growth. See section on
carrying capacity, to appreciate implications in terms of capacity.
See section on housing for analysis on facility demand and for
implications of housing mixes on revenues and open space.
U

CHAPTER II
VALUES AND ATTITUDES OF PERSONS OF NAGS HEAD:
N ANALYSIS OF THE NAGS HEAD QUESTIONNAIRE
The public participation element to the land use plan focused
around the attitudinal survey of citizens directly involved in the
future of Nags Head. In order to understand citizen attitudes, we
prepared a questionnaire which explored the interfaces of the issues
arising from the public forum. The questionnaire is issue oriented.
It has a controlled narrative which provides a minimum amount of
educational information on the subject. This assures that all
participants have some basic information on the issues; it serves to
eliminate conflicts due solely to different assumptions about facts
surrounding the issues. The questionnaire attempts to balance
conflicting (or seemingly conflicting) attitudes. It attempts to
gage the willingness to pay and the sense of priorities towards
future actions.
The Nags Head Questionnaire was distributed to all persons whose
names appear on the official town mailing list. This list consists
primarily of permanent residents and non-resident property owners.
Conclusions
The Nags Head Questionnaire does not lend.itself to a simple
analysis, however, it is possible to draw several conclusions which
may help to serve as an overview to the closer analysis.
�£

QUEST-2
(1) The respondents (persons who responded to the questionnaire
and representing the larger group of permanent residents and non-
resident property owners) place the following priorities on the
spending of the Town's monies for facilities and services: first,
they wish the -Town to improve the water system; second, they desire
the Town to purchase access and/or build parking areas for ocean or
sound access.
(2) The respondents feel that it is important that the Town
preserve some large tracts of open space. In order to obtain open
space, they would be willing to accept higher densities. However,
they desire to keep a housing mix that preserves the sense of the
family beach, which they fear is most threatened by high-rise motels.
(3) The respondents would like to see the Town's property in
Nags Head Woods used for low intensity recreation or left in its
natural state.
(4) The respondents would like to see some action taken to
cure the transportation problems --but this does not include a two-
lane road along the sound.
(5) Other than beach access and parking, the respondents
do not feel there is a need for additional recreational facilities.
(6) The respondents do not show much sensitivity to fiscal
aspects, such as costs, tax base and taxes, and revenue generation,
in their decisionmaking.
(7•) The respondents feel there is a need to limit growth.
40

QUEST-3
Background of the Respondents
The Nags Head Questionnaire was tallied and analyzed when
approximately 310 responses had been received. Since that time the
Town has received an additional 100 responses. Although these
latter responses were not included in this tally, we feel that the
results would not be significantly different if the entire results
were considered.
Considering the background information, we noted the following
breakdowns in people's perception of how they related to the Town.
(# means number of responses)
TABLE 1
Residency
#
%
Permanent residents
81
28.4
Non-resident property owners
178
62.4
Seasonal visitors
16
5.6
Other
10
3.5
(Note: most of the seasonal
visitors
and others appeared
to be non-resident property
owners.)
TABLE 2
Interest (Occupation/Hobby/etc.)
#
%
Developers, builders
20
6.1
.
Commercial businessmen
46
14.8
Motel owners/managers etc.
23
7.4.
Sportsfishermen/boaters
ill
35.8
Beach users.
224
72.0
Retirees
87
28.0
Housewives
42
13.5
Laborer
10
3.2
41

QUEST-4
For purposes of analysis, we have regrouped the.interest groups above
into four larger groups, commercial, sport, retirees and others.
TABLE 3
Political Process # %
Active voter in Town elections 66 21.7
Ineligible to vote in Town 212 69.7
Eligible, but not active 26. 8.5
rM
TABLE 4
Geographic Area # %
,Kill Devil Hills to Jockeys
Ridge 109 38.7
Jockeys Ridge to Watertower 65 23.0
Watertower to Whalebone Junction 24 8.5
Whalebone Junction to Park
Service 79 28.0
Whalebone Junction to Washington
Baum Bridge 5 1.8
TABLE 5
Age Classification
#
%
19-35
26
8.6
36-50
91
30.0
Over 50
186
61.4
We were able to use the background identifications to perform
several useful cross tabulations (comparing the group that answered
a particular question one way with their responses to another question.
42

QUEST-5
Substantive Aspects of the Questionnaire
Growth, Water and Sewer:
The first question addressed to the respondents sought to under-
stand their attitude towards the future growth of the Town. The
respondents expressed a strong desire to restrict growth to an amount
below that which was likely to cause expenditures to build capital
facilities.
TABLE 6
Attitude to Growth
#
%
Cum. %
Town should accept its natural growth
120
40.1
40.1
Town should restrict growth
59.9
No growth
31
10.3
Amount below facilities capacity
80
26.7
Grow up to facilities capacity
68
22.7
The permanent residents exhibited a stronger
restrict
growth
attitude
when.compared with non-resident property owners.
TABLE
7
Attitude
to Growth (# and %)
Reference Group Accept Major
I.
Below
No Growth
Commercial interest 41 63% 14
22%
9 14%
1
2%
Non-commercial 79 34 54
23
71 30
30
13
This difference can be anticipated in that non-resident property
owners will show a greater preference to not restricting growth in
that the majority of them own property which may not be capable of
43

QUEST-6
being developed should the town be able to implement a slow or no
growth policy. Similarly, residents tend to illustrate an old maxim --
"now that we are in, let's bar the gate."
The attitude towards growth is also sensitive to interests
essentially vocational or avocational. If we compare those persons
with a commercial interest (developers, builders, motel owners and
managers, and commercial businessmen) with the rest of the sample,
we find the following:
TABLE 8
Reference Group Attitude to Growth (# and %)
Accept Major I. Below No Growth
Commercial interest
41
63%
14
22%
9
14%
1
2%
Non-commercial
79
34
54
23
71
30
30
13
The commercial sector had the most interest in accepting and probably
encouraging growth..Since the commercial interest group is over-
represented in the sample, the removal of this group from responses
on the growth rate will accentuate the "restrict growth" attitudes.
In order to sharpen the rationale behind the restrict growth
attitude, we asked the respondents whether they wished to improve
the water system. The alternative woui.d be to use this improvements
denial as a means of restricting growth.
44

QUEST-7,
TABLE 9
Attitude Towards Water System # %
Do not improve public water system 78 26.0
Improve water system to handle 33,000
people 130 43.3
Improve water system to handle 50,000
people 92 30.6
The results show that the water system is not the major capital
facility that the respondents wish to avoid paying for. We next
asked the respondents if they desired to fund a public sewer system.
TABLE 10
Attitude Towards Sewer System # %
Build or participate in public sewer
system 150 50.5%
Do not build or participate 147 49.5
In order to determine if people were deciding their growth attitude
on the basis of their sewer response, we crosstabbed the growth
question with the sewer question. The results were affirmative. In
fact, the converse also proved to be true, that is, 81% of those who
desired to accept the natural growth rate desired to see public
sewers built.
Housing Mix and Open Space:
Because planners believe that housing mix has a profound influence
on the tax base, the amount of open space and the image of the town, we
45

QUEST-8
decided that we needed to explore the people's attitudes towards this
subject matter. (Housing mix means the type of housing --single
family, townhouse, cottage court, motel.) Our respondents ranked
the loss of the family beach and the preserving of open space and the
environment as the most important factors in selecting a preferred
housing mix. Interestingly enough, fiscal aspects definitely took
a "back seat."
TABLE 11
Factor of Importance to Housing
Ranking
in Terms of
-Importance
Mix Decision
1st
2nd
3rd
Loss of family beach atmosphere
Increase money spent by tourists
Increase efficiency of services
Preserve open space and
environment '
Strengthen the tax base
55%
28%
5%
6
6
59
4
17
7
32
44
8
3
6
21
In'contrasting interest groups, we note that permanent residents
were more inclined to rank open space and the environment as more
important, similarly they' did not feel as strongly about preserving
the family beach atmosphere.
Concerning the factor most likely to destroy the family beach
atmosphere, the respondents named high-rise motels as most important.
(In retrospect we wish we had given more choices.)

QUEST-9
TABLE 12
Factor Most Injurious to Preserving # %
_ Family Beach
Retirement community 14 6.1
High rise motels 137 60.0
City -type night entertainment 77 33.8
If we had stopped our line of questioning here, we would only have
affirmed the results of the 1975 citizen attitude survey done by the
town. We decided that the best way to measure the strength of the
housing mix response was to test it with some specific application.
We asked the respondents if they were willing to be flexible on their
Attitude towards housing mix (i.e. promote family beach) if the
result were to be a significant increase in large tracts of open
space. A majority of the respondents were willing to make this trade.
TABLE 13
Willing to Trade Higher Density for
Increased Open Space # %
Willing to trade 154 52.9%
Not willing to trade 137 47.1
This was a surprising response. But, we noted that the desire to
preserve open space by purchase or through density transfer was
perhaps stronger than could be anticipated when we asked the question
of factors of importance in selecting a preferred housing mix. Then
too, the willingness to make a trade does not reflect preferences,
47

QUEST-10
i.e. just because a factor is your second preference doesn't mean that
you wouldn't be willing to trade a portion of your first preference to
get all you desire of your second preference.
All this implies that the respondents desired to see large tracts
of open space in Nags Head. The respondents undoubtedly did:
TABLE 14
Attitude Towards Preserving Large
Tracts of Open Space # % Cum. %
Desire to preserve large tracts 264 91.8
Only without Town purchasing them (105) 36.4
Even if Town must purchase (159) 55.2
No open space 24 8.3 8.3
The permanent residents felt stronger about having open space and the
environment preserved through means other than purchase by the Town.
In terms of the location of the open space, the respondents
desired to place as their first priority the dunes. They were
relatively indifferent as to second and third choices. The answer
appears to reflect a desire to see the geological aspects and the
recreational aspects of the beach preserved. It perhaps reflects
some confusion over the importance of environmental features --other
surveys seem to lead to the conclusion that the people may believe
the dunes to be more important as an environmentally sensitive area
than the marshes or live -oak forests.
Because we appeared to spot some confusion and inconsistency,
we decided to cross -tab various interest groups with the desire to
trade high density for open space. The results indicate that the

QUEST-11
strongest support for preserving open space through density transfer
came from the commercial sector and those who balued preserving open
space in their selection'of housing mix.
TABLE 15
.. Willingness to Trade Higher Density'
Reference Group for Increased Open Space
Willing Not Willing
Permanent Residents 50% 50%
Non-residents et al 54 46
Commercial Interests 64% 36%
Non-commercial interests 50 50
Open space as most important
factor in housing mix 57% 43%
Other factors more important 51 49
(Note: Although this last crosstab suggests strong support for the
trade from the group that valued open space as the most important
factor in selecting a housing mix, this number should have in fact
been much higher since this group would theoretically have nothing
Zoning:
The respondents felt satisfied about the amount of land zoned
for commercial use. However, 22% did indicate that the amount of land
so zoned was too much.
Recreational Facilities:
We asked the respondents to select and rank recreation facilities
which were needed in Nags Head and which they would like to see
provided at public expense. We noted the following response. A
combined score of over 145 (1st, 2nd and 3rd choice) probably
indicates majority support.
49

QUEST-12
TABLE 16
Facility Considered for
Ranking
in Terms of
Importance
Funding
1st
2nd
3rd
.Total
Wt. Score
Beach access areas
162
38
12
212
574
Parking for beach access
28
104
27
159
319
Sound access areas
6
26
87
119
157
Boat ramps and moorings
10
13
22
45
78
Indoor ballcourts
2
2
4
8
14
Tennis courts
9
8
6
23
46
Ballfields
2
4
4
10
18
Golf course
7
3
7
17
34
Playgrounds
5
6
3
14
30
Picnic facilities
1
13
21
35
50
Jogging and walking paths
40
15
26
81
176
We achieved a weighted score by giving 3 points to the first choice,
2 to the second and 1 to the third. These weights are arbitrary and
merely designed to help in showing a spread in the number under a
situation where the preferences are not equal.
Transportation System:
In order to analyze the transportation system alternatives, we
resorted to asking the respondents to rank five possibilities in terms
of their preferences. Then we asked them to explain the rationale
behind their choices. In order to express this rather confusing
response, we again resorted to placing arbitrary weights upon the
responses. We gave 5 points to the first choice, 4 to the second,
3 to the third and a -5 to the fifth or least preferred alternative. _
We felt that this was justified in that where people do not seem to
have a clear first or second choice, it may be more important to
understand what they do not want. The scores are as follows:
50

