CAMA Land Use Plan Update-1992

CAMA LAND USE PLAN UPDATE
1992
1 The Town of Plymouth, North Carolina
Final
1 June, 1992
1
1
' Prepared by
The Town of Plymouth Planning Board
and
The Cox Company
Urban Planners • Landscape Architects
Development Consultants • Civil Engineers
Charlottesville, Virginia
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 Office of Ocean and Coastal Resource Management, National Oceanic and
Atmospheric Administration.

1992 CAMA LAND USE PLAN UPDA3E
THE TOWN OF PLYMOUTH, NORTH CAROLINA
Table of Contents
'
Chapter
Page
I.
Introduction
Introduction to the Planning Process
I-1
The Coastal Area Management Act
I-2
Establishment of Demographic and Land Use Data Base
I-3
Establishment of Land Use and Environmental Goals
I-3
'
Public Participation and the Planning Process
I-4
IL
Data Collection and Analysis
Introduction
II-1
Establishment of the Information Base
II-1
Present Conditions: Population and Economy
II-1
Tables and Graphs
II-6
III.
Existing Land Use
'
Summary of Existing Land Use
III-1
Introduction
III-1
Significant Land and Water Compatibility Problems
III-3
'
Major Problems From Unplanned Development
III-3
Areas Experiencing Major Land Use Changes
III-3
Table and Graph
III-5
Existing Land Use Map
IV.
Review of Current Plans
Local Plans
IV-1
State Agency Plans -
IV-2
'
Federal Regulations
IV-2
V.
Constraints: Land Suitability
Physical Limitations for Development
V 1
1
Fragile Areas
V 3
Areas With Resource Potential
V-5
Land Suitability Constraints Map
VE.
Constraints: Carrying Capacity Analysis
'
VIE.
Estimated Demand
VIII.
Goals, Objectives and Policies
Introduction
VIII-1
Recommended Planning Policies for Plymouth
VIII-4
Resource Protection
VIII-4
Resource Production and Management
VIII-11
Economic and Community Development
VIII-15
Public Participation
VIII-20
Storm Hazard Mitigation
VIII-23
'
IX.
Land Classification System
Developed Areas
IX-2 -
Urban Transition
IX-3
Limited Transition
IX-5
'
Community Areas
IX-6
Rural Areas
IX-7
Rural With Services
IX-7
Conservation
IX-8
'
Intergovernmental Coordination and Implementation ..
IX-9
Land Classification Map
X.
Relationships of Policies and Land Classification
Al.
Appendix L- Public Participation Plan
All.
Appendix II: Policy Critique Questionnaire .

Chapter L
r
Introduction
The Town of.Plymouth Land Use Plan 1992
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1992 CAMA Land Use Plan Update -Draft Plymouth - North. Carolina
CHAPTER I:
General Introduction
A. Introduction to the Planning Process .
The 1992 Land Use Plan is designed to be used as a guide for the physical development.of Plymouth
focusing on the upcoming ten-year time frame. This Plan, along with responsible leadership in
its implementation, provides a means by which the Town's future growth can be successfully
channeled and accommodated. The overall purpose of the Land Use Plan is to encourage the
development of a safe, healthy, and economically sound living environment for the citizens of the
Town. The Land Use Plan focuses on those factors which contribute to or hinder proper growth and
development, and identifies those areas in which the Town government can have a positive
impact.
The Land Use Plan is not the gospel, but, rather, it is a document which presents the Town
government's best attempt at defining its "vision" for the future and suggests ways to attain that .
"vision." The attitudes and desires of Town residents undergird the goals, policies and
implementation recommendations which will be adopted into this document. The participation of
' Plymouth's citizens has been an essential contribution to setting the course for future land
development and environmental conservation activities.
By preparing a Land Use Plan which is integrally tied to its precedent goals, objectives and
planning policies and yet incorporates future goals andobjectives, the old adage that "it is..not
enough to be what we have been" is underscored. Towards this end, one of the initial steps in this
planning process was to define these future goals, to translate those goals into objectives by which
they would be realized, and to establish policies and strategies by which the goals can be
implemented for the betterment of the community of interest. In arriving at the set of goals and
objectives which have been recommended for the Plymouth Land Use Plan, three major and
distinct efforts were undertaken in order to ensure that the planning process proceeded along this
rational line and with the assurance that the adoption of future land use recommendations would
be constructed on a firm social, economic, moral and legal underpinning.
The initial effort in this regard was to undertake a thorough review and analysis of all previous
Town plans and growth management documents. By carefully evaluating land use goals and
objectives from earlier plans, the Town Council and Planning.Board were able to assess the
"suitability" and "workability" of past planning strategies. In doing so, past planning goals
rwere then updated, refined and merged into the context of the current Plan's study requirements.
Secondly, the Plymouth planning process incorporated a range of citizens' input and participation
opportunities which enabled all interested parties to express their visions and expectations for the
future of the Town. An extensive citizen's attitude survey was conducted as well as multiple work
sessions with both public officials and private citizens. The consolidated findings were used by
' the Town officials in making the final recommendations for the Plan, This. effort complied with
the requirements of the Coastal Area Management Act and other State guidelines affecting area-

1992 CAMA Land Use Plan Update -Draft Plymouth - North Carolina
1
wide land use goals, objectives and implementation strategies for environmentally sensitive
areas of the lbwn's wetlands region.
Thirdly, the Planning Board, Town Staff and its Consultants kept a goals -oriented "vigil' during
the development of the multi -faceted land use planning and growth management
recommendations for the Town. In doing so, they were able to maintain a high level of leadership
and objective focus as the many "nuts and bolts" aspects of this Land Use Plan were being
developed and as numerous land use alternatives were evaluated. The result of this thorough .
goals -directed planning effort yielded a more consistent land use planning program and a more
efficient framework for the future management of growth in Plymouth.
tB. The Coastal Area Management Act
The Coastal Area Management Act of 1974--commonly know as CAMA--established a cooperative
t program of coastal area management and planning between local governments and the State.
Plymouth has been an active and productive participant in the CAMA process since its inception.
' Land use planning lies at the center of Plymouth's involvement with CAMA, inasmuch as it has
provided Town leaders an opportunity and responsibility to establish and enforce policies to guide
land development on a 5-year cyclical basis.
The State's CAMA legislation is very clear on its position regarding the importance of local
planning:
"Land development generally takes place as the result of decisions by
private individuals and government. If left entirely to chance, the resulting
' pattern of development in a locality may well not be in the best overall community
interest. In order to promote this community interest for both present and future
generations, a land use plan is to be developed, adopted and kept current by the
local governments in the coastal area.
The land use plan is a framework that will guide local leaders as they
' make decisions affecting development. Private individuals and other levels of
government will also use the plan to guide their land use decisions. Use of the
plan by these groups will lead to the more efficient and economical provision of
public services, the protection of natural resources, sound economic development,
and the protection of public health and safety. "
Plymouth's leadership, through the CAMA land use planning process, has addressed many issues
and has adopted policies that serve to guide the development of the Town. This process recognizes
that many decisions affecting land development are made by other levels of government
(regional, state, federal), and that local policies must take account of and harmonize with
established state and federal laws. However, most land use decisions are primarily those of local
relevance, concern and control. By comprehensively addressing these issues via the Land Use
' Plan, state and federal agencies will support the Town's policies that deal with these issues. These
agencies will also use. the Town land use plans and policies in making project consistency,
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
funding and permit decisions. It is important to note that in the absence of a regularly updated and
' adopted Plan, the Town relinquishes a number of local decision making responsibilities to State
and Federal agencies which may, or may not, have the best interest of Plymouth's citizens at heart.
Pursuant to the established guidelines of the Coastal Area Management Act (as amended), the
' Coastal Resources Commission rules for planning require the Plymouth Land Use Plan to contain
the following four basic minimum elements:
• a summary of data collection and analysis
• an existing land use map
a land use and environmental policy discussion
• a land classification map
C. Establishment of a Demographic and Land Use Data Base
The data collection and analysis items required by CAMA are designed to establish the
' information base necessary to make policy choices about future land use and development in the
Town. These items have been formulated so as not to place unnecessary burden on the local
planning resources. The data requirements can generally be fulfilled by utilizing existing local
plans and studies including the previous Land Use Plan Updates, as well as information provided
by the U. S. Census, regional planning bodies and State agencies.
' D. - Establishment of Land Use and Environmental Goals and Policies
The Town's Land Use Plan is required by CAMA to contain statements of local policy on those
land use issues which will affect the community during the upcoming ten-year planning period.
The major issues should include, but are not limited to:
• Resource Protection
• Resource Production and Management
• Economic and Community Development
• Public Participation
• Storm Hazard Mitigation
' Rather than incorporate additional topical areas for major issues, the Planning Board has
determined that the above categories are sufficient for this Plan Update. Other traditional,
planning topics such as transportation, recreation, education, employment and growth
management controls have been integrated into the examination and discussions of the five .
major CAMA policy categories.
rIt is incumbent upon the drafters of the Town Land Use Plan to ensure to -the greatest extent possible .
that there is consistency among individual policies developed in each policy category. Particular
attention should be given to individual policies in the resource protection, resource production and
' management, and economic and community development categories. These three categories will
often contain issues of overlapping as well as conflicting ideologies and philosophies.. The result
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
is that potentially competing and contradictory goals, policies and strategies -must be forcefully
addressed and sensitively resolved during the planning process.
E. Public Participation in the Planning Process
Public participation is the cornerstone of the planning process..In complying with CAMA
planning guidelines, the Land Use Plan must document the means by which public involvement
' in the land use plan update was accomplished. As a minimum, the Coastal Resource Commission
rules for planning mandate that the'lbwn's Plan must address the following public participation
issues:
• a description of means to be used for public education on planning issues;
' • a description of means to be used for continuing public participation in
planning; and
' • a description of means to be used for obtaining citizen input in developing
land use plan policy statements.
In fulfilling these Coastal Resource Commission rules for public involvement, the Town
leadership has prepared policies based upon data analysis, . land use inventories as well as
detailed citizen input related to the best possible alternative for each land use issue. The Land Use
Plan includes a description of the methods by which the 'Ibwn intends to implement its policy
choices. In summary, all policies adopted by the Town as a part of the Land Use Plan. are designed
to maintain consistency with the overall policy adopted by the Coastal Resources Commission.
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The Cox Company
Introduction • I-4