QUEST-13
TABLE 17
Transportation System Being
Ranking
in Terms of
Importance
Considered
1st
2nd
3rd
Last.
Wt. Score
Keep present situation
73
21
35
36
382
Make bypass four -lane
131
37
27
15
809
Build feeder roads
27
79
38
12
505
Build a new soundside road
13
30
43
35
139
Restrict access; eliminate
turns, etc.
50
64
38
11
565
The results indicate a strong support for four-laning the bypass.
Second and third choices emphasize non -construction alternatives and
building feeder roads. Once again the respondents indicated that they
were rather insensitive to costs or taxes. 62% of the respondents
indicated that the most important factor in their transportation
decision was the degree to which they believed the problem would be
cured.
In terms of alternative transportation, 55% of the respondents
woul.d be willing to pay an additional $25 in taxes and fees per year
to have the Town build bikeways and pedestrian paths.
Nags Head Woods_:
One of the major open space areas of significant environmental
consequence appears to be the Nags Head Woods. We should note that
earlier in the survey the respondents noted that they wished to
preserve open space, however, they preferred the open space to be
located in the beach area. Concerning the regulations in the Woods,
the respondents appeared to.be satisfied. 63% felt that the
regulations were adequate: 29% felt they were not strict enough.
51

QUEST-14
With regard to the Town's own property in Nags Head Woods, the
respondents showed a strong preference to the two lowest intensity
uses (natural state and walking paths).
TABLE 18
Uses of Town Property in the Woods Preferred Use
# q
Leave'in natural state
128
43.9
Use
for
low intensity recreation
96
33.7
Use
for
moderately intense recreation
43
14.7
Use
for
high intensity recreation
1.6
5.5
Sell
it
8
2.7
Funding Priorities:
In the final section we asked the respondents to review their
earlier decisions concerning projects they desired to fund. We asked
them if they still desired to fund the project and what priority (in
terms of other projects they desired to see funded) they wished to
give their selection. As before, we ranked the score using 4 points
for first choice, 3 for second, 2 for third, and 1 for fourth.
TABLE 19
Possible Project for Funding
1st
2nd
3rd
4th
Total
Wt. Score
Pave local roads
33
22
28
17
100
271
Improve water system
77
63
20
15
175
552
Build public sewer system
57
48
31
5
141
439
Build public transit system
2
9
13
10
34
71
Build recreational facility
7
k2
14
14
47
106
Build regional hospital
30
k7
30
20
97
251
Build beach access/parking
49
53
33
20
155
441
Purchase open space
27
33
20
17
97
264
52

QUEST-15
Since a score above 145 on the total column indicated close to
majority support for funding (similarly a score,of 435 would mean
that a majority of the persons would have ranked the project as first
or second in importance), we felt there was strong support for build-
ing a public water system and beach access and parking facilities.
We felt there was marginal support for building a public sewer system;
however, this group feels very strongly about the importance of this
decision as noted from the high weighted score and the number of
times it was chosen as first project to be funded. The biggest
surprise is the willingness to purchase open space.
If we contrast funding priorities of the permanent residents
with the non-resident real property owners and others, we notice
that the priorities shift to local roads and perhaps public sewer.
TABLE 20
Possible Project for Funding Total Times % of Times Selected
Selected By Residents/All
Pave local roads
36
36
Improve water system
22
12
Build public sewer system
32
23
Build public transit system
1.5
44
Build recreational facility
17
36
Build regional hospital
22
28
Purchase access/parking
41
26
Purchase open space
24
25
A total score of 38 or above would be needed before one could be
assured of the support of the majority of the local residents.
Also, since the permanent residents constituted 28.4% of the total
survey, a % score of above this amount would mean they supported
the facility to a greater extent than did the whole sample.
53

QUEST-16
63% of those who responded indicated that they would be willing
to spend over $50 per year in fees and taxes to have the project they
selected as most important built. In light of our own experience
with similar type questions, we feel this is a significantly high
response.
Comment
The questionnaire is designed to assist in decisionmaking and
not simply to control decisionmaking. The results of this survey were
followed fairly close in the decisionmaking.
A profile of the economy and age of the residents and property
owners of Nags Head is discernable from the background of the
respondents. (Questionnaire, p. 2) 72% of the Town describe their
relationship to the Town to be that of a beach user, 35% sportfisher.-
man and about 15% commercial businessmen. 61% of the population is
over 50 years of age, about half of these are retired.
The permanent population resides largely in South Nags Head.
Obviously the principal business of the Town is tourism and especially
that related to beach use and sportsfishing.
54

t
CHAPTER III
ENVIRONMENTAL CONSIDERATIONS RELATING TO WATER
AND SEWER WATER AND SEWER ANALYSIS
Although a municipality may be under tremendous growth pressures,
it may not be able to accept that growth. The capability to accept
growth may bd limited by the availability of vacant land in its
jurisdiction, its willingness to rebuild at higher densities, or
the population it can accept without environmental damages reaching
unacceptable levels. In this section of the land use plan we would
like to examine capacity limitations related to environmental degra-
dation. First, we will discuss the capability of the soils for hand-
ling wastes from 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 Nags Head 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 Nags Head looks as follows:
55

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
See
above
See
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
56

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 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 increasing fresh water. The water budget for the Sound is as
follows:
57

ENV-4
TABLE 2
Average Monthly Values in ft. /sec.
Element Drainage March July December Ave.
Precipitation
Inflow: Chowan
Inflow: Roanoke
Inflow: land
Less -Evaporation
Total Outflow
to Pamlico
933 mi2
2900
5400
2600
3400
4943
8600
3000
4400
4600
9666
10000
8000
8300
8900
2817
5600
1900
1300
2900
933
2200
4100
900
2600
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,
;1

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, sediment, 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
59

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
.f

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 .l 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 include
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
61

ENV-8
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.

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 crabkills 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:
63

ENV-10
t1.110UM
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 BOO 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.
64

ENV-11
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:
65

ENV-12
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)
78
70
10
Distance from water.
(Closer
in Whiskey Creek than
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.)
67

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),

ENV-16
TABLE 7
COST ANALYSIS OF ALTERNATIVE SYSTEMS
System Cost Comment
Mound System
Evapotranspiration
Bed System
Low Pressure Pipe
System
Aerobic System
Land Application
$2500.00'(capital)
$2500.00 (capital)
$1500.00 (capital)
$5000.00 (capital)
NA
A raised septic system
Aesthetic considerations
Unsuitable during wet
season when MPN high
Unsuitable where high
meter table
Need expert maintenance
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 for ajoint project by the municipalities
of Kill Devil Hills,'Nags Head and Manteo (together with unincorporated
areas of Dare County) was chosen by all participants.
70

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:
Total Project Cost
$17,090,024.00
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
Total Annual Cost
541,718.00
Monthly local costs
45,143.00
Average Monthly Cost Per User
(Based on 11,000 units)
4.10
Collection System:
Total Project Cost
$ 6,000,000.00
Less: Water Bond"Gra500, 000.00
Connection Fee ($250) 916,667.00
Local Share of Costs
4,583,333.00
_ Annual Debt Payment
304,500.00
Annual Operating and Maintenance
50,000.00
Total Annual Cost
354,500.00
Monthly local costs
29,547.00
Average Monthly cost per User
7.00
Total Monthly User Cost
11.10
Plus one time installation fee of $250.00
71

ENV-18
(Note: This is an estimate designed to assist in government decision -
making. All costs are reliant on information supplied by engineers
and others with adjustments to account for 1980 dollars. Thus costs
are only adjusted for inflation and the cost of money, not real
appreciation or increase in goods and services. To adjust'to 1985
dollars multiply by a reasonable interest rate compounded annually.
Dare County Regional Water System
Although at the present time, Nags Head is still relying on the
Freshwater Pond for its water -supply, the Dare County Regional System
is expected to be the supplier of water prior to the beginning of
the summer season. The Dare County Regional System is expected to
have a 5 MGD design capacity in 1980, with a 1990 design capacity
of 8.4 MGD. This should be more than enough water to meet the need
of Nags Head residents to 1990.
The present distribution system contains several undersized lines
and dead end lines which are the primary cause for the low pressures.
They will probably cause problmes in meeting residential and commercial
water usage demand even though the capacity at the source has been
(or will be) increased.
In order to accommodate the increased supply of water available
for distribution Nags Head will install a 24 inch regional trans-
mission main as the backbone of the system. Additional ground storage
will also have to be provided. Capital Costs for bringing the local
system to capacity to handle the County Water System were estimated by
Williams and Works at $3,351,000.00 (in 1978 dollars).
72

ENV-19
TABLE 9
WATER SYSTEM ADDITIONS
Total Costs of Water System (1980 $) $4,021,200.00
Less: Clean Water Bond Grant $1,005,300.00
Local Share 2,994,700.00
Annual local share 173,693.00
Annual Operating and Maintenance costs 31,650.00
Total annual cost 205,343.00
Monthly cost 17,112.00
Cost Per User (1980) (1500 users) 11.41
In conclusion, Nags Head and Kill Devil Hills rely on groundwater
system, especially the surficial aquifer, for their drinking water. This
part of the aquiferis sensitive to groundwater pollution, especially from
septic tank effluent. The ability of soils to remove wastes from the
septic systems varies with soil type. Nags Head has a considerable
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 quality 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
73

ENV-20
survive. The Town is currently using land use controls, setback, and
minimum lot size, cut and cover requirements to protect the freshwater
ponds in Nags Head Woods. CAMA requires similar attention within areas
around the largest pond used for water supply.
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.
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 cause pollution*(density was one -of
the factors cited as a function of pollution in Nassau and New Hanover
studies) or to technologically remove the limitation, by building
sewage treatment facility (regonal or several small package facilities)
oriusing mounds, aerobic systems, etc. The most cost efficient,
technological alternative appears to be a Regional 201 Facility. (Small
package plants operated by the municipality need additional study.)
The Town has decided to limit development on poor soils (for septic
systems) within 500 feet of the sound as an interim measure until a
technological approach is adopted.
74

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.
Dare County Complex, 201 Facility Plan. Henry Von Oesen and Associates,
1977.
75

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
76

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. T
parallel to the beaches,
sand from the continental
rose, dunes were breached
the dunes became islands.
have migrated. Migration
hen, a ridge of sand dunes began to appear
formed by wind and tide. The beach received
shelf through wave action. As sea level
and the area behind the ridges became flooded --
Since then, both the mainland and the islands
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
77

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. Groins 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
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
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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. See following page.for erosion rates.
The ability to withstand a hurricane will to a large degree be a
function of the moss in 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

CONSTR-4
of property (several hundred homes are built in the subdivision and
several hundred more possible). Losses could include separation of
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 overwash 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.
71
Nd

CONSTR-7
B. AREAS OF ENVIRONMENTAL CONCERN:
TYPES, STANDARDS, 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.
Nags Head has several AECs; other areas could qualify for nomination.
AECs are protected through State permit leasing (the CAMA permit: the
minor permit is issued by Nags Head under an IGE Program for activity
or development in the ocean hazard and estaurine 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 Nags Head are the ocean erodible area, the V
zone or flood zone, the estuarine shoreline area, the wetland and the
fresh water ponds. The first three are part of the Ocean Hazard AEC,
the next two of the Estaurine System AEC. The ocean erodible area is
a safety zone and intended to prevent further development in areas
which will probably be under water in the next 30 years. The zone
protects persons from building foolishly; 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. This
measurement ranges from 60 to 300 feet, with the greatest rates in
South Nags Head.