Chapter II.
'
Data Collection and .Analysis
r
The Town of Plymouth Land Use Plan 1992

1992CAMA Land Use Plan Update Draft
Plymouth • North Carolina
' CHAPTER II:
Data Collection and Analysis
iIntroduction
The 1992 Land Use Plan update for the Town of Plymouth complies with the "Land Use Planning
' Guidelines" of the North Carolina Administrative Code (NCAC) Subchapter 7B as amended on
February 16, 1990. This section of the Code outlines the requirements of the Coastal Area
Management Act (CAMA) established in 1974. It also "sets forth general standards for use by the
Coastal Resources Commission in reviewing and considering local land use plans."
The first CAMA Land Use Plan for the Town of Plymouth was prepared in 1976. The initial update. .
was completed in 1981 and the second update was completed in 1986. The purpose of the update is
primarily for the examination . of existing policies and the evaluation of the relevancy and
adequacy of the techniques for implementation based on demographic and physiographic changes
over the past five years.
IA. Establishment of the Information Base
The following information base is provided to establish a statistical foundation for use during the
formation of goals, policies and implementation techniques. Information on population, housing,
economics and land use was obtained from a variety of reliable public and private sources. Most
of the data related to demographics came from the most recent U.S. 1990 Census of Population and
,Housing. Additional data was acquired from State and Local sources such as the North Carolina
Statistical Abstracts (see Appendix for complete listing). Where information specific to the
Township of Plymouth was not available, Washington County data has been included.
Windshield surveys and an analysis of building permit data were conducted to update existing
land use patterns and classifications. Interviews and work sessions were conducted with various
Town staff as well as elected and appointed officials. Information for the period preceding the 1986
Land Use Plan was obtained from that document and is presented, in part, herein for comparison
with more recent statistics.
B. Present Conditions: Population and Economy
1. Population
The Town of Plymouth is located in Northeast North Carolina on the south bank of the. Roanoke
River. The Town's 1990 population of .4,328 is slightly smaller than the neighboring towns of
Edenton and Williamston.
The main purpose of providing population projections in conjunction with -the Land Use Plan is to
establish a demographic benchmark. against which land use decisions regarding type, mix and
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Data Collection and Analysis • H.1

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' 1992CAMALand Use Plan Update Draft
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Plmouth • North Carolina
character of real estate as well as potential impacts on Areas of Environmental Concern may be
tested. Population forecasting is, at best, an "educated guess." For example, projected 1985
population data included in the 1986 Plan is shown to be questionable when compared to the actual
population trends supported by 1990 Census data.
The population base in Plymouth has remained relatively stable since 1970. The State's estimated
figures for 1985 show a population increase of 233 persons between 1980 and 1985. The actual census
figures, however, depict a decrease between 1970 and 1980 of 203 persons (4.2%) and between 1980
and 1990 of 243 persons (5.3%). The maximum fluctuation was the decline between 1980 and 1990 of
5.3% percent. The County of Washington population figures indicate a similar county -wide
decline between the years of 1980 and 1990 of 5.4 percent below 1980 levels. Projections to the year
2000 indicate a continued reduction of 5.3 percent. This declining population trend.holds true in
the neighboring towns of Edenton and Williamston. See Table II-1 for population trends for the
Town and the region.
' According to the 1990 Census, Plymouth's female population currently outnumbers its males by 9.7
percent. Projections to the year 2000 indicate a continuation of this pattern. This trend holds true
for all of North Carolina as well. This female predominance is partially attributable to the
national demographic trend of females outliving males. Within the older age cohorts of the
' County of Washington, the results of longer female lifespans are witnessed: Ages 65-69, 365
females to 303 males; ages 70-74, 285 females to 211 males and ages 75+, 506 to 268. See Table II-2.
for the figures which show these trends.
While the current data and projections indicate no major change in overall age group
percentages, a minor population aging pattern is predicted to emerge from 1990 to 2000. Currently,
the highest concentrations of Plymouth's residents occur in the age cohort groups of 5-19 and 30-44.
It is expected that as the "baby boom" generation ages, increasing stress will be placed on housing
' facilities targeted for the older (55+) age bracket. The high percentage of the population within the
school age bracket emphasizes the need for maintenance and/or.. improvements to the school
system.
[A
The racial composition of the Town of Plymouth has been gradually shifting since 1970. The
current white/non-white population ratio is 1:1.3. The number of blacks, who comprise the
majority of the non -whites in the Zbwn, has increased by approximately 2 percent over the ten year
census period. Conversely, the number of whites have been decreasing by nearly the same
percentage. See Table II-3 for population projections (taken from the 1990 census).
a. Population Summary
The analysis of existing and projected population figures in the Town of Plymouth suggests the
following trends:
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1992 CAMA Land Use Plan Update Draft Plymouth -North Carolina
1. A twenty year decline in Town population totals, which began in 1970, continues to this
' date. The non -white, primarily black population continues to increase by a small percentage.
Females are projected to continue to outnumber males.
' 2. The older segment of the population is expected to increase as those current. residents
between the ages of 30-44 continue to age. This general population aging process suggests a greater
need for elderly care facilities in the coming years.
3. The school age 5-19) population may witness a small decline over the next ten years.
g ( P P Y
Therefore, while the maintenance of existing school facilities is critical, there appears to be no
immediate need for the expansion of said facilities.
4. The seasonal population fluctuation within the Town appears to remain negligible.
' Therefore, seasonal population should not account for any appreciable revenue increases.
2. Housing
According to the U.S. Census definition, a household includes all persons who occupy a single
housing unit. A housing unit is defined as a single room or group of rooms occupied as a separate
living quarter; single family detached homes, townhouse units, apartments, and condominiums
are all considered single housing units. Persons living in group quarters or institutions,
including hospitals, asylums and jails are not considered members of households.
The Town of Plymouth has 2.62 persons per household. This number is slightly higher than the
' 2.54 persons per household figure recorded for North Carolina. The vacancy rate is slightly lower
in the Town as compared to the State. See Table' II-4 for information outlining household
characteristics (taken from the 1990 Census).
The most densely populated area of Plymouth is centrally located and designated as the Plymouth
' Historic District. It includes 270 principal buildings, 195 of these are 50 years or older. Most of the
housing stock is in sufficient condition. There are several dwellings which are either currently
being renovated or are in need of renovation.
Historically, an average of eight single family dwellings, three . mobile homes and one
multifamily dwelling have been constructed per year. These numbers hold true for 1991.
3. Economic Analysis
' a. General
The State of North Carolina merges its statistics on employment and commerce for Plymouth with
those of Washington County. The economy of Washington County is dominated by the
manufacturing industry. Employing nearly 2,709 persons in 1989, manufacturing accounts for
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1992 CAMALand Use Plan Update Draft i Plymouth • North Carolina
59.7 percent of the total employed labor force. The second largest division, retail trade, employed
807 persons or 17.7 percent of the total employed labor force in the same year. The Weyerhaeuser .
Paper Company is the largest employer in the Plymouth area. Table II-5 outlines employment by
Place of Work.
Unemployment figures in the County of Washington show minor fluctuations over the last five.
years. The unemployment rate dropped to a five year low of 4.2 percent in 1989. It rose slightly to
4.7 percent in 1990 and this gradual increase is expected to have continued to the present. The
unemployment figures are higher by just over half a percentage point when compared to the
average State figure of 4.1 percent in 1990. See Table II-6 for employment figures.
b. Commerce
The number of business establishments operating in Washington County has fluctuated by no
more than 1.9 percent since the 1987 plan. The recent trend indicates an increase in the number of
establishments of a maximum 1.9 percent between the years 1985 and 1989.
Annual payrolls for all firms in the County have ranged from $108 million in 1987 to $123.2
million in 1989, the most current year for which data is available. The annual payroll increased
between the years 1987 and 1989 by 7.1 percent. There is no data available for 1985 or 1986.See Table
II-7 for these figures.
The gross retail sales for the County of Washington increased from 1970 to 1989. They fell slightly
from 1989 to 1990. See Table II-8 for a comparison in this category with surrounding counties in the
region, categorized by State fiscal year. The source in all cases was the U.S. Census Statistical
Abstracts and County Business Patterns.
C. TaxBase
The Town's total tax base, including real estate and personal property taxes, stood at slightly more
than $71.6 million in 1988. This figure includes all taxes collected in the Town. Property was re-
evaluated in 1989, at which time the Town's tax base increased 15.7 percent to just over $85 million.
The tax base has continued to rise to the present by an average of $2 million annually. The tax base
information listed in Table II-9 was supplied directly from'lbwn records.
d. Employment
The County's businesses have employed a varying number of persons from year-to-year as
warranted by annual economic conditions. These firms have employed from a low of 4,205
persons in 1987 to a high of 4,535 persons in 1989, with the number of employees steadily increasing
(see Table II-7 under "Commerce").
' The labor force figures below represent the employment status of the residents of Washington
County. Employment of the County's labor force increased by 314 persons between 1986 and 1989. It
Data Collection andAnalysis , II- 4

1992CAMALand Use Plan Update Draft Plymouth -North Carolina
1
declined by 91 persons between 1989 and 1990. The employment statistics table was obtained from.:,
' the U.S. Census.
During the last five years, the unemployment level peaked in 1986 with 344 of Washington
' County's labor force participants being without jobs, an overall rate of 6.3 percent.. The lowest
number for unemployment was in 1989, when there were 237 unemployed persons for a rate of 4.2 .
percent. By comparison, the unemployment rate for North Carolina was 5.3 percent in 1986 and 3.5
' percent in 1989. The 1990 figures show a moderate rise in unemployment which rests at 4.7 percent
for the Town and County and 4.1 percent for the State.( See Table II-6 for employment statistics.)
' e. Tourism
Recent tourism expenditures in Washington County have increased from $723,000 in 1980 to
$1,767,000 in 1988, an increase of almost 60 percent over the eight year period. However these
numbers represent a relatively small 0.03% of the State total in 1980 to 0.03% for 1988. It is apparent
that while the statewide travel expenditures increased by nearly 7.6 percent between 1980 and 1988,
' the County figures doubled over the same time span.
The County of Washington ranks fifth out of six counties in the planning region in travel and
' tourism expenditures. Slightly over 90 persons (1.6%) of the total local labor force are employed by
travel and tourism related industry. See Table II-10 for impacts of travel and tourism (provided by
the North Carolina Office of Travel and Tourism).
1
The Car Company
Data Collection and Analysis - H- 5

1992 CAMA Land Use Plan Update Drat Plymouth * NorlkCarnluia
Table II-1
' Regional Population
1970-1990
Jurisidiction
Population
Population Change
1985-1990
1970 1980 1985* 1990
Persons
Percent
Plymouth
4,774 4,571 41804 4,328
-476
-9.91
Williamston
6,570 6,159 6,266 5,503
-763
-12.18
Edenton
4,956 5,357 5,580 5,268
-312
-5.59
* Estimated
1
' The Cm Company
Data Collection and Analysis • II- 6

1992 CAMA Land Use Plan Update -Draft
t
Plymouth • North Carolina
Regional Population
7,000
6,000
C 5,000
—�
(a 4 000
� �...
r'><::<. :� -:>:
� Edenton
75
ii
�ti
"``•r•<' •'t�`''
``•
❑ Williamston
CL
2,000
1,000
�;y „,v
.}•:••. liar, )StiJ'•T
;j�$�}; jy(
Plymouth
0
1970
1980 1985
1990
City/Township
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Data Collection and Analysis * II- 7

1992 CAMA Land Use Plan Update Draf t
Table II-2
Town of Plymouth
Age Cohorts 19 9 0
Plymouth • North Carolina
Age Cohort
Male
Female
Total
0-4 years
197
162
359
5-19 years
535
532
1,067
20-24 years
107
151
258
25-44 years
519
672
1,191
45-64 year
351
433
784
65 years and older
2451
424
669
Total 1,954 2,374 4,328
Percentagj 45.15 94.85 100.00
North Carolina
Age Cohorts
Age Cohort
Male
Female
Total
0-4 years
233,576
225,379
458,955
5-19 years
703,101
671,190
1,374,291
20-24 years
288,510
265,446
553,956
25-44 year
1.064,393
1,087,093
2,151,486
45-64 year
611,002
674,606
1,285,608
65 ears and older
313,708
490,633
804,341
Total 3.214,290 3,41.4,347 6,626,637
Percentagi 48.49 51.51 100.00
t
Data Collection and Analysis • II- 8

1992CAMALand Use Plan Update-DraftPlymouth • North Carolina
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' Table 11-3
Regional Population - County
1970-2000
Jurisdiction
Population Change
1980-1990
1970 1980 1990 2000•
Persons
Percent
Beaufort
35,980
40.355
42,283
44,141
1,928
4.78
Bertle
20.528
21.024
20.388
-636
-3.03
Hertford
24,439
23,368
22,523
22,250
-845
-3.62
Martin
24,730
25,948
25.078
-870
-3.35
Pitt
73,900
90.146
107.924
17,778
19.72
Washington
14.038
14.801
13,997
13,244
•804
-5.43
Estimated
Washington County Population Projections
2000
1990 V
». y
1980
1970:
12,000 12,500 13,000 13,500 14,000 14,500 15,000
Populations
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1992CAMALand Use Plan Update -Draft
Plymouth North Carolina '.
'
Table 11-4
The Town of Plymouth
HousingCharacteristics:
1990
tTotal
Persons
4328
Persons in Households
4313
Persons Per Household
2.62
Total Households
1648
Total Single Family
904
Total Multi -Family
3
Mobile Home/Trailer
39
Total Vacant Units
145
Total Renter Occupied
693
'
Total Owner Occupied
Average Rent Asked
955
$191
Average Price Asked
$43,778
'.•�"10
TI:e Cox Company
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Data Collection and Ana ysis