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 on the ocean front; otherwise it reaches to SR 1243. Develop-
ment is restricted in this area to design standards set out in CAMA
regs, oversimply to building above flood elevation and with 8" diameter
pilings to a depth of 8 feet into bedrock.
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 system 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 requirement.
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 requirements not be exceeded in the use of septic
tanks.
The full management objective together with the regulations are
set out in the State Administrative Code at 15NCAC7H. Further
information can be obtained.from the CAMA permit officer for the Town.

CONSTR-9
AECS and Land Use Plan
An overlay of the zoning ordinance with the AEC map shows that in
the Ocean Erodible Area the following zones occur: CR, Rl, R2; in the
Flood Zones,(other than V) the following: R3, C, C2, SPD, R2, CR;
in the Wetlands AEC the following:. SPD40, C, C2; in the Estuarine
Shoreline Zone; the following: SPD40, SPD, C, Cl, C2, Rl, R2. The uses
for the zones are: SPE (Special Planned District Development) single
family (detached and clustered), churches, schools, museums, wildlife
refuges, watershed conservation areas, public and outdoor recreation,
sewage treatment facilities; Cl--(neighborhood commercial) food market,
banks, drugstores, post office, barber shop, laundries (with condition
uses for public utility facilities, seafood markets and fishing piers;
C2--(General Commercial District) offices, primary and secondary
retail stores, and service establishments, single family dwelling,
multifamily dwelling and duplexes (with conditional uses for auto
service-stati.ons, public utility facilities and outdoor entertainment
activities); R3--(High Density Residential)--multi-family dwellings,
duplexes, detached single family dwellings (with conditional uses
for churches, cemetaries, townhouses, parks, golf courses, home
occupations,hospitals, medical clinics, nursing homes, private club
or lodge, public buildings, public utilize facilities, mobile home park,
cottage courts;,R2 (Medium Density Residential) --detached single family,
duplexes (with conditional uses for churches, cottage courts, fire
stations, fishing piers, home occupations, private parks and play-
grounds, public utility facilities; and Rl--(Low Density Residential)
detached single family (with conditional uses for churches, cemeteries,

CONSTR-10
fire stations, home occupations, private parks, public utility facili-
ties. The Town notes that the zoning ordinance is more than uses, that
some uses may be greatly restricted from certain areas as a result of
application of development standards. These standards are summarized
on page 73 of the zoning ordinance (which follows this section). The
Town is not aware of any uses that conflict with AEC restrictions. The
Town is not aware of any land that would be totally prevented from
development in the Ocean Hazard Area. Furthermore because of the large
size of the tracts, the same applies to the wetlands which are allowed
to develop using density transfer under the Town's SPD district. The
Plans for managing the "Woods" should strengthen the protection of the
wetlands there. The Town notes that the State is not permitted to regu-
late land to the extent that the regulation results in a "taking" of
the land.
n

TABLE 1 s ABRIDGED STANDARDS FOR DEVELOPMENT
FROM NAGS HEAD ZONING ORDINANCE
Minimum
Minimum
Minimum
Minimum
Minimum
Maximum
Heigh
j
Lot Area/D.U,
Lot Width (2)
Front Yard
Side Yard 6
Rear Yard
Lot Covera a
limit
-1 Low Density
15,000 sq. ft.
75 ft.
30 ft.
12 ft.
20�.Lot
Depth
30%
35 ft
Residential
-2 Medium Density
10,000 sq. ft.
70 ft.
30 fit.
10 ft.
20% Lot
Depth
30X
35 ft
Residential
-3 High Density
Residential
First D.U.
7,500 sq. ft.
60 ft.
30 ft.
8 ft.
20') Lot
Depth
30%
35 ft
(Ea. additional D..U.
4,000 sq.ft.)
l0 ft.
20% Lot
55% Including
Multi -Family or
20,000 sq.ft.
100 ft.
15 ft.
Depth
Required
Motel/Hotel
Parking
Sufficient to meet
Commercial
requirements of ap-
50 ft.
15 ft.
8 ft.
25 ft.
55%
plicable State and
.
Local Ordinance.
Sufficient to meet
None Req'd.
-1 Neighborhood
requirements of ap-
50 ft.
15 ft.
If Provided
25 ft.
55
35 ft
Commercial
plicable State and
Must Be
Local Ordinances.
10 ft.
Sufficient to meet
None Req'd.
-2 General
requirements of ap-
50 ft.
15 ft.
If"Provided
25 ft.
55M
35 ft
Commercial
plicable State and
Must Be
Local Ordinances..
10 ft.
n.

CONSTR-12
C. ENVIRONMENTAL AND OTHER CONSTRAINTS:
FRAGILE ES ANDH ES
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 wetlands, 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
environmental 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
recreation 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 reserves,
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.
NE

CONSTR-13
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 nutrient
trap in which eroded soil and wastes are filtered out naturally from
water destined for human use; retain floodwater during heavy rainfall;
act as plant and wildlife habitats and provide the life cycle fore
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 Devil Hills is typified by the presence of Spartine
alterniflora, juncus romerianus or scirpus spp.
Land uses in or adjacent to wetlands should be limited to
conservation 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,
residential and commercial buildings should not be constructed. If,
however, this action cannot be taken, development in these areas
c � , t

CONSTR-14
should 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 plain. We mapped both areas
designated 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).
Nags Head cooperates in the flood hazard program. Although flooding
` is a constraint 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 Nags Head 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 dunes in The Woods have been mapped
and proposed management system there will protect development from
them. Elsewhere areas near the larger moving dunes are already
subdivided. Development on the dunes is unwise as shifting sand
makes a poor foundation for roads, and even for houses. Nags Head
RE

CONSTR-15
has had considerable problems of this type with the road to the Villas.
Development on dunes above 35 feet may be especially hazardous during
storms, due to higher wind velocity and less protection from manmade
and natural features. We have mapped these areas using aerial photos
and transferring reductions in typographical 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--deminishing erosion,
sedimentation, flood and drought. The scenic role of woodlands is
apparent, as is their provision of a habitat for game. Woodlands
offer substantial potential for recreational use. The forest is a
low maintenance, self-perpetuating landscape. Forests can be employed
for timber production, water management, wildlife habitats, as air -
sheds, recreation or for any combination of these uses. Woodlands can
be constrained by zoning ordinances and the marketplace. Often wood-
lands, although extremely important to the ecosystem, are not
adequately protected. Woodlands comprising the Nags Head Woods are
protected presently by no cutting of cover requirements. The Woods
have resource potential for timbering and mining of minerals (and
perhaps peat). The Town feels these uses are not appropriate in light
of the unique environmental value of the Woods.
(6) Poor Soils. For on -lot sewage disposal. This constraint
was fully discussed in the section on "Environmental Considerations
Relating 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 system.
.0

CONSTR-16
(7) Recreational Areas, Historic Areas. Nags Head has a major
public recreation site, namely Jockey's Ridge State Park. (Large
dune area of the Woods, designated as such on the base map.) The Town
has a large historic district of 30 to 60 year houses along the
backfront and north of Town Hall
(8) Prime and Unique Agricultural Land. Although a portion of
the Woods is presently in agricultural use, this use is not a signifi-
cant use in the Town. The continuance of the use is of questionable
compatibility with the integrity of the Woods. The farm was not mapped,
it lies to the west of the ridge in the northern part of the Woods.
(9) Mining Areas, Other Industrial Sites, Commercial Fishing
and Fisheries. These uses are not important within the Town limits.
The Town recognizes the importance of these uses in neighboring area
for serving residents and visitors to Nags Head. 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 ordinance. The Town is
cooperating in preserving these uses by taking measures to insure the
quality of the Sound. (See Environmental considerations relating to
Water and Sewer.)
(10) Developed Areas. Areas already developed by residential,
commercial or industrial uses are not available for further develop-
ment. 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
91

CONSTR-17
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 conflicts caused by high densities
of people and uses of automobile. 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 pro-
vided by the zoning ordinance as where historically the Town has
developed on half acre lots and the zoning of the undeveloped land
is at one acre, then you have a constraint. Single family development
in Nags Head has traditionally been at 4/10 acre lots, only.the SPD 40
zone is therefore a constraining zone.
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, stream, lakes, ponds, (especially if they
are water. supply), State Parks 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 wetlands), 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. Note, dunes have, not
92

CONSTR-18
been constrained beyond the constraint provided for by the Woods
constraint, to wit zoning.
The maps showing all- -constraints are enclosed with the text.of
this plan.
93

CONSTR-19
D. NAGS HEAD WOODS
The Nags Head Woods occupies the northwest portion of Nags Head.
The Woods include the Fresh Water Pond (water supply), a large stable
marshland, large vegetated (and a couple unvegetated) sand dunes, a
forest with other ponds and wetlands. The Woods was the home of the
first settlers. Its ecological significance has been amply documented
in terms of endangered and threatened species. The Woods consists
ecologically of marshland, pine hammocks, bay forest, the ridge, hard-
wood and pine forest(s), ponds and dunes. Each part of the system
is important to the whole, although the least adverse environmental
impacts would result from development in the bay and hardwood forests
away from the ponds.
The existing land use in the Woods is limited to a handful of
residences and one farm. The remainder is in its natural state.
The principle reasons for this pattern'is the lack of access by road,
the costs of development, the ownership patterns, and the Town's
regulations.
In the future, the Town can expect to feel increasing pressure
for development. Much of the Kill Devil Hills part of the Woods is
already platted for development.
.The current management system relied on to protect environmentally
sensitive features, the water supply and man from natural hazards
is as follows. The marshes are protected by the Coastal Resources
Commission through an AEC permit. Regulations are designed to prevent
fill which would be necessary for residential or commercial develop-
ment. Similarly AEC and zoning regulations restrict development in
94

CONSTR-20
the bay forest to building above flood elevation, etc. Development
near the Fresh Water Pond which form the municipal water source is
also limited by AEC regulation and the zoning ordinance which restrict
septic systems to one per acre within 1200 feet of the edge of the
Pond and eliminate their use within 500 feet of the same.
Elsewhere in the Woods, Town zoning regulations demand 40,000
square feet minimum lot'sizes and prohibit development on unvegetated
dunes that are part of the major dune system and which have a slope
greater than 20%. They also prohibit development that would cause
destruction of unique natural features.
,,The Woods could qualify as an area of environmental concern,
as a Coastal Complex Natural Area. In the study leading to a manage-
ment system for the Woods, the consultants concluded that the Woods
could benefit from a management system similar to that used in the
Adirondack Park. Each ecological zone has been mapped; it could
be given a development density. Through allowance of transference
of densities, those features more tolerant to development could be
developed at greater densities, while those least tolerant left
in their natural condition.
The Town supports the following policies concerning the Woods:
95

CONSTR-21
POLICY
1. It is the policy of the Town of Nags Head to protect from development
as much as is possible the unique and natural features in the Nags Head
Woods. It is also Town policy to respect the rights of those persons who
own land in the Woods to have a reasonable and practical use of their
property, including a reasonable rate of return.
2. The Town feels that some features in the Woods deserve more protection
than others. This may be due to its unique environmental importance, its
geologic importance, its historic importance, its recreational importance
or a combination of these. The Town is particularly interested in protecting
those feature which if not protected would result in the loss of the Woods
as a.unique natural area. In order of importance the Town wishes to protect:
the hammocks, the ridge forest, the edges of the fresh water ponds, the
ponds, the marsh, the dunes, the bay forest and scenic areas.
3. The Town hopes to accomplish this protection through Town regulations.
It proposes to adopt district zones that conform to the natural boundaries
of the elements of the total system that makes up the Woods and to place an
appropriate development density for each zone. The Town proposes to use
.PUD style development to transfer density from an entire tract to that part
of the tract which has been identified as most able to be developed without
damaging the environment,.(.see map). The Town also proposes to place
setbacks on ponds; restrictions of filling ponds; restrictions on building
on steep slopes, in hazard areas, etc. The Town proposes to revise
vegetation standards from the SPD zone and to set requirements on cover and
protection of rare and endangered species.