' 1992CAMALand Use Plan Update Draft
Table 11-5
Washington County. Employment
by Place of Work
Plymouth • North Carolina
Employment Sector
Washington County
Employees % of Total
North Carolina
Employees % of Total
Ratio (%)
County/State
Agriculture, Forestry, Fishing
568
11.30
12,571
0,48
4.52
Mining
0
0.00
3.912
0.15
0.00
Construction
108
2.15
156,790
6.04
0.07
Manufacturing
2.709
53.88
868.534
33.45
0.31
Transportation & Public Utilities
215
4.28
145.984
5.62
0.15
Wholesale Trade
200
3.98
154,294
5:94
0.13
Retail Trade
807
16.05
527.271
20.31
0.15
Finance, Insurance & Real Estate
99
1.97
134,832
5.19
0.07
Services
283
5.63
573,484
22.09
0.05
Unclassified Establishments
1 39 1
0.78 1
18.640 1
0.72
f 0.21
' Totals 5.028 100.00 2.596,312 100.00
Washington County Employment by Place of Work 19 9 0
Unclassified Establislunents t�39
Services 283
Finance, Msrxarrte a Real 99
Estate
Rew Trade
3 WhotesaleTrade 200
o Transportation E Public 215
a Utilities
►�- Manufacturing
conskuclion 108
Mining 0 i
Agriculture, Forestry, Fishing r. _ "'" 568
0 500 1,000 1,500 2.000 2.500 3.000
Number of Persons
71aeCaxCompany
Data Collection andAnalysis 0 H-11

1992 CAMA Land Use Plan
Update Draft
Plymouth • North Carolina
Table 11-6
County/State Employment Statistics
1986-1990
Labor Force by
Employed by
Unemployed by
Unemployment
County/State Year
Place of Residence .
Place of Residence
Place of Residence
Rate (%) -
Washington 1986
5,443
5,099
344
6.3
1987
5.480
5,152
328
6.0
1988
5,548
5,270
278
5.0
1989
5,632
5,413
237
4.2
1990
5.583
5.322
261
4.7
North Carolina 1986
3.177.000
3,008.000
169,000
5.3
1987
3.276,000
3.130.000
146,000
4.5
1988
3.319,000
3,199,000
120.000
3.6
1989
3,391,000
3.272,000
119.000
3.5
1990
3.401,000
3.262,000
139.000
4.1
1
1
1
1
1990
1989
} 1988
1987
1986
r
The Car Company
Washington County Unemployment Rate
0.0 1.0 2.0 3.0 4.0 5.0 6.0 7.0
Unemployment Rate (%)
Data Collection andAnalysis • H.12

1992CAMALand Use Plan Update Draft
Table li-7
Washington County
Businesses, Employees and Payrolls
1985-1989
Plymouth • North Carolina
Year
Number of
Establishments
Annual
Payroll
Number of
Employees
1989
267
$123,269.000
4,535
1988
262
$116.392,000
4,447
1987
261
$108,059,000
4,205
1986
256
N/A
N/A
1985
255
N/A
N/A
Number of Establishments
1985
1986 .-256
a> 1987 kya.r:, §c<; Rr a , e:. s`>
M�
1988
1989 >.a s..
248 250 252 254 256 258 260 262 264 266 268
Number
The CarCompany
Data Collection and Analysis • IT 13

1992(,AMALand Use Plan Update Draft
Table it-8
Regional Comparison
' Gross Retail Sales by State Fiscal Year
(000s)
Plymouth • North Carolina
Year
Hertford
Bertie
Beaufort
Martin
Pitt
Washington
1970
$ 43,303
$24,490
$ 73,158
$ 40,687
$157,086
$22,874
1980
120,747
50,996
223,745
103,241
462.937
62,629
1986
171,570
62,961
304,970
130,840
785,624
69,075
1987
166,013
63,184
319,855
139,765
846,171
70,927
1988
182,622
67,734
348,088
146.880
910,275
79,477
1989
, 198.123
66,165
344,279
159,204
990,693
84,000
19901
204.101
1 62.792
1 333,998
157,937
1 960,024
75,848
Washington County: Gross Retail Sales
0> �75,848
x:.<€t:: >a: ra10� 84,001
ag x } F 79,477
69,075
62,629
22,874
10,000 20,000 30,000 40,000 50,000 60,000 70,000 80,000 90,000
Sales (000)
Data Collection andAnalysis • .U-14

i
1992 CAMA Land Use Plan Update Draft
r
t
100 85.1
0 80 73.4 71.7 73.4 73.4 74.8 71.7
60.8 61.2
6 0 s
MM
MW
40
20
Uj
a;;����"
0
a c) v un co rn CO rn o
CO w w w CO w CO w CO rn rn
rn rn rn rn M rn rn rn rn rn rn
Year
Table 11-9
Plymouth Tax Base
Year
Tax Receipts
1981
60.8
1982
61.2
1983
73.4
1984
71.7
1985
73.4
1986
73.4
1987
74.8
1988
71.7
1989
85.1
1990
88.4
19911
89.8
Plymouth + North Carolina
Plymouth Tax Receipts
884 89.8
Data Collection andAnalysis • H.15

1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
Table II-10
1989 REGIONAL ASSESSMENT: TRAVEL & TOURISM
State
Local
County
Expenditures
Payroll
Employment
Tax Receipts
Tax Receipts
($000)
($000)
(Persons)
($000)
($000)
Washington
$5,320
$830
90
$230
$100
Beaufort
18,730
2,710
250
810
420
Bertie
3,390
350
30
150
60
Hertford
12,660
1,940
190
550
350
Martin
12,660
2,340
250
520
310
Pitt
1 71,650
1 14,250
1 1,460
2,880
1 1,700

Chapter III.
'
Existing Land Use
The Town of Plymouth Land Use Plan 1992

1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
CHAPTER, III:
' Esisting Land Use Analysis
Summary of Existing Land Use
A. Introduction
' A major element in the formulation of the Land Use Plan Update is an understanding of the land
use changes which have taken place over the five year interim. It is important to understand the
existing trends and patterns of development when designing new goals, policies and
implementation techniques. The future development patterns and growth management strategies
for any vacant property or infill development will be greatly influenced by the Town's
distribution, pattern of development and concentration of existing land uses. The following
section serves to outline six existing land use patterns: central business district, residential,
commercial, industrial, recreational, and vacant.
' The Town of Plymouth contains three distinct areas of land use development; 1) the downtown or
central business district, 2) the strip or retail corridor, and 3) outlying rural development.
' 1. Central Business District
The Central Business District is located along Water Street and Main Streets adjoining the
' Roanoke River. The Town of Plymouth government office building is located in this area as are
the Washington County Courthouse and administrative buildings. Other Town support services,
such as police, fire and rescue, are Iocated in this area as well. Not unlike other small
communities in the State, real estate and transportation pressures have resulted in the
displacement of many retail locations onto the "Bypass" commercial strip. This relocation has
' resulted in several vacancies along Water Street and elsewhere in the Central Business District.
Future development within the central business district will be limited to either redevelopment of
existing buildings and lots or infill.
2. Residential
The Town contains approximately 190 acres of residential use. This figure includes areas outside
of the corporate limits and inside the one -mile extraterritorial boundary. The Central Business
.District of Plymouth is surrounded by .a relatively large residential area containing, several
residences classified as structures. of historic and architectural significance. These residences
are primarily single family dwellings. The Town also contains several compact residential
developments occupied by both single family and duplex dwellings. These are dispersed
throughout the community and are not concentrated in any one specific area. There are three
subsidized housing developments which are of a noticeably good quality. The remainder of recent
residential development has occurred on the outer perimeter of the Town and within the one -mile
' jurisdictional area. This development is primarily made up of new single family dwellings
situated on subdivided farmland.

1992CAMAland Use Plan Update -Draft Plymouth • North Carolina
' 3. Commercial
The "Bypass" commercial area, located along U.S. 64, has been the primary location of retail and
' service growth over the last ten years. The "Bypass" is characteristic of most other such "strip"
commercial developments and contains a broad array of gas stations, small retail and dining
franchises and large chain establishments. Most of the retail space is currently occupied with the
' exception of the large, recently vacated Ames department store. The Town of Plymouth has
approximately 57 acres dedicated to commercial use. This figure includes commercial areas
outside of the corporate limits and inside the one -mile extraterritorial boundary. In addition to the
' "Bypass" commercial establishments, the Washington County Hospital and a nursing home are
located along Route 64.
' 4. Industrial
The most concentrated development of industrial use within the Town occurs along the "Bypass."
' These facilities are relatively small and self-contained. The Weyerhaeuser Corporation, located
adjacent to the Roanoke River, is by far the largest industrial complex in the vicinity. The central
' and support buildings of Weyerhaeuser are located just west of the Town limits. Recent expansion
of this plant is evident along Route 164 or Ken Towbridge Road. Although Weyerhaeuser is not
located within the Town limits, many of its employees reside in Plymouth and frequent the
' commercial establishments located there. The planes location directly adjacent to the Roanoke
River makes it clearly visible from the central business district. The Town contains
approximately 53 acres of industrial use within the extraterritorial boundary.
' 5. Recreational
' There are several public and private recreational areas within the community. Among the most
recent recreational developments is the river walk. This pedestrian walkway begins at the west
end of the central business district and is terminated at the east end by the railway museum." It is
' punctuated by several outdoor eating areas and gazebos overlooking the river. The pedestrian
piers include William Flowers Park, Town Hall Park and the Rotary Park (Jefferson Street
Pier). The privately owned and maintained nine -hole golf course is the largest parcel dedicated to
recreational use. Several of the neighborhoods have baseball and softball fields. Land area
dedicated to recreational use accounts for approximately 22 acres.
' 6. Vacant Land
Plymouth contains a large portion (over 50%) of vacant and otherwise undeveloped land. This
' occurs primarily in floodplain or is employed by agricultural use. Vacant land in and around the
Downtown area is a great opportunity for infill development and/or public open space in the form
of recreation.See Table III-1 for an outline of existing land uses.

190 CAMALand Use Plan Updat&Drafft Plymouth • North Carolina
B. Significant Land and Water Use Compatibility Problems
' A land use compatibility problem generally concerns land use types which somehow restrict
expansion or additional investment on adjacent properties with other land uses. The elimination
' of land and water use compatibility problems -is a primary goal of the CAMA regulations and
guidelines set by the Coastal Resource Commission. The Town of Plymouth has adopted and
incorporated these regulations into its land use policies to ensure consistency while also allowing
some local flexibility in determining growth management needs and strategies.
The Township supports future land development in sensitive areas such as areas of
' environmental concern as long as such development does not have significant and potentially
negative impacts on land, air or water resources. Such policies keep in mind the balance between
resource protection and management and continued economic growth and reflect the general use
' standards of the North Carolina Administrative Code (as amended).
The improvement and maintenance of the existing water quality in the Town is another major
' concern, which includes the monitoring of chemical discharges and other potentially hazardous
substances into the water system.
' C. Major Problems from Unplanned Development
With a large portion of the its land currently vacant, the Township has the opportunity to plan and
control the nature of development in compatible and sensitive ways within existing land use
patterns. As a considerable portion of this land is in the flood plain or employed for farm uses,
plans geared towards strategic and carefully designed development should be drafted, supported
and implemented by the Township, especially development related to future commercial and
economic growth and the construction of new residential areas. Such plans would include
consideration of stormwater management, recreation and open space, economic revitalization,
' local housing needs, historic, cultural and natural resources, agricultural uses and
transportation systems.
' Scattered residential and commercial development along the existing roads leading to the
countryside is an example of typically unplanned development. Future development along these
entrance and exit corridors to the Town should more sensitively clustered. and executed according
to standards which encourage public safety as well as good design. The anticipated continuance of
commercial expansion along U.S. 64 should be especially monitored to ensure development at a
reasonable rate in keeping with Town policy.
' D. Areas Experiencing or.Likely to Experience Major Land Use Changes
An equal concentration on the revitalization of existing older areas of the Town and on infill
' development of new commercial establishments should be promoted to provide for an equitable
IThe Car Company
FxistingLand Use • LT-3

1
1992 CAMALand UsePlan Update-Draf t Plymouth • North Carolina
distribution of construction and economic activity. Plans for strategic development should be
drafted, supported, and implemented to ensure this balance.
Any future annexation contemplated by the Town Council will involve planning for the
development of these areas to ensure growth compatible with the'Ibwn proper. The possible
expansion of the Weyerhaeuser Corporation in the future could also have a significant impact on
the nature of both residential and commercial development as well. In either case, it is the policy
1 of the Town of Plymouth to balance the costs and impacts of these land use decisions to the benefit of
the general health, safety and welfare of the Zbwn's citizens.
1
s
' The Car Coy E istingLand Use • IU-4

1
1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
1 Table III-1
1991 Plymouth Land Use
by Acres
Land Use Classification Acres
Residential 190.45
' Industrial 53.22
Commercial 57.30
Recreational 22.19

1
Chapter IV.
Review of Current Plans
i
1
r
The Town of Plymouth Land Use Plan 1992

1992 CAMA Land Use Plan UpdateDrafi~ Plymouth • North Carolina
CHAPTER IV:
Review of Current Plans, Policies and Regulations
L Local Plans, Policy Studies, and Regulations
The following plans, policy studies and regulations have been adopted by the Town of Plymouth
since 1971:
A. LAMA Land Use Plan. Town of Plymouth. 1976
This document was the initial land use plan under CAMA regulations for Plymouth.
B. CAMA Land Use Plan Update, Town of Plymouth. 1981
C. CAMA Land Use Plan Update, Town of Plymouth, 1987
This document is the most recent CAMA update.
D. Thoroughfare Plan. Town of Plymouth. 1971
This plan does not include elements necessary for an effective and full-scale transportation plan,
and is considered to be obsolete in the face of so many roadway changes which have occurred since
1971.
E. Capital Budget and Capital Improvements Programs
These programs were adopted after the 1981 Land Use Plan Update and are currently administered
by the Town.
F. Minimum Standard Housing Ordinance
This ordinance was initiated by the 1981 Land Use Plan and is currently administered by the
Town.
G. Floodway Ordinance, 1977
This ordinance applies to those areas designated as flood hazard areas, as shown on the flood
insurance rate map prepared by the National Flood Insurance Program.
H. Building Code
This code is in conformance to County and State regulations; a permitting procedure is
administered by the Washington County Building Inspector.
The Cox Company Review of Current Plans • IV--1

1992 CAMA Land Use Plan Update -Draft
l
I. Septic Tank Reeulation
Plymouth • North Carolina
Septic tank regulations are enforced in Plymouth. These regulations meet the minimum
standards established by the North Carolina Division of Health Services and are administered by
the Washington County Health Services Office.
J. Subdivision Regulations
Subdivision regulations are currently enforced by the Town of Plymouth.
K. Zoning Ordinances
A zoning ordinance is currently being enforced by the Town of Plymouth.
L. Plymouth Waterfront Revitalization Plan, 1977
M. Plymouth Waterfront Revitalization Plan, 1987
This plan incorporated CAMA regulations and coordinated planning efforts by downtown
merchants and property owners to revitalize the waterfront area. Prepared by Howard T. Capps
and Associates, Wilmington, NC.
1I. State Agency Plans
A. Coastal Initiative Community Program
B. Transportation Improvement Program, 1988-1996
Prepared by the NC Department of Transportation, this document outlines the statewide schedule of
road improvements to be completed by the year 1996: Improvements listed for the Town of
Plymouth include the recently completed widening of US 64 through the Town and the installation
of curbs, gutters and landscaping on US 64.
C. CAMA Permitting Process
The CAMA minor permitting process is enforced in the Town. This ordinance regulates
development within designated areas of environmental concern.
III. Federal Regulations
A. 404 Wetlands. Reeulations
The Town recognizes the importance of protecting environmentally sensitive areas, which
includes those lands designated as wetlands by the U.S. Army Corps of Engineers. It is the policy
The Cox Company Review of Current Plans • IV-2

I992CAMALand Use Plan Update -Draft Plymouth • North Carolina
1
of the Town that all development within these areas conform to federal, state, and local regulations
and ordinances regarding development.
Summary
The land classification policies of Chapter VIII of this document are written in order to harmonize
with existing regulations and policies regarding land use; reference to these land classification
1 policies is suggested while reviewing and updating the existing land use policies. .
0 The Cox Company Review of Current Plans • IV-3

1
■
r Chapte V.
t
Constraints: Land Suitability
1
1
1
The Town of Plymouth Land Use Plan 1992