CHAPTER V
TRANSPORTATION SYSTEM: HURRICANE EVACUATION
AND THOROUGHFARE MOVEMENT
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 tourist) are
our bread and butter. We must be concerned about their safety."
The problems of the Town of Nags Head are two -fold --one, the capacity
of the 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.
97

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.
.;

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,,is 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
9

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,
100

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 of 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: (10,000 people)
Shelters 3,500
Residences (high ground) 1,000
48-24 hours leaving over
64 & 158 25,000
24 hours to storm over
64 & 158 88,000
Total Capacity 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:
101

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 capacity 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.
WV 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.
102

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. -
103

TRANS-8
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 rate). (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 �usjness
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
104

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
Washington Baum Bridge
NC 12
North of Oregon Inlet
NH: 158 Bypass south
(Business)
NH: 158 Bypass at Wright Memorial
SS: 158
1970 Daily Average
3,200
1,600
1,700
2,650
2,850
2,950
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.
The under capacity of this system is not only an inconvenience, it
is a safety hazard. Since 1976, the Dare beaches north of the
105

TRANS-10
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
Visible
No. of Injury
No. Incapaci-
Accidents
No. Fatal
tating
Injury
1976
17
0
4
10
1977
27
0
7-
11
1978 ;
39
1
9
17
1979
49
0
11*
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
106

TRANS-11
7
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:
0
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
11100,000
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
Y
development, the maximum would be 30,000 vehicles. Signalization
107

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.
1

TRANS-13
If the long-range objective is to get support for a six -lane
bypass, 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
109

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.
The Town will adopt additional regulatory measures designed to
control access to the Bypass. The Town desires that the Bypass be
the only through road of this type in its Town. This does not mean
that other roads and streets cannot be used to go from one side of
Town to another --the Beach Road can be used to move local traffic.
The Town proposes a substandard road to serve local residents living
along the sound. This road will not be designed to carry "through"
I
traffic.
110

CHAPTER VI
ANALYSIS OF IMPLICATION OF
DIFFERENT HOUSING MIXES
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.).
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
. 111

HOUS-2
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
base structure and the degree to which services can be effectively
provided.
112

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
113

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-
tional pressures involving recreation, shore access, seasonal
population shifts, and sensitive.environmental factors.
Ultimately, local government must decide the extent of its
influence over development patterns and housing mix in consideration
114

HOUS-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 i.ndices. 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;
(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;
115

HOUS-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
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
116

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 l
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-uR a artments--apartment buildings generally two or
threefloors; inc udes 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.
a
117

HOUS
-8
TABLE 1s NEIGHBORHOOD
LAND
3UDG'S2
-- For 1, 000 Housing Units
Housing
Pattern (Aces)
_
A B
C
D
E
F 1
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 - Walk -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 1 45 90
90
73
32
66
n
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 �
Minor, Collector and Arterial Streets 75 60
45
30
1S
45
Vacant (Temporary11 16 16
34
-
-
13
Total S00 400
300
200
100
300
?1 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).
1 Derived from Urban Land Institute, Innovations Vs. Traditions in Community Development
(ref. no. 01-138).
1 Derived by subtraction from rounded totals. Little significance to these quantities.
209 each of A-E.
118

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 Community --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 Community --Housing mix is the same as I,
but that 0 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 --Housing mix 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 Density Planned Community --Housing mix is 10 percent
single-family 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
are planned, and land uses are related.
Based 'on the above, communities will show cost variations because of
the following factors:
(a) differences in housing mix and residential density;
119

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.
Fnvirnnmont
All costs presented in the analysis are based on "typical" terrain
and topographical conditions. The impact of more extreme site
-120

HOUS-11
;Q
TABLE 2:
COMMUNITY LANYD
BUDGET
Community
Development
Pattern
(Acres)
For 10,000 Housing Units.
I
II
III
IV
V
VI
Combination
Mix
Low
Low
High
Planned
509 PUD
Sprawl
Density
Density
Density
Mix
S006 Sprawl
Mix
Planned
Sprawl
Planned
DEVELOPED AREA
1.
Residential a/
_
Units/Acre
A. Single, Conventional 3.0
660
660
.660
833
2,500
- .
-
B. Single, Clustered S. 0
400
400
400
I'Soo
S00
200
C. Townhouse, Clustered 10.0
200
200
200
-
-
200
D. Walk -Up Apartment 15.0
130
130
130
-
-
200
E. High -Rise Apartment 30.0
60
60
60
-
-
133
Subtotal
1, 4�
54,�0
3, 4
2,333
3, 000
733
2.
Open Space/Recreation b/
660
530
.400
660
400
660
3.
Schools S/
Elementary
170
170
170
170
170
170
Secondary
90
90
90
90
90
90
Subtotal
260
260
260
2
260
260
4.
Other Public Facilities d/
140
140
140
1409. 140
140
5.
Transportation-2/ -
Neighborhood R. O. W.
450
450
450
640
710
300
Expressway
80
80
80
80
80
80
TOTAL DEVELOPED AREA
3,040
4910
2,780
4,113
42590
2,173
VACANT AREA
1.
Improved, Land f /$/
130
180
235
175
390
90
Improved, R. O. W.
22
33
43
31
69
19
Subtotal
152
213
278
206
459
109
2.
Semi -Improved, Land -US/
435
878
10320
585
903
310
Semi -Improved, R. O. W.
21
44
70
32
48
16
Subtotal
456
922
1,390
617
951
326
3.
Unimproved, Land f /$/
2, 23S
1,857
12474
12010
0
3,220
Unimproved, R. O. W.
117
98
78
S4
0
172
Subtotal
4352
1,955
12552
1,064
0
373 22
TOTAL VACANT LAND
2,960
3,090
31220
12887
1,410
3,827
TOTALCOMMUNITY ACREAGE
6,000
6,000
6,000
6,000
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. 07,001).
c/
Derived from Council of Educational F261ity
Tanners, Guide 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.
f /
Vacant Areas - Total Acreage
I
II
III
IV
V
VI
"
Vacant Improved
% of developed acreage
5%
7.596
10%
5%
10%
596
Vacant Semi -improved
% of developed acreage
15%
32.50-66
50%
1596
Balance
1596
of 6, 000
acres
Vacant Unimproved
Balance
Balance-
Balance
Balance
None
Balance
% of developed acreage
of 6, 000.
of 6, 000
of 6, bM
of 6, 000
of 6, 000
r
acres
aces
acres
aces
acres
g/
Vacant Areas - Right -of -Way
Percent of Vacant Improved Acreage
Is%
1596
1S%
15%
1S%
15%
Percent of Vacant Semi -Improved
Acreage
5%
596
S%
S%
S%
S%
Percent of Vacant Unimproved
121
Acreage '
5%
5%
5%
59
Nnn•
caC

HOUS-12
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.
Total
Cost to
Household
Housing Type
Capital Costs
Government/Private
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%
122

HOUS-13
TABLE 3: SUMMARY Or PROTOTYPES
Neighborhood Community
Population Varies according to housing type; Population of 33, 000; same for all
three populations ranging from communities
2, 82S to 3, 520 used
Dwelling Units 1, 000 for each neighborhood 10, 000 for each community
Acreage Varies from 100 to 500 acres, 6, 000 acres for each community
depending on assumed densities
and housing types "
Development Conventional and clustered Planned, sprawl, and combination
Pattern
Housing Types (A) Single-family, conventional (I) 20% mix; planned
(B) Single-family, clustered (II) 209 mix; combination
(C) Townhouses, clustered (III) 209 mix; sprawl
(D) Walk-up apartments (IV) 75% single-family conventional;
(E) High-rise apartments planned
(F) 20% mix of each type (V) 75% single-family conventional,
(A)-(E) 25% single-family clustered;
sp: awl
(VI) 10% single-family clustered,
20% townhouses, 30% walk-ups,
40% high-rise apartments; planned
Environments "Undistinguished" site with typical Same as neighborhood
environmental features; not site
specific
Commercial Convenience center, 7, 500 square (a) Strip commercial development,
feet of building area, 21, 780 200, 000 square feet of building
square feet of land area. area, 1,056,000 square feet of
land area
(b) Center commercial development,
240, 000 square feet of building
area, 740, 000 square feet of land
area.
123,

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,
20% 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
124

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
Total
Cost to
Households
Prototype
Capital Costs
Government/Private
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%/88%
81%/7%/12%
Low density
sprawl
$
514,559
19%/81%
75%/6%/19%
High density•
planned
$
287,062
18%/82%
26%/56%/18%
125

N
CA
COST CATEGORY
Open Space
Schools
Public Facilities
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
- $ 2,968
$ 45,302
$ 16,216
Transportation $ 27,077
Utilities $ 33,227
Subtotal $124,870
Residential $214,172
(Exclusive of Land) $339,042
Land $ 18,491
Total Capital Cost $3579533
$ 2,826
$ 2,684
$ 2,968
$ 29684
$ 2,968
$ 45,382
$ 459307
$ 45,382
$ 45,382
$ 459382
$ 16,441
$ 169453
$ 169259
$ 16,615
$ 16,304
$ 29,768
$ 329353
$.33,770
-$ 37,965
$ 22,862
$ 369042
$ 38,684
$ 47,444
$ 61,974
$ 229432
$1309459
$135,556
$1459823
$1649620
$1099948
$2149172
$214,172
$318,291
$320,400
$160.300
$344,631
$349,728
$464,114
085,020
$270,248
$ 239531
$ 239105
$ 25,692
$ 299539
$ 16,814
$368,162
$3729833
$4899806
$5149559
$2879062
Source: Real Estate Research Corporation

►
r
r
i
TABLE 5
COMMUNITY COST
ANALYSIS
OPERATING AND MAINTENANCE COSTS
Community Development Pattern
.
Combination
50% PUB
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
$
380
$ 320
$ 260
$ 380
$ 260
$ 380
Schools
$
9,643
$ 9,652
$ 9,737:$
9*643
$ 9,737
$ 99643
Public Services
$
56103
$ .5,296
$ 5,405
$ 5,165
$ 5,575
$ 5,164
Transportation
$
260
$ 260
$ 261
$ 354
$ 396
$ 209
Utilities
$
3,987
$ 3,988 '
$ 3,989
$ 5,130
$ 5,141
$ 3,335
Total Ten Year
Operating Costs
$
199373
$ 19,516
$ 19,652
$ 20,672
$ 219109
$ 18,731
Cumulative Costs
$.125,265
$ 117,299
$109,489
$133,186
$116,827
$120,919
Source:. Real Estate Research Corporation
x
0
N C
V (i
V

Single -Family
Conventional
Cost
COST CATEGORY
Open Space
$ 220
Schools
$ 5,354
Transportation
$ 3,080
Utilities
$ 59483
Subtotal
$149137
Residential
$32,146
(.Exclusive of
Land)$46,283
Land
$ 2,628
Total Capital Cost: $48,911
TABLE 6
NEIGHBORHOOD COST ANALYSIS
CAPITAL COSTS
Housing Pattern
Single -Family
Townhouse
Walk-up
High -Rise
Housing
Clustered
Clustered
Apartment
Apartment
Mix
Cost
Cost
Cost
Cost -
Cost
$ 274
$ 274
$ 252
$ 203
$ 245
$ 5,354
$ 4,538
$ 4,538
$ 1,646
$ 4,53.8
2,661
$ 2,111
$ 1,464
$ 801
$ 2,064
$ 3,649
$ 2,369
$ 19579
$ 958
$ 29782
$119938
$ 9,292
$ 79833
$ 39628
$ 99629
$31,724
$169263
$11.766
$159188
$21,417
$439662
$259555
$199599
$18,796
$31,046
$ 29596
$ 1,704
$ 1,683
$ 19900
$ 2,042
$469258
$27*259
$219282
$209696
$33,088
Source: Real Estate Research Corporation
0
N N
co 1
rn
0