1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
CELAPTER V.-
Constraints: Land Suitability
The following section analyzes the general suitability of the undeveloped lands in the Town of
Plymouth and its surrounding extra -territorial jurisdiction. The accompanying maps illustrate
the location of the potential constraints to land suitability. The categories include:
' 1) Physical Limitations for Develop including natural and man-made
hazard areas, areas with soil limitations, sources and estimated quantity and
quality of water supply, and areas containing excessive (>1201o) slopes.
2) .Fragile Areas including estuarine waters and estuarine shorelines, public
trust areas, 404 wetlands, areas identified by the North Carolina Natural Heritage
Program and other areas containing fragile resources not covered by a specific
regulation.
3) Areas with Resource potential containing productive agricultural, forest, and
fishlgamelands and other non -intensive outdoor recreation lands.
Much of the information contained in this chapter has remained unchanged since the 1986 Plan
due to the relative stability of geologic features and resources. The information has been updated
when necessary. Policies related to the hazard areas are contained in the Policy Chapter under
Section E (Coastal Storm Hazard Mitigation Planning Activities and Studies).
L Physical Limitations For Development
A. Hazard Areas
1. Natural Hazards
The flood insurance rate maps (FIRMs) as dictated and outlined by the Federal Emergency
Management Agency (FEMA) indicate that several areas within Plymouth are classified as Zone
A. This classification .designates areas which are subject to inundation by a flood with a
frequency of 100-years. Plymouth also contains areas subject to flooding during a 500-year storm.
These areas are classified as Zone C, or areas deemed to contain minimal danger from flooding.
There are no areas within the Zone V classification. These are areas subject to coastal erosion
caused by intense wave action. The Town contains three areas which are subject to hazardous .
flooding as classified under Zones A and C: 1) the Roanoke River shoreline and adjoining
wetlands, 2) Conaby Creek and adjoining wetlands, and 3) Welch Creek and adjoining
' wetlands. Development in these areas may be costly either to human welfare or existing
development.
IThe Carr Company
Constraints: Land Suitability • V-1
t

1992CAMALand Use Plan Updak-Draft. Plymouth •North Carolina
' 2. Man -Made Hazards
Currently the primary man-made hazards located within the Town are the underground storage
tanks (USTs). The highest concentration of petroleum industries is located along the Route 64
corridor. These industries currently meet or exceed all State and Federal operating
requirements.
The Weyerhauser Industry located on the shore of the Roanoke presents the greatest threat to the
Estuarine waters within the Town of Plymouth and the surrounding counties. Currently
Weyerhauser meets or exceeds all State and Federal operating and licensing requirements.
B. Areas with Soil Limitations
The U.S. Department of Agriculture Soil Survey of Washington County indicates several areas
which contain poor to very poorly drained soils for Plymouth. These soils are generally not
suitable for intensive urban uses requiring septic drainage field installation and the construction
of foundations. The soils falling into this limited development classification include:
1) Argent silt loam
2) Augusta fine sandy loam
3) Dogue fine sandy loam, 0%-3% slope
4) Dorovan muck
5) Muckalee loam
6) Roanoke fine sandy loam
7) Wahee fine sandy loam
These soils are primarily located in areas susceptible to flooding as specified by FENIA.
Development should be limited in these areas as indicated on the Plymouth Land Classification
Map. The policy section of this document contains growth goals and policies for development
which are sensitive to the constraints of the existing soils.
C. Sources and Estimated Quantity and Quality of Water Supply
Plymouth currently obtains its potable water from bedrock or aquifer sources. There are no
operable surficial or reservoir sources in the Town. The Town operates four wells which
cumulatively produce 1.2 million gallons per day.
D. Areas Where the Predominant Slope Exceeds 12 Percent
Plymouth currently contains only minor areas containing slopes of 12% or greater. These areas
are primarily located in forest lands. The primary areas with erosion potential are the shorelines
of the significant. waterways as outlined in Areas of Environmental Concern and the Storm
Hazard Policy Section. At this time the Town does not foresee the need for bulkhead construction .
or other slope stabilization measures beyond the. requirements set forth by the adopted ordinances.
'
The Cox Company Constraints: Land Suitability • v 2

1992CAMALand Use Plan Update -Draft
II. Fragile Areas
Plymouth • North Cardina
Fragile areas may be defined as areas which could sustain considerable damage from unplanned
or otherwise inappropriate development. There are two defined fragile areas existing in
Plymouth. They include: 1) Estuarine Waters and 2) Public Trust Areas. These waters are
considered to be among the most productive natural environments within Plymouth. The waters
currently function as spawning and nursery .areas for striped bass, hickory shad, American shad,
blueback herring and alewife.
A. Natural Resource Fragile Areas
1. Estuarine Waters
Estuarine shorelines are especially vulnerable to the hazard of erosion and flooding. These
waters are usually brackish and run from the Atlantic Ocean to the dividing line. between coastal
fishing and inland fishing. The following data indicating the specific Estuarine waters was
obtained from the Coastal Resources Commission and the 1986 Land Use Plan. Estuarine waters
and public trust areas are also defined as Areas of Environmental Concern (AECs). A complete
description of these areas is included in the Resource Protection Policy Section. The waters
falling under this definition in the Town include:
a) the Roanoke River and its adjacent shoreline up to 75 feet from average standing water
elevation.
b) Welch Creek and its adjacent shoreline up to 75 feet from average standing water elevation.
c) Conaby Creek and its adjacent shoreline up to 75 feet from average standing water elevation.
The preservation and protection of the estuarine waters and adjacent shorelines are strictly
regulated both by established Federal and State guidelines as well as via the policy statements
specified in this document.
2. Public Trust Areas
Public Trust Areas are .defined .as all areas of the Atlantic Ocean and the lands thereunder from
the mean highwater mark to the seaward limit of state jurisdiction; all natural bodies of water
subject to measurable lunar tides and lands thereunder to the mean high water mark; and all
water in artificially created bodies of water -containing significant public fishing resources or
other public resources which are accessible to the public by navigation. The previous plan also
defines these as waters and adjacent lands, the use of which benefits and belongs to the public and
to which the public has the right of access. The above stated estuarine waters lying within the
boundaries of the 'Ibwn of Plymouth and the surrounding Extra -Territorial Jurisdiction are also
defined as Public Trust Areas.
r
The CaxComPany Constraints: Land Suitability • V-3

1992 CAMA Land Use Plan Update -Draft i� Plymouth • North Carolina
' 3. Other Natural Resource Designations
Natural resource designations falling under this category include 404 Wetlands regulations as
identified by the Fish and Wildlife National Wetlands Inventory and the Threatened and
Endangered Species Profiles.
Areas covered by water or those which contain waterlogged soils for the majority of the growing
season as well as those areas containing plants capable of surviving under limited oxygen
' conditions are categorized as 404 wetlands. The Roanoke River, Welch Creek and Conaby Creek
tributaries and their adjoining shorelines represent the extent of 404 designated wetlands in the
Town and surrounding Extra -Territorial Jurisdiction.
Currently several species are included in the "Threatened and Endangered Species Profiles of.
North Carolina" and are listed under Category 3 (vulnerable). These species are striped bass,
hickory shad, American shad, blueback herring and alewife. This report was prepared by the
North Carolina State Museum.
The North Carolina Natural Heritage Program and Plant Conservation Program have
categorized individual species which fall into four general headings; 1) vertebrates, 2)
invertebrates, 3) vascular plants, and 4) nonvascular plants. The Programs have also identified
the following natural communities located within Plymouth and the surrounding extra -territorial
jurisdiction.
Coastal Plain Levee Forest
Coastal Plain Small Stream Swamp
Cypress --Gum Swamp
Mesic Mixed Hardwood Forest
- Nonriverine Swamp Forest c
Nonriverine Wet Hardwood Forest
Peatland Atlantic White Cedar Forest
B. Cultural Resource Fragile Areas
There aremany significant. historic and cultural resources in the Town of Plymouth. These are
identified by the North Carolina Department - of Cultural Resources and are made pursuant to
Section 106 of the National Historic Preservation Act of 1966 and the Advisory Council on Historic
Preservation's Regulations.for Compliance with Section 106, codified at 36 CFR Part 800. The
resources are identified as follows:
1) Plymouth Historic District. Placed on the National Register of Historic Places on January 16,
1991.
2) The following properties were placed on the state study list for potential nomination to the
National Register on April 12, 1990:
• Griffin -Fagan House
• Hampton Farm House
R4
• The Car Company
Constrau:ts: LanaiSuiiabilih•
r