TABLE 7
NEIGHBORHOOD
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
$19721
$1,720
$1,388
$1,319
$ 548
$11,410
0
Source: Real Estate Research
Corporation
c
Cn
N
to

HOUS-20
Community Total Cost to Households
Prototype Operating Costs. Government/Private Service Taxes
Planned mix
community
$
19,373
55%/45%
49%/51%
Combination
mix com.
$
19,516
60%/40%
44%/56%
Sprawl mix
community
$
19,652
61%/39%
43%/57%
Low density
planned
$
20,672
51%/49%
52%/48%
Low density
sprawl
$
21,109
57%/43%
46%/54%
High density
planned
$
18,731
55%/45%
48%/52%
Again, the summaries clearly indicate that, at the community level,
low density combined with unplanned development produces the highest
costs. The higher the density, the less the cost.
Nn►V:1 I it-r A10
The summary analyses presented here speak for themselves and
indicate that planned, higher density communities will result in lower:
overall capital and operating costs, and that government's share in
those costs is much less.
Tax Base
The data presented as a result of the application of a model to
analyze costs indicates .that it is less expensive to service higher
density housing types. It is a fair assumption that such developments
likely would produce the greatest amount of tax revenues as well.
Thus, there is a double benefit to the local community concerned with
its future development and housing mix, should it consider higher
densities.
130

HOUSZI
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.
131

HOUS- 22
COMMENTS ON APPLICATION OF MODEL
Nags Head's development has exceeded that of the neighborhood
and is moving towards a community (according to model). In the shift,
it will move from a neighborhood housing type 1F), actually a variety
of it, to a community type IV. Because of the model development,
it is hard to categorize the Town in the neighborhood model, although
the above appear reasonable --the reader may select a different
scenario, after analyzing the housing information presented in the
population paper. The costs to government in the mix that is pre-
. i
dominantly motel (high-rise) and single family conventional or
clustered range from 13 to 15% the capital costs of the units,
$48,911 and $20,696 respectively. Operating costs for government
ranged from 57 to 67%. Highest cost to government at the neighbor-
hood level of development were incurred with moderate densities,
both in capital andoperating costs to government.
During the next ten years Nags Head will probably develop in
such a way that it will resemble a low density planned community,
although with much.less cluster. Both scenarios should result in
a lower percentage of capital costs and operating costs than would
other scenarios.
Anticipated costs for various services such as schools, roads,
utilities, etc. are set out in the tables.
132

HOUS- 23
C. SOME ADDITIONAL APPLICATION TO NAGS HEAD:
REVENUE/COSTS
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 the revenue costs which make this section
dealing with application necessary. This section attempts to draw
some preliminary conclusions about revenue and costs under (3) differ-
ent scenarios, one the trend of the 1970s, the others housing mixes
under moderate and high densities. All costs are in 1980 dollars.
Information concerning 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 NAGS HEAD POPULATION
Added New
Housing Type Pop. '80 Units Pop. '90 Units
Mobile Homes
107
38
0
0
Single Family
6493
1355
14883
3447
Townhouse
527
117
1860
580
Cottage Court
2976
850
930
290
Motel
3504
1001
930
290
(TREND)
133

HOUS- 24
HOUSING MIX AND INCREMENTAL REVENUE
FROM NEW UNITS TO 1990
% of Total
# of
Valuation
Total
Acres
Housing Type
Stock
Units
Per Unit
Valuation
Used "
Mobile Homes
0%
0
$14,000
$ 000
0
Single family
80
3447
22,000
75,834,000
862
Townhouse
10
580
19,000
11,020,000
58
Cottage Court
5
290
8,000
2,320,000
29
Motel
5
290
8,500
2,465,000
6
HOUSING:r1IK:.'AND IRJCREMENTAL*'REVENUE FROM NEW
UNITS TO 1990 UNDER ASSUMPTION OF A HOUS
ING MIX WITH MODERATE DENSITY
% of Total
# of
Valuation
Total
Acres
Housing Type
Stock
Units
Per Unit
Valuation
Used
Mobile Homes
0%
0
$ 14,000
$ 000
0
Single family
50
2067
22,000
45,474,000
517
Townhouse
25
1033
19,000
19,627,000
103
Cottage Court
Motel
5
20
265
.1063
8,000
8,500
2,120,000
9,035,500
26
21
HOUSING MIX AND INCREMENTAL REVENUE FROM NEW
UNITS TO 1990 UNDER ASSUMPTION OF A HOUS-
ING MIX WITH HIGH DENSITY
% of Total
# of
Valuation
Total
Acres
Housing Type Stock
Units
Per Unit
Valuation
Used
Mobile Homes
0%
. 0
14,000
$ 0000
.0
Single family
35
1447
22,000
31,834,000
362
Townhouse
35
1447
19,000
27,493,000
145
Cottage court
0
-.0
8,000
000
0
Motel
30
1595
8,500
13,557,500
32
134

HOUS- 25
If we contrast the revenue aspects from future development in
terms of total valuation and as a function of acerage, we note the
following. (Note, total valuation must be adjusted to account for
the removal of vacant lots from the tax base. An average for vacant
lots was set at $10,000. ($40,000 per acre subdivided.) Tax revenues
are expressed as the incremental amount raised from new housing
between 1980 and 1990 based on a tax rate of $.52/$100.
REVENUE GENERATION FROM NEW HOUSING WITH
DIFFERENT MIXES
1970s Trend
Moderate
High Density
Total Valuation
$91,639,000
$76,256,000
$72,884,500
Less: Vacant Lots
$38,200,000
$28,800,000
$21,560,000
Net Valuation
$53,439,000
$47,456,500
$51,324,500
Revenue Produced
$ 277,882
$ 246,774
$ 266,887
Acres Developed
$ 955
$ 667
$ 539
Revenue/Acre
$ 290.97
$ 369.97
$ 495.15
From the above, we notice that the revenue produced during the
planning period from low density development should in fact be higher
than under either moderate or high density development. However,
since the higher densities require less land to be used for devel'op-
ment, land that is undeveloped (vacant land) can still be developed
in. the future, with additional revenues being generated from this
land. Thus, if we do not change any of the land unused under
different scenarios into open space, we would expect that high
density development will generate the most revenue (this is best
expressed as a function of acerage.) One of the benefits of higher
135

HOUS- 26
densities in development is the potential for acquisition of open
space without loss in revenues when compared with lower density,
developments. We should note that since government would be presumed
to never operate at aloss (i.e. they would raise the tax base to prevent
this from happening), that the proper test to measure advantages from
differing housing types would be incremental net benefits. This
implies some appreciation for differing costs under various densities.
Unlike the revenue side of the coin, the cost side is more diffi-
cult to express. During the next ten years, Nags Head will need t
either persuade future developers to build their own systems or provide
a public sewer system. A rough calculation placed the yearly costs
for such a system (local collector portion only) at $267,000. The
demand for such a system will depend on the amount of development
which occurs on soils unsuitable for septic systems, see map
enclosed, and whether the total constraints, see constraint analysis
and population projections, are exceeded. It is feasible that Nags
Head can accommodate its future population to 1990 on suitable soils.
The costs of public sewers and alternatives are set out in detail
in the section dealing with environmental considerations.
The implications of future population to the public water
system are more predictable. The current above ground storage
capacity and the mainline sizes are not adequate for the immediate
future. The costs of improvements to this system were estimated at
$11.41 per user (with 1500 users).
In planning a growth pattern, it is obvious from the model that
planned high density or low density cluster offer substantial savings.
136

HOUS- 27
These savings result because of a decrease in the amount of pipe
that must be laid and the number of pumping stations needed (sewer
only).
Solid Waste. The costs of solid waste removal are particularly
sensitive to the density. Higher densities of development reduce
the number of stops or pickups and the amount of time spent in
collection.
Roads. The higher the density of development the less the area
to be served. This translates into less miles of road required to
be paved and maintained. These costs may be sizeable.
Fire and Police. Fire and police are extremely sensitive to the
number of people served and the distance traveled to respond to calls.
Some savings should be possible from the concentration of population,
however, this should not be as significant as previously mentioned
services.
Schools. The costs of operating the school system is borne by
the county. However, in calculating this and social service costs,
the nature of the population is important since it places a small
burden on the local tax base compared to a similar year-round popula-
tion for the same number of units.
Environmental and other costs. The costs of development emphasiz-
ing single family development on one-fourth acre lots are significantly
greater than the costs from higher density styles of development. As
was noticed from the revenue charts the higher the density the more
vacant land left in the community. Through purchase and the police
power, some of this land may be left as open space. Where the open
137

HOUS-28
space protects lands that are unsuitable for development from an
environmental perspective, as when it decreases the density of
development on poor soils adjacent to the sound, substantial
detriment to the quality of the sound may be avoided. Similarly
open space can protect vegetated areas and hazard areas.
The residents of Nags Head have expressed'a desire to protect
the family beach atmosphere in the town. We suspect that this
image depends considerably more on the amount of open space in
the town than they realize.
Some Comments on the Tax Structure; Conclusions
One of the most often underrated land use tools is the taxing
policy of the government. In many instances the taxing power implicitly
shapes the choices of housing stock and areas likely to be developed.
We noticed the following:
(1) from the vantage point of net revenue, motels do not
generate as much revenue per person accommodated as
do single family houses;
(2) underdeveloped lots are disproportionately taxed, thereby
encouraging development. We noticed that vacant lots were
85% of market value whereas the buildings on the lots were
often only 30% of market value;
(3) townhouses appear to be a good deal when trying to balance
concerns over revenue to government (both net and per acre),
costs to the citizen to build, and impact on the environment;
(4) because revenue production to the state and federal government
is more sensitive to income taxes and sales taxes, as opposed
to ad valorem taxes, one would expect that policies in this
sector will focus on savings from decreased costs.
138

CHAPTER VII
RECREATIONAL ASPECTS
Because many of the permanent residents and non-resident property
owners major connection with the Town of Nags Head arises from either
the use of the beach or the sound for swimming, fishing, walking or
boating, it is imperative that recreational policies be a fundamental
part of the land use plan. An analysis of recreational opportunities
must include an appraisal of present and future demand, an assessment
of future facilities and possibilities for the provision of future
facilities and an anticipation of alterations in people's moods, habits
or demands.
Existing and Future Demand
Two factors play a major role in the demands on the Town as a
recreational facility. First, we have the natural growth rate of
the municipality and adjoining municipalities. Second, we have the
increased importance which camping and outdoor recreation is realizing
as it relates to the region surrounding Nags Head. Against these two
factors we have the more limiting roles played by the economic condi-
tion and the availability of energy.
Neither the growth rate in Nags Head, nor the number of day visi-
tors passing through or stopping in Nags Head appears to be affected
to any great degree by the availability of fuel. Both in 1973 and in
139

RECR-2
the summer of 1979, the county experienced major problems with the .
availability of gasoline for automobile use, yet the number of new
}
visitors both in Nags Head and neighboring beaches increased slowed
only by a factor which seems to allow for tight money and a shortage
of it.
Nags Head appears to be very sentitive to the availability of
mortgage money at a reasonable rate. In 1974 through 1975, when
mortgage rates climbed following inflation stimulated by high energy
prices and second home mortgage money became difficult to obtain
from lending institutions. Nags Head and its neighbours experienced
a decline in the rate of growth as seen in the number of new housing
starts. Since we are currently in a period of high interest rates,
we can expect that the immediate forecast concerning demand may have
to be tempered. However, we should note that the Town experienced an
average 8% per year growth rate --despTte-"the poor years of.1973-74.
In terms of recreational demand from a regional perspective the
North Carolina -Statewide .Comprehensive -Outdoor,..Recreation_.P.lan
forecasts strong increases in demand for nearly all types of
recreational opportunities, but especially for water related ones.
Looking at the reverse side of the coin, those persons who
inhabit the Town during the peak season and during the entire year
have differing expectations concerning the opportunities that the
Town should provide by way of recreation. Both.the permanent resi-
dents and the non-resident real property owners stress the major
importance of beach related activities. In their response to the
questionnaire mailed with this land use plan update, they indicated
140

RECR-3
a strong desire to see the setting side of public access points together
with the building of parking faciliti-es for servicing these areas.
although no other recreational facility received enough support
to demand its being considered (as a result of the questionnaire)
for public funding, several other facilities received a considerable
amount of attention, namely jogging and walking paths, sound access
areas and perhaps boat ramps and moorings. Conventional recreational
facilities for inland communities ranked very low in demand here.
Existing Facilities
Beach access: Beach access is provided by both the private and
public sectors. Motels and cottage courts account for several miles
of beach front along the Atlantic Ocean. Since the motels are open
to the public and have a high turnover, they offer the opportunity
of the right to use the beach to many persons who would be deprived
of this opportunity were the beach developed solely in low density
housing. In addition to private access, the Town has designated a
number of beach access points where street right-of-way dead-end
into the beach. The Nags Head Beach Access Plan states:
that there are some 33 access points within the corporate
limits. . . . Of [these], 11 are paved, 16 have clay
surfaces and 6 are unimproved. Generally speaking, they
average about 200 feet in length . . . [by] 50 feet wide.
The Access Plan notes that although most rights -of -way have been
• improved, this was done to provide access to adjoining property
owners and are not suitable for parking. Other parking areas are
able to handle only a few parked cars. Most of the access points
are experiencing heavy pedestrian traffic and are used principally
by persons inhabiting summer cottages/houses) that are west of the
beach road. As the areas west of the Bypass develop, one can
141

RECR-4
expect incneasing4pressures on the Town to purchase parking areas to
service these residents. Day users and passers-by also contribute to
an unmet demand.
Sound access: Only two streets provide public access.to the sound.
There are no public boatramps,moorings or docking facilities. Commer-
cial boat access exists on the causeway for a handful of boats. Most
of the sound immediately adjacent to the Town is too shallow for
sailboats. Boat access for cottage residents is provided by canal
from the Cove subdivision. In addition, residents of the townhouse
development, the Villas, have sound access for boating.
Unique and unusual.: Jockey's Ridge is a unique, high natural
soundside dune which attracts visitors. It is a registered National
Historic Landmark owned by the State. It offers one of the few hang-
gliding sites in North Carolina. Other soundside dunes are attractive
climbing terrain to residents and passer-bys. Some of the local roads
crossing the high dune.areas offer scenic vistas of the ocean and sound.
Nature walking: The Nags.Head Woods (partially in public owner-
ship) offers the opportunity to partake in nature walks. The Nags
Head Woods contains rare and endangered forests, live -oak forests,
marshlands and fresh water ponds.
Fishing: In addition to boat fishing,in the sound, Nags Head
offers opportunity for surffishing and pier fishing. Three commercial
fishing piers are located on the ocean.
Other: In addition to the above uses, Nags Head residents use the
ocean for surfing, the beaches during non -summer months for off -road
vehicles, and the soundside for duckhunting.
142

RECR-5
But perhaps the favorite use of all is beachwalking and beach-
combing! swimming and sunbathing!
Conventional facilities: Nags Head does not have any public
facilities for tennis, golf, indoor or outdoor ball games. However,
there does not appear to be any real demand for any of these uses.
Policies of the State of North Carolina
The Department of Natural Resources and Community Development
has developed "Shoreline Access Policies" for the coastal area. The
essence of the policies appear to be that localities in the coastal zone
must provide adequate access and parking for the general public (not
just the residents, local, permanent or seasonal).
Standards
Standards dealing with outdoor recreation in a beach community
seem highly subjective. Ron D. Johnson, one of the principal ;i
contributors to Ocean And Estuarine Recreation Access in Carteret
County, estimated that approximately 20% of the total population at
the beach would attempt to use the beach at one time. Therefore,
beach access areas must be able to handle that percentage of the
population which is not capable of walking to the beach. In 1979
the Town of Nags Head determined that it would be desirable for the
i
community to provide fully improved access points at 1500 foot
intervals along the beach.
143

RECR-6
Policies and Actions by the Town of Nags Head
Currently the Town is continuing its program of improving
street rights -of -way deadending into the beach in an effort to ensure
beach access. Beach access and parking are included in the capital
facility plan for the Town. R
Problems
The Nags Head Questionnaire brought forward several attitudes
towards recreational facilities. Outside of a willingness to spend
public monies for beach access and parking, there is not a strong
need for recreational facilities. There is some support for the
idea that additional recreational opportunities deserve consideration,
specifically sound access, walking and jogging paths. The foremost
project appears to be the continuation of actions towards making
public numerous (as yet unaccepted because not maintained) street
right-of-ways leading to the ocean.

CHAPTER VIII
CULTURAL RESOURCES
Nags Head has a lengthy oceanfront area of old cottages built
after access became available from the mainland. This area extend-
ing 9/10 of a mile and lying north of the Town Hall includes some
60 houses. Most of the houses are still in the original ownership.
The houses are of an easily identifiable architectural style with
wood siding, two stories on the main frame and quarters extending
like an "L" to the Beach Road. The houses were added to the National
Register as Nags Head Beach Cottage Row District in 1977. The
implication of such a classification is that of tax penalties and
incentives., According to the Tax Reform Act property on the National
Register when used for commercial purposes (as for rental) is eligible
for special treatment, namely accelerated depreciation of all real
estate improvements connected with restroation above the base cost
of the house in 5 years. Furthermore, if a landowner decided to
dTstroy property on the Register, the costs of destruction are not
deductible as.a cost of business and the new or replacement
• structure is limited in methods of appreciation available as it is
straight line.
In addition to the cottages, the State is currently studying
the Ferring House and the First Colony House for inclusion :in the
National Register:
145

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
146

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 hazardareas) 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.
147

CULT-4
FEDERAL, STATE AND LOCAL CONTROLS
FEDERAL
National Historic Preservation Act of 1966
STATE
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
G.S. 121-12(a) Protection of Properties in the National Register
State Environmental Policy Act, Article 1 of Chapter 113A of the
General Statutes
Executive Order XVI
Indian Antiquities, G.S. 71.1-4
Salvage of Abandoned Shipwrecks and Other Underwater Archeological
Sites: G.S. 121-22, 23; 143E-62(1) g, (3)
Archeological Salvage in Highway Construction, G.S. 136-42.1
Provisions for Cultural Resources in Dredging and Filling
Operations, G.S. 113-229
148

CHAPTER IX
CARRYING CAPACITY: METHODOLOGY AND APPLICATION
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 accommodated
during a reasonable period prior to the storm on its highways and
bridges would represent its carrying capacity. Similarly the carry-
ing capacity of the water system reflects its service ability with-
out 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
represents local municipal standards. Where public sewers exist
the capacity of the system is the capacity of the waste treatment
facility (if it is exceeded the State will probably prohibit further
connections), 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

CAP-2
reflects government policies towards pollution of the sound and risks
of health hazards.
The carrying capacity of a municipality is the limit of its most
constraining system (be that hurricane evauation, 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 development
is less than that demanded, the municipality is considered constrained.
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 attractiveness
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 municipality can create additional facilities or
alter a policy which restricts development.
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 like 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 accord with our experience from dealing with similarly
150

CAP-3
situated municipalities.
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 '[Kh + Kr + Kc + Ki + Kt]
(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 residential use
Kr = Standard land requirement for recreational use
Kc = Standard land requirement -for commercial use
Ki = Standard land requirement for institutional 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:
151
1

CAP-4
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 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
anticipated 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 recreational and educational purposes (e.g. hiking and
nature trails, fishing, hunting).
Flood Hazard Areas: Although in many inland communities flood
hazard areas are considered a constraint to development, they are not
considered one here. The reason for lifting the constraint is that
if one builds above the flood level by the use of pilings sunk into
bedrock and utilizes construction methods designed to prevent flood
and related hazard damages, then damage should not occur. The town
of Nags Head complies with State Building Code designed to prevent
damage from wind and flooding.
152

CAP-5
State and Federally Owned and Managed Land: Areas owned
by governmental agencies for recreational and other purposes are not
considered within the scope of developable lands. We removed Jockey's
Ridge from our calculations.
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 certain consequences for using such lands for residential
use, namely pollution of the water in the Sound and possibly the
groundwater. The County Health Department could be expected to prevent
operation of septic systems that area human health hazard at the site.
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
soundside dunes are a unique geological formation. The ocean dunes
are regarded as a complete constraint which cannot be lifted by the
Town since they are an area of environemtal concern. However, almost
all property owners who own oceanfront lots should be able to build
on their land in historically acceptable manner despite the regula-
tions. Thus, soundside dunes may be considered a constraint. Primary
dunes are a constraint but we do not anticipate any land being lost
to development.
153

1 L
CAP-6
Woodlands: 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 usefulness as a habitat for game and plant life. Woodlands
offer substantial potential for recreational use. The forest is a low
maintenance, self-perpetuating landscape. Forests can be employed for
timber production, water management, wildlife habitats and recreation.
Although we have not considered all wooded land as a constraint in our
model, we have constrained the Nags Head Woods restricting it to
development entirely in one run of the model. The Woods offer a
rather .unique environment (see AEC Study). Current regulations
restrict development to approximately one unit per acre. This
decreases the allowable development by 2.7 times.
Zoning: Zoning is not a constraint in Nags Head except in
the Woods. All other areas have lower allowable densities than
have been used historically to build on.
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 appli-
cation of a second constraint. This is a particuarly difficult
concept when working with concepts such as zoning.
154

CAP-7
TABLE 1
STANDARDS FOR LAND USE PROJECTIONS
Land Use Land Consumed (acres/person)
Residential Single family .094
Townhouse .038
Cottage court .029
Motel . 016
Commercial .0022
Institutional .0026
Recreational .0032
In developing the above standards, residential uses were
descriptive of the actual situation. In handling other uses, we
consulted national standards and used our experience from similarly
situated communities. In handling recreational use we used standards
developed for ocean beaches by Ron Johnson, namely .00016 for beach
access, .003 for public parks and open space.
TABLE 2
EXISTING LAND USE (1980)
Land Use Land Consumed* (acres)
Residential
Single family-
620
Townhouse
20
780
Cottage court
85
Motel
55
• Commercial
105
Institutional
5
Recreational
6
Transportation
90
Other
199
Total
1185
*Land that should have been consumed.
155

CAP-8
TABLE 3
LAND REQUIRED IN 1990 (LOW DENSITY)
Land Use Land Consumed (acres)
Residential Single family 1998.4
Townhouse 97.9 2280.6
Cottage court 112.1
Motel 72.2
Commercial* 70.9
Institutional* 83.8
Recreational* 103.1
Transportation 253.8
Total 2792.2
Additional acres required 1806.2
TABLE 4
LAND REQUIRED IN 1990 (MEDIUM DENSITY)
Land Consumed (acres)
Residential Single family 1514.0
Townhouse 306.0 1969.8
Cottage court 46.7
Motel 103.1
Commercial* 70.9
Institutional* 83.8
Recreational* 103.1
Transportation 200.5
Total 2499.0
Additional acres required 1513.0
156

CAP-9
TABLE 5
CARRYING CAPACITY WITH:PRESENT CONSTRAINTS
Land Use Constraint
Land Constrained (acres)*
Developed land 1185 acres
Roads 119
Jockey's Ridge 280
Wetlands 375
Zoning in Woods (SPD40) 180
Total constrained 2139
Acres available for development .2488
Scenario #1•
Constrain Nags Head Woods and soils
unsuitable for on -lot sewage dispo-
sal and within 1000 feet of sound.
Nags Head Woods 860
(of 1080 acres in Woods
over 220 are wetlands
and 180 zoning)
Unsuitable soils (10001) 705
Total 3524
Acres available for development 1103
Scenario #2:
Constrain dunes and all soils
unsuitable for on -lot sewage
disposal.
Total constrained 3679
Acres available for development 948
Scenario #3:
Constrain of on -lot sewage
lifted and public sewer built
Total persons that can
be served [17,500 persons]
*Total Area of Town: 4150 acres.
157