1992CAMALand Use Plan. Update -Draft Plymouth • North Carolina
' William Matthew Johnson House
• Mount Hebron AME Zion Church
' National Handle Company Plant (former)
• Owens -Owens House
• Plymouth Country Club Estates Historic District
• Washington County Training School
Numerous structures have also been surveyed within. the existing Historic District and.
' surrounding areas. Areas possessing archaeological significance are minimal and have not
expanded or otherwise been added to in the past five years.
III. Areas With Resource Potential
A. Productive and Unique Agricultural Lands
The primary concentration of productive agricultural lands is located in the extra -territorial
jurisdiction of Plymouth. Executive Order 96, issued by the Governor .in 1983, outlined the Statee's
desired to promote the "conservation of prime agricultural and forest lands". in compliance with
the Federal Farmland Protection Policy Act of 1980. Order 96 was prompted by the increasing
development tension imposed on prime agricultural lands. The resulting development often
irreversibly damaged the lands resulting in the reduction of food and/or timber production.
The areas of prime farmland are characterized by soils which are best suited to agricultural
' production. These soils produce the highest yields with minimal inputs of energy and economic
resources. Farming these soils results in minimal damage to the environment. The Washington
County Soils Survey indicates three types of soils found in areas of prime farmland; 1) Altavista
fine sandy loam, 2) Dogue fine sandy loam, and 3) Wickham loamy sand. The Plymouth Land
Classification Map generally categorizes areas of prime farmland under the heading "rural.."
B. Forest Lands
The Town of Plymouth and its extra -territorial jurisdiction also contain areas of prime forest
land. The proper management of these forest areas is critical to the economic well-being of the
Town. The Weyerhaeuser plant, which employs many Plymouth residents, currently timbers
much of this forest land and therefore relies on the resource for plant operation.
C. Productive Water Resources
The Roanoke River is considered a valuable area of resource potential. The waterfront location
and waterside amenities afford varied interaction for the citizens of the community. Fishing in
the Roanoke River adjacent to the Town of Plymouth is limited to recreational. Bass, herring,
catfish and perch are the primary catches. This resource has been and will continue to be utilized
in a manner sensitive to both environmental impacts and the needs of the citizens.
ITheCox Company
Constraints. Land Suitability • V-5

1992CAMALand Use Han Update -Draft Plymouth -North Carolina
' D. Primary and Secondary Nursery Areas
' The Division of Marine Fisheries does not have any designated primary or secondary nursery
areas in the planning district as currently addressed in their. regulations. The agency is,
however, in the process of developing anadromous spawning and nursery areas and critical
habitat designations. Descriptions and definitions have been drafted for these areas and will be
presented to the North Carolina Marine Fisheries Commission for consideration in the near
future.
E. Mining Lands
The Town of Plymouth and its extra -territorial jurisdiction contain no deposits of sufficient size
for commercial mining operations.
r
r
The CavCompany

Chapter VI.
Constraints: Carrying Capacity Analysis
1
■
■
■
The Town of Plymouth Land Use Plan • 1992
1

1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
CHAPTER VL
Constraints: Carrying Capacity Analysis
To assist the Town of Plymouth in determining its present ability to provide basic community
' services, to anticipate future demand, and to identify deficiencies which will need attention, an
examination of the following indicators has been undertaken.
1. Existing Water Supply
Plymouth currently obtains its potable water from bedrock or aquifer sources. There are no
' operable surficial or reservoir sources in the Town. The Town maintains four wells which
cumulatively produce approximately 1.2 million. gallons per day. The Town has recently
improved its water system between 1984-85 to the current capacity with .1500-1600 service
' connections. The plant also serves approximately 500 Washington County residents. No more
recent water engineering studies have been done since that expansion.
Plymouth currently maintains three potable water storage tanks. Two of these tanks are overhead
with a combined storage capacity of 950,000 gallons. One tank is at ground level and carries a
design capacity of 50,000 gallons. The system has a current demand of 600,000 gallons per day
which is approximately 55% of current capacity.
2. Sewage Mmatment Plant
The treatment capacity of the sewage plant is currently rated at 1.6 million gallons per day. The
demand falls between 700,000 and 800,000 gallons per day. Approximately 97%-98% of the Town is
served by Town sanitary sewer. The installation of new septic tanks or package treatment
facilities is discouraged in the Town except where extenuating circumstances exist.
' 3. Solid Waste
Plymouth currently provides collection services for the majority of its residential and
commercial areas. Washington County maintains a nine acre landfill site located just northeast
of Westover, approximately one mile north of State Road 1300. The site was purchased in 1988 by
the County. The site serves approximately 20,000 people in both Washington County, its
incorporated communities, and sections of Tyrrell County. Several dumpster sites are located
throughout Plymouth. Washington County currently has a Sanitation Ordinance in place to
' regulate frequency and type of dumping.
4. Schools
' hchildren currentl attend three schools within the Washington Count school system.
Plymouth y i;� Y Y
Pines Elementary School contains grades &4th and has a current enrollment of 840. This school
was opened in 1985 and was designed to accommodate students from the old Roper Elementary,
Fourth Street Elementary, and Washington Street Elementary School campuses. Washington
The Car Company ts: ConstrainCarrying CopacityAnalysis • VI-1
i�

1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina.
County Union contains 5th-8th grades and has a current enrollment of 760. Current plans indicate
the expansion of this school by six classrooms.. Plymouth High School contains 9th-12th grades,
and has a current enrollment of 639. The 1985 Washington County Land Use Plan outlined a
proposed modernization of the High School to eliminate the mobile classroom units and enlarge.
the cafeteria and library. General Obligation Bond Authorization for Phase II was enacted in
1984. This construction is complete.
5. Library
The Pettigrew Regional Library contains @40,000 books, 66 journals, 12 newspapers, and audio-
visual materials; it also operates an inter -library exchange program. The library staff consists
of a full time librarian, a full time assistant and two part time clerks. This library serves the
greater Plymouth and Washington County areas.
6. Police, Fire and Rescue Services
Plymouth currently maintains a Police force of ten sworn officers including the Police Chief and
four civilian dispatchers. The force operates on a schedule of four, twelve hour shifts. There are
currently seven mobile units in good working condition.
The Town utilizes two Fire Stations. The Main Station is located on the north side of the Town and
the Satellite Station is located on the south side. Equipment in these stations is considered to be in
good operating condition.
Rescue Squad services are provided by Washington County. The County operates an ambulance
service out of the Washington County hospital.
The above services are accessed via a "basic" 911 phone link.
7. Primary Roads
The major corridor into Plymouth is U S 64, a primary east -west highway which extends from the
North Carolina Outer Banks to Fort Smith, Arkansas. N.C. Routes 32 and 45 are the local north -
south routes which connect Plymouth with other towns and cities along the coast. Route 17 north
(within 10 miles of the town limits) connects the town with the Hampton Roads area in Virginia;
N.C. Route 32 connects with Route 17 south to Morehead City, NC.
' 8. General Transportation Systems
The nearest commercial airport is located in Greenville (50 miles from Plymouth). The local
Plymouth Municipal Airport is located in Washington County, equipped with a single, lighted
runway and fuel facilities. The nearest railway station is also located in Greenville, with service
to all major east coast destinations. Bus service in Plymouth is provided by the Trailways Bus
' Service; four motor freight carriers and two heavy hauling companies serve Washington County.
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1

1992 CAMA Land Use Plan Update -Drat Plymouth •North Carolina
The Intercoastal Waterway is accessible via the Albemarle Sound, located about 25 miles east of
Washington County. The Roanoke River channel at Plymouth has a depth of only 12. feet. The
' nearest major port facilities are in Norfolk, VA, about 130 miles away.
r
T1ie CavCompa y n Constraints: Carrying CapacityAnalysis • W-3