CAP-10
Comment
Nags Head can accommodate its 1990 growth under an extension of its
present contraint system. Those constraints include currently developed
land, state roads, Jockey's Ridge, wetland and a lower capacity for the
Woods. Accordingly in 1990, the Town will be 50% developed. Furthermore,
the Town can adopt an interim policy on not developing on soils unsuit-
able for septic systems within 500 feet of the sound without really
affecting its ability to meet growth. When public sewers are available,
this constraint could be removed leaving over 2000 acres available
for development. The extension of a constant growth rate met heavily
through single family home development will however result in the Town
being fully developed by 2000. The Town can anticipate strong pressures
for redevelopment during the mid to late 1990s.
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.
Poor soils are not a constraint to meeting the population demand
for new housing to 1990.
158

SECTION THREE: DESCRIPTION OF EXISTING PLANS, POLICIES AND REGULATIONS
Chapter I. Current Plans and Implementation
Chapter II. Policies from 1976 Land Use Plan
Chapter III. Land Use Compatability

CP&I 1
CHAPTER I
CURRENT PLANS, POLICIES AND REGULATIONS
Nags Head has adopted the following plans:
NAGS HEAD LAND USE PLAN (1976)
Comprehensive land use plan updated in this planning process.
Several chapters have detailed information, still applicable, but
not included in this update; particularly resident population charac-
teristics (age, sex, income) and economic data on same (employment
commuting patterns, retail sales). The 1980 Plan focused on more
detailed information on seasonal population, growth rates, housing
densities and use, revenue and facility,implications from growth,
soil unsuitability for septic systems, water quality in the Roanoke
Sound, hurricane evacuation capacity and problems. These documents
are hingly complimentary. The 1976 Plan was prepared by N.C.D.N.R.C.D.
NAGS HEAD LAND DEVOPMENT PLAN (1972)
Predecessor of the 1976 Plan. This Plan designates future land
use areas for varying uses and densities of use.
NAGS HEAD -KILL DEVIL HILLS THOROUGHFARE PLAN (1972)
The Thoroughfare Plan outlines future plans to accommodate
growth on the road system, particularly plansfor a six -lane highway
and design of major intersections. Prepared by N.C.D.O.T.
159

CP & I 2
BEACH ACCESS PLAN, NAGS HEAD (1979)
Inventory and analysis of beach access points. Concluded that
Town needed 11 more access points and that most of existing access -
points needed improvements (for parking and "support" facilities).
ENGINEERING REPORT: IMPROVEMENTS OF THE WATER DISTRIBUTION
SYSTEM THE TOWN OF NAGS -HEAD 978
Analyzed several alternatives for improving capacity of existing
water system. Alternative B, calling for ground reservoir at
Whalebone Jct. and 24" line sizes on main lines are principal features.
Prepared by Williams and Works.
DARE COUNTY COMPLEX 201 FACILITY PLAN (1977)
Study of feasibility of a regional sewer system to serve Manteo
and the Dare Beaches. Alternative A was selected by all participants.
Prepared by Van Oessen Associates.
Nags Head had adopted the following implementation devices:
ZONING ORDINANCE (1977)
Revised in 1977, the ordinance addresses densities, height, uses,
etc.
SUBDIVISION ORDINANCE (19711
Established standards for subdividing land. Requires developers
to install streets and utilities.
SOIL EROSION AND SEDIMENTATION CONTROL ORDINANCE (1975)
Requires an erosion control plan for land disturbing activities.
DUNE PROTECTION ORDINANCE (1971)
Requires 150 foot set back from mean high water on Atlantic Ocean.
160

CP & I 3
N.C. BUILDING CODE
Requires buildings meet State building standards.
FLOOD HAZARD ORDINANCE (1975)
Established flood hazard boundaries and set development
standards.
In addition, the County requires all development relying on
septic tanks under 3000 gallons to obtain a septic tank permit from
the Dare County Health Department.
In addition, the Coastal Resources Commission and Department of
Natural Resources and Community Development administer and enforce
the CAMA permit for development within areas of environmental con-
cern. The Nags Head Building Inspector, who administers most
ordinances for Nags Head, is the local CAMA permit officer.
The following reports are being completed:
MANAGEMENT SYSTEM FOR NAGS HEAD WOODS (1980)
A study of the Woods, reviewing existing information, mapping
constraints and analyzing the existing management system. The
report proposes a new system similar to Sanibel or Adirondack Park
Systems. Prepared by Coastal Consultants, Ltd.
SURFACE WATER DRAINAGE PLAN (1980)
Addressed surface drainage problems in Nags Head and analyzes
technical improvements to eliminate the problem. McDowell -Jones
and Associates; Coastal Consultants, Ltd.
161

POL 1
CHAPTER II
POLICIES FROM 1976 LAND USE PLAN
1. .Preserve and enhance qualities unique to Nags Head, such
as slow pace of life, freedom from pollution and urban pressures,
the natural environment of the Outer Banks and inaccessibility of the
Town.
2. Provide for the development and expansion of the tourist
industry.
A. Reinforce family beach atmosphere.
B. Extend tourist season
C. Provide public access for land locked property owners
D. Develop commercial services park
E. Encourage building of vacation homes
3. Coordinate growth policies with adjacent municipalities and
Dare County
A. Develop regional water and sewer system
B. Implement Thoroughfare Plan
4. Conserve air, water and land resources and preserve natural
environment
A. Prevent development from altering wetlands, frontal
dunes, beaches, estuarine and surface waters, wildlife
habitats, natural areas
B. Prevent development from being endangered by flooding,
erosion, inlet migration
1 62

POL 2
C. Prevent development from reducing value of parks
and aquifers.
5. Provide for orderly growth of Nags Head as year round
community.
A. Require development to locate on stable, well drained
soils with a low water table
B. Require structure to locate on sites so as to avoid
destroying existing vegetation and land form wherever
possible
C. Require development to minimize interference with
established patterns of surrounding land use
D. Require development to be located and timed to make
most efficient and economical use of public services
E. Require permanent neighborhoods to keep low density
and large open space
F. Require seasonal residents to locate with convenient
access to transportation routes and recreational
activities
G. Require development to meet County septic tank
regulation
H. Require development in excess of 3 units per acre
to be served by public or community sewer
6. Commercial development should be concentrated in groups of
complementary uses. They should have sites large enough to provide
ample parking, controlled access and buffers to residential use.
7. Water related commercial activity should be located in
naturally protected areas as near deep water as possible and where
least alteration of marsh or estuarine bottom is required.
8. Industry not dependent on waterfront should locate elsewhere.
163

LUC 1
CHAPTER III
LAND USE COMPATIBILITY
Significant Land Use Compatibility Problems
The Town of Nags Head does not have any significant land use
compatibility problems. The attitude towards segregating commercial and
residential has lost much of its significance. The Town zoning ordinance
requries commercial developers to erect a buffer from already existing
residential units. Thus, noise, lights and other offensive characteristics
have been shielded from residential uses Industrial operations near Town
Hall are not expected to continue for a significant period of time. This
use could pose conflict with residential use; however, presently only a few
structures are close enought to be annoyed.
Major Problems From Unplanned Development
Overzoning. Residents and property owners in the Town did not feel
that too much lapd was zoned for commercial use (see Questionnaire). The
Town has significantly reduced the amount of land in the commercial zone;
also, some of the areas zoned commercial has actually developed as single
family residential. The Town's zoning ordinance encourages centralizing
commerical development. One of the more recent commercial developments was a shopping plaza. We should note that the bypass in Nags Head is only
lightly developed with commercial development and even this development is
in pockets (see existing land use map). Restaurants, heavy auto users at
select times of day, are predominantly located with other commercial
164

LUC 2
development which acts as buffer for this use and the residential community.
Town policies on frontage, setbacks, etc. for commercial property should
correct ill effects from commercial development on the bypass.
Other Defects.
(1) Lack of local collectors (streets) to move traffic short distances
without resorting to the bypass or beach road. A need to connect roads west
of the bypass (see policy on connecting the Soundside Road to Cove
subdivision).
(2) Need to allow reasonable ingress and egress for residents and
property owners of Nags Head Woods. Also, need to provide means for
taking emergency vehicles through this area (see policy on Woods road).
(3) Surface drainage problems (see surface drainage study prepared
this year; also, policies).
Many of the Town's other problems may have some relationship to poor
planning by some layer of goverment.
The Areas Likely to Experience Change
Areas most likely to experience change are: (1) South Nags Head will
continue to fill in the several undeveloped tracts; (2) already subdivided
areas will fill in, especially in new subdivisions west of the bypass;
(3) a considerable amount of development will probably occur on the mile
long unsubdivided property surrounding Town Hall and reaching from ocean
to sound.
The Town should not expect a significant change in densities or use
of motels over the recent past. Redevelopment seems unlikely within the
planning period because of the considerable excess capactity for growth.
(For more details see Carrying Capacity and Population chapters where
land used and land available is determined and where the population and
165

LUC 3
housing mix are projected and analyzed,)
166

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 classified 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 Nags Head, the developed class has
been subdivided into am 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. The area in the Town
classified as established is located between the ocean and the U.S.
158 By -Pass. However, there are several established subdivisions west
of the By -Pass (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 utilities and services. The transition lands
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 Nags Head, all°lands not classified as established,
167

LCLASS-2
conservation or conservation use are transition.
Conservation Use: Conservation Use areas are those areas having sig-
nificant environmental resources deserving of protection, but where the
protection required, considering such factors and land patterns, develop-
ment costs, land values, etc., is such that limited development is
appropriate. In these areas the Town favors cluster development and low
density. Generally this area coincides with the boundaries of the
Nags Head Woods.
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 area, estuarine shoreline, coastal marshes, and
all surface waters.
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 segregates commercial and high density uses
along portions of the oceanfront and By -Pass. Several of the
high density developments operate with package waste treatment systems.

LCLASS-3
Residential development has been at moderate densities and has con=
sidered soil limitations, so that considering the small number of
canal lots and the existence of public water, it does not pose a
problem..
Transition: 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.
Sewer is not absolutely necessary to the development of this area.
Conservation Use: This area,is intended for protection through low
density development. Such a development scheme should implement
the,policies and proposed management practices for the Nags Head Woods.
Conservation: The purpose of the conservation class is to provide
for effective lopg-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 jetties. 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.
169

LAND
CLASSIFICATION
MAP
1980
Legend
® Transition
Conservation
TOWN OF
NAGS HEAD, N. C.
in. gyp. w pw.00
I
I
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SECTION FOUR: APPENDIX
Chapter I. Federal and State Licenses and Permits
Chapter II. Nags Head Questionnaire
Chapter III. Public Participation Element
Chapter IV. Executive Policy Summary

SUP 1
STATE LICENSES AND PERMITS
Agency Licenses and Permits
Department of Natural Resources
and Community Development
Division of Environmental
Management
Department of Natural Resources
and Community Development
Office of Coastal Management
Department of Natural Resources
and Community Development
Division of Earth Resources
--Permits to discharge to surface
waters or operate waste water
treatment plants or oil dis-
charge permits; NPDES Permits,
(G.S. 143-215)
--Permits for septic tanks with
a capacity over 3000 gallons/
day (G.S. 143-215.3).
--Permits for withdrawal of sur-
face or ground waters in capac-
ity use areas (G.S. 143-215.15).
--Permits for air pollution abate-
ment facilities and sources
(G.S. 143-215.108).
--Permits for construction of com-
plex sources; e.g. parking lots,
subdivisions, stadiums, etc.
(G.S. 143-215.109).
--Permits for construction of a
well over 100,000 gallons/day
(G.S. 87-88).
--Permits to dredge and/or fill in
estuarine waters, tidelands, etc.
(G.S. 113-229).
--Permits to undertake development
in Areas of Environmental Concern
(G.S. 113A-118).
NOTE: Minor development permits
are issued by the local
government.
--Permits to alter or construct a
dam (G.S. 143-215.66).
--Permits to mine (G.S. 74-51).
--Permits to drill an exploratory
oil or gas well (G.S. 113-381).
170

SUP 2
Agency Licenses and Permits
Department of Natural Resources
and Community Development
Secretary of NCRD
--Permits to conduct geographical
exploration (G.S. 113-391).
--Sedimentation erosion control
plans for any land disturbing
activity of over one contigu-
ous acre (G.S. 113A-54).
--Permits to construct an oil
refinery.
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
constitutes a community water
.source (G.S. 130-160.1).
171

SUP 3
t
FEDERAL LICENSES AND PERP9ITS
Agency Licenses and Permits
Army Corps of Engineers
(Department of Defense)
--Permits required under Sections
9 and 10 of the Rivers and Har-
bors of 1899; permits to con-
struct in navigable waters.
--Permits required under Section
103 of the Marine Protection,
Research and Sanctuaries Act
of 1972.
--Permits required under Section
404 of the Federal Water Pollu-
tion Control Act of 1972; per-
mits 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.
--Deep water port permits.
Geological Survey --Permits required for off -shore
Bureau of Land Management drilling.
(Department of Interior)
--Approvals of OCS pipeline corri-
for rights -of -way.
Nuclear Regulatory Commission --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.
Federal Energy Regulatory
Commission
-=Permits for construction, opera-
tion and maintenance of interstate
pipelines facilities required
under the Natural Gas Act of 1938.
172

SUP 4
Agency Licenses and Permits
--Orders of interconnection of
electric transmission facilities
under Sectio rr!.202(b) of the
Federal Power Act.
--Permission required for abandon-
ment of natural gas pipeline and
associated facilities under Sec-
tion 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.
173

PPP 1
0
C. PUBLIC PARTICIPATION PROGRAM
M 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. Objectives:
174

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
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
of sharing in the planning process, from the earliest stages to
I.
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 availal?b,6 infor-
mation that can lead to better land use decisions.
175

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)
C. Day users (close and remote)
D. Interested non-residents (absentee landowners and
others)
E. Permanent residents who do not participate in the
governmental process.
176

PPP 4
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.
-6. 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.
177

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 oU 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
178

the municipality loot 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.
The citizens will then be divided into subgroups of five to ten
people each. The subgroup members will be instructed to work
individually and silently on compiling a key word list of problems facing
the community. Participants who finish early will be encouraged to
review their list for other -possibilities. 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
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
179

PPP.
IV
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
shoul.d 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.
.E

J
LAND USE PLAN UPDATE FOR
THE TOWN OF NAGS HEAD
1980 - 1990
EXECUTIVE SUMMARY

The Nags Head Land Use Plan addresses land use related problems '
currently facing the Town and those anticipated during the next ten
years. Although it is not technically a comprehenisve land use plan,
the plan is comprehensive in scope. The plan was undertaken to
examine in as technical a manner as possible a number of subject areas
of concern to the Town, particularly population, environmental systems
and constraints, housing alternatives, transportation problems and
carrying capacity. The technical information served as a basis for
the formulation of the policy section, which is in itself the best
summary of the land use plan.
The primary purpose and use of the Nags Head Land Use Plan is
to govern local decisions concerning land use related issues. The
land use plan has several secondary pruposes including to guide
federal and state officials in making decisions that effect the
Town and which involve the use of the land.
This summary is a fairly accurate representation of what is
in the land use plan. The user of the executive summary is cautioned
against quoting the policies without consulting the policy section.
Certainly a full understanding of the policy section is not possible
without reading in detail the technical sections used to formulate
policy. Furthermore, it should be noted that the land use plan is
flexible. Additional sections will be added as the Town addresses
new issues. These studies will shape policies; and the policy
section will be rewritten. However, in all likelihood this executive
summary will remain the same.
182

13
1. It is the Town's policy that the anticipated growth to the year
1990 is welcomed and that the Town will plan and provide adequate
services necessary to meet the demands of that population.
2. It is the Town policy that major improvements should be made to ,
the water distribution system to allow it to deliver the water
available from the Regional System and to accommodate expected
growth to 1990.
3. The Town supports efforts to improve quality in the Sound. It is
opposed to further deterioration in water quality of the Sound.
The Town supports efforts initiated by the former Dare Beaches
Water & Sewer Authority and its contractor, Henry Von Desen &
Associates, Consulting Engineers and Planners to study the feasi-
bility of several package treatment systems to be located on
future subdivisions which have a high percentage of unsuitable
soils.
4. The Town will serve areas under the following scheme of priorities:
areas with poor soils close to the Sound will be served first,
then areas with poor soils, then heavily populated areas, then other
areas. Nags Head places the lowest priority to extending public
sewer mains to the environmentally sensitive Nags Head Woods, to
wetland areas and other areas which are designed for light population
levels provided the soils in these areas are adequate to take care ,
of approved development levels.
183

5. The Town believes that a decision on whether to support a single
regional wastetreatment system for the beaches or to support the
building of several small package facilities within problem areas
of the Town should be made within the next 48 months.
6. The Town adopts a policy of requiring future subdivisions to design
1
areas nearest the Sound or other estuarine water with generous
setbacks for septic systems and with large lots and lot width
to accomplish the lowest practical density (Environmental Con-
siderations, p. 12). The Town supports a policy of future sub-
divisions utilizing a minimum one acre lot size for lots within
500 feet of the Sound.
7. The Town supports the building of another two or three lane bridge
system from the Barrier Islands to the mainland.
8. The Town believes that unless additional capacity to evacuate
60,000 additional people is provided by 1990 that all municipalities
on the Outer Banks, together with the U.S. Park Service, should
take measures to limit growth.
9. Nags Head recommends that Dare County revise its current Hurricane
Evacuation Plan (published August 14, 1980) to address the issue
of restricting the movement of accident-prone vehicles on the
bridges leading from the Barrier Islands.
184

t
10. The Town supports the Department of Transportation Thoroughfare
Plan's proposal to multi -lane the Bypass roadway (it specifically
incorporates the plan into the Land Use Plan). In.the event that
the entire multi-laning project could not be completed at one
time, the Town supports actions that would multi -lane parts of
the Bypass, even if the first sections to be paved were in Kill
Devil Hills.
11. The Town supports other construction alternatives which would
preserve the objectives of the Thoroughfare Plan.
12. The Town favors the continued use�­of the beach road as a local
collector.
13. The Town favors a road in the Nags Head Woods that will utilize,
to a large extent, the old roadbed and can be built with a below
normal right-of-way and a minimum amount of pavement.
14. It is the Town policy to protect the mature vegetation along and
near the ridge in the Nags Head Woods.
15. The Town favors Soundside Road being connected with the Old Nags
Head Cove subdivision.
16. The Town supports interim of permanent measures to alleviate
traffic congestion on the Bypass, provided such action does not
185
41
L
.L

result in increasing the level of speed or amount of traffic on
d
the beach road, or result in another Bypass along the Sound.
17. The Town supports the construction of a two lane bridge from the
northern limits of Nags Head or the southern limits of.Kill Devil
Hills to Roanoke Island.
18. The Town shall take and continue to take numerous nonconstruction
alternatives to relieve congestion on the Bypass. The Town shall
continue to seek to cut back on the amount of commercially zoned
area on the Bypass.
19. The Town shall study the possibility of restricting permitted
commercial development along the Bypass to only those types which
do not generate substantial amounts of traffic.
20. The Town shall, through zoning district amendments (to boundaries
of districts), encourage commercial development to locate in
commercial parks rather than in strips along the Bypass.
21. The Town shall study the feasibility of requiring deep setbacks
for buildings from the Bypass right-of-way; it will also consider
standards for the design of parking lots so as to decrease the
4 time required to exit from the Bypass.
' 22. The Town shall encourage commercial development to exit into
streets other than the Bypass where such options exist.
MR

23. The Town will discourage the number of entrances and exits to and
from the Bypass.
24. The Town shall encourage businesses with complementary uses to
share common parking facilities.
25. The Town shall limit the number of new streets entering the
Bypass.
26. The Town will foster a policy of providing public transportation
to.the beaches and commercial establishments for its residents
and. visitors.
27. Nags Head shall place a higher priority during the next ten years
on paving local roads. In setting priorities, the Town will
consider whether the road is likely to encourage development
on lots with poor soils for septic systems.
28. The Town supports the continuation of federal flood insurance
policies.
29. It is Town policy to be consistent with policies and standards
of the Coastal Resources Commission for areas of environmental
concern.
it
30. The Town desires to provide additional protection to the frontal
dune system and to property owners relying on that system for
187

9
protection. The Town shall implement this policy by encouraging
all property owners of lots containing frontal or primary dunes
to fill in beaches, rebuild low spots, revegetate barren areas,
build walkways over the dunes and avoid other actions that could
weaken the protective nature of the dune system.
31. The Town fosters a policy of encouraging future motel and commercial
development constructed of steel and concrete to locate west of
the beach road.
32. It is Town policy that no person or legal entity be permitted to
build a seawall, jett3,. groin or 'other artificial device designed
to stabilize the ocean shoreline.
33. The Town shall increase the amounti:of open space along the ocean-
front by increasing the amount of open space required in exchange
for allowing higher densities on parts of the property and greater
building heights.
34. It is Town policy to provide adequate recreational opportunities,
particularly beach access and parking for useof the ocean beaches
and sounds for all residents of the Town.
4 35. In the even that the plans for providing public transportation for
persons living west of the Bypass to the beach do not prove feasible
or otherwise acceptable, the Town will provide beach parking areas
for the use of persons who cannot reach the beach by walking or

mass transit.
36. The Town also believes that open space should be provided for environ-
mental protection in addition to open space for recreation.
37. The Town accepts as a public responsibility the provision of access
for recreation to the Sound.
38. It is Town policy to encourage a housing mix that is heavily single
family. In environmentally sensitive areas the Town encourages
higher density development of less sensitive lands in order that
the more sensitive lands be left in open space.
39. The Town encourages the preservation of historic areas. The Town
will consider the adoption of a zoning ordinance amendment,
pursuant to authority granted by N.C.G.S. 160A-395, to designate
the area as an historic district.
40. The Town calls on the State Department of Transportation to engineer,
design and build storm surge culverts to allow movement of water
under the Bypass.
41. The Town is opposed to the building of new finger canal systems.
It
42. The Town feels that appropriate uses within the Town's AEC's shall
be those set.outin the AEC's by the Coastal Resources Commission,
except where more stringent restrictions have been placed on

•
S.
development by the Town through its zoning regulations or subdivision
controls. The Town supports the efforts of local residents and property
owners who have attempted to stabilize the dune system by doing
sand pushing and vegetation.
43. It is the policy of the Town of Nags Head to protect from development
as much as is possible the unique and natural features in the Nags
Head Woods. It is also Town policy to respect the rights of those
persons who own land in the Woods to have a reasonable and practical
use of their property, including a reasonable rate of return.
44. The Town is particularly interested in protecting those features
which if not protected would result in the loss of the Woods as
a unique natural area.
45. The Town proposes to adopt district zones that conform to the natural
boundaries of the elements of the total system that makes up the
Woods and to prescribe an appropriate development density for each
zone.
46. The Town is opposed to energy facilities, including pipelines,
docking facilities and plants, locating anywhere within the
Town's jurisdiction.
47. Nags Head is opposed to commercial or non-commercial cutting of
r the Nags Head Woods timber and to mining activities there.
190

48. The Town feels that commercial fisheries uses within the Town are
incompatible with other uses in the Town.
49. The Town will continue to provide a strong citizen participation
program for the future.
50. The Town has a policy of cooperating with other municipalities
on the Dare Outer Banks, with the County, State and Federal
government in pursuing all the aforementioned policies.
•
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191