Chapter VII.
Estimated Demand

1
I �
r
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1992 CAMALw d Use Plan Update -Draft 1` Plymouth • North Carolina
CHAPTER VII:
Estimated Demand
Population Growth and Impacts on Community Facilities
The section entitled "Existing Conditions" containsthorough analysis of the existing population
counts and population projection based on the 1990 Census data. The 1990 Census indicated a
population of 4,328 for the Zbwn. The population has remained relatively stable since 1970. Census
data indicates a decrease of 203 persons between 1970 and 1980 and a decrease of 233 persons
between 1980 and 1990. The maximum fluctuation over the last twenty years was the decrease
between 1980 and 1990 of 5.3 percent. Projections to the year 2000 indicate a continuing population
decline of approximately 5.3 percent with the Town population estimated to be just under 4,100. The
County of Washington population. figures indicate a decline similar to the Town of Plymouth
between the years of 1980 and 1990 of 5.4 percent.
While existing population patterns indicate a current and projected decrease over the next five to
ten year period, services in the Town of Plymouth are currently adequate to handle a substantial
increase in population should the situation arise.
1. Existing Water Supply
Current capacities of the Plymouth public water system indicate substantial resources available
for a sizable increase in population. The Town will initiate and support an ongoing effort to
maintain and/or improve existing facilities over the ten year planning period. The Town
currently has an excess production capacity of nearly 600,000 gallons per day, and therefore no
further engineering studies are -currently deemed necessary.
2. Sewage Treatment Plant
Current use of the Plymouth sewage treatment facility falls approximately at 50 percent of rated
capacity. Based on the projected population trends, no further additions will be necessary over the
ten year planning period. The Town intends to maintain and/or update existing facilities as
deemed necessary to uphold current capacity ratings.
3. Solid Waste
The Washington County Landfill is currently involved in plans to expand the dumping area both
vertically and horizontally. This proposed expansion will be sufficient to handle any potential
population increases in the next ten years.
4. Schools
Recent demographic studies undertaken by the school system indicate a probable decline in the
school age cohort. Realistic projections are limited to five years due to being unable to predict birth
rate with acceptable accuracy. Based on the extensive improvement completed over the last five
The Cax company
EstimatedDennand• VH-1

1
1M MVALmd Use Plan UpcW&Draf l Plymouth • North. Quvlina
' years, it is felt that the existing resources are above adequate to provide quality education over a
minimum of five years.
5. Libr
ary
' The adequacy of the- existing Pettigrew Regional Library is supported by the inter -library loan
program with North Carolina State University in Raleigh. The library staff should be augmented
as the increase in available resources dictates.
' '
6. Police, Fire and Rescue Squad Services
' Existing police, fire and rescue services are believed to be adequate over the next ten years. The
Town Officials have indicated the desire for increased police protection. To this end, the Down of
Plymouth would like to see four additional sworn officers added to the force. This would amount to
' one officer per shift. The Town is examining the possibility of upgrading the existing "basic 911"
system to the "enhanced 9 W program in the next five to ten years.
' 7. Transportation
Recent improvements to the U.S. 64 by-pass have greatly helped the previous traffic congestion
' problems in the Town. Plymouth intends to continue to maintain existing urban and rural
sections. The existing system of roads are deemed adequate based on development trends and
resulting traffic counts. The Town should examine the possibility of drafting and adopting a
Thoroughfare Plan to assure adequacy of facilities within the Zbwn and surrounding areas.
Estimate+dDemand• VH-2

Chapter VIII.
Goals, Objectives and Policies

1992 CAMA Land Use Plan Update -Draft Plymouth .• North Carolina
CHAPTER VHI:
Goals, Objectives and Policy Statements
Introduction
Plymouth's Land Use Plan is intended to bean expression of what the community wants to be and
what it wants to look like. Simply stated, it is both a "vision for our future" and a means of
' achieving that vision. In pursuit of defining the vision, the foundation of the Land Use Plan
Update is its commonly -held goals and objectives for the Town. Since all future land use
decisions will rest on this foundation, it is important these goals be - clear, comprehensive, and
' reflective of the community's desires and the State's legislative requirements. In turn, these
goals and objectives have been developed into statements of planning policy addressing the
specific land use issues which will affect Plymouth during the upcoming ten year, planning
' period.
In preparing the Land Use Plan Update, the elected leaders of the Town believe that when
establishing and adopting these policy statements regarding land use, .the environment and
growth management is the most important part of the planning process. In arriving at the
' recommended set of policies, the Planning Board was responsible for resolving many conflicting
issues and balancing the land planning objectives of the citizens with those mandated by State and
federal guidelines. Further, great care has been taken to be responsive to the needs of the Coastal
' Resource Commission and, specifically, the legislative guidelines of the Coastal Area
Management Act.
Policy Guidelines and LAMA Study Process
To assist in organizing and presenting the Plan's policy statements, the Town has adopted the
' Coastal Resource Commission's generalized topical categories. These categories provide an
excellent model for addressing areas of both local and State concerns while providing Plymouth
with broad flexibility in placing priorities on local land use issues. At the same time, all policies
adopted by Plymouth into the 1992 Land Use Plan must be consistent with the overall coastal policy
adopted by the Coastal Resources Commission.
I
The Town's major land use and development policies are organized into the following five policy.
categories consistent with current CAMA statutes:
' A. Resource Protection
B. Resource Production and Management
C. Economic and Community Development
D. Public Participation
E. Storm Hazard Mitigation and Recovery
To the greatest extent possible, the Town has made every effort to ensure that there is consistency
among individual policies developed in each policy category. However, many individual policy .
The Cox Company
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' 1992CAAMLand Use Plan Update -Draft Plymouth *.North Carolina
CHAPTER VIII:
Goals, Objectives and Policy Statements
' Introduction
Plymouth's Land Use Plan is intended to be an expression of what the community wants to be and
what it wants to look like. Simply stated, it is both a "vision for our future" and a means of
achieving that vision. In pursuit of defining the vision, the foundation of the Land Use Plan
Update is its commonly -held goals and objectives for the Town. Since all future land. use
' decisions will rest on this foundation, it is important these goals be clear, comprehensive, and
reflective of the community's desires and the State's legislative requirements. In turn, these
goals and objectives have been developed into statements of planning policy addressing the
' specific land use issues which will affect Plymouth during the upcoming ten year planning
period.
In preparing the Land Use Plan Update, the elected leaders of the Town believe that when
establishing and adopting these policy statements regarding land use, the environment and
growth management is the most important part of the planning process. In arriving at the
' recommended set of policies, the Planning Board was responsible for resolving many conflicting
issues and balancing the land planning objectives of the citizens with those mandated by State and
federal guidelines. Further, great care has been taken to be responsive to the needs of the Coastal
' Resource Commission and, specifically, the legislative guidelines of the Coastal Area
Management Act.
Policy Guidelines and CAMA Sandy Process
To assist in organizing and presenting the Plan's policy statements, the Town has adopted the
Coastal Resource Commission's generalized topical categories. These categories provide an
excellent model for addressing areas of both local and State concerns while providing Plymouth.
' with broad flexibility in placing priorities on local land use issues. At the same time, all policies
adopted by Plymouth into the 1992 Land Use Plan must be consistent with the overall coastal policy
adopted by the Coastal Resources Commission.
The Town's majJor land use and development policies are organized into the following five policy
. categories consistent with current CAMA statutes:
A. Resource Protection
B. Resource Production and Management
' C. Economic and Community Development
D. Public Participation
E. Storm Hazard Mitigation and Recovery
To the greatest extent possible, the Town has made every effort to ensure that there is consistency
among individual policies developed in each policy category. However, many individual policy
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
categories have overlapping, and potentially competing, impacts on other adopted policies. The
Planning Board has given particular attention to indhidual policies. in the resource protection,
resource production and management, and economic and community development categories.
For each of the five major planning issue categories subject to policy guidance, as outlined in
T15A:07B .0203 of the State Code, the study process for the 1992 Land Use Plan has thoroughly
examined the following considerations:
• the _=andiMpgr=ce of the land use issue as related to Plymouth_:
In defining relevant land use issues the Planning Board, in conjunction
f g g �
with the public participation process and citizen groups, examined those
priority issues which will affect Plymouth during the upcoming 10 year
planning period.
• the range of alternative goals. objectives and policies which might be
apnlicable when addressing the particular land use issue:
As the 7bwn considered potential policy options for each planning issue
category, alternative scenarios and the impact of their outcomes were
:discussed based upon traditional and contemporary approaches to
addressing public policy issues. The analysis of existing land use
conditions, economic and population projections, and environmental
' considerations aided in formulating these options. The cost/benefit of policy
impacts on the Town, including cost of providing services and increased
revenues generated from development, were analyzed. Further, the short
and long range impacts of Town -wide social, political and environmental
implications of policy alternatives were closely weighed. Those policy
alternatives found to be incompatible with the Town's overall planning goals
' and objectives have been eliminated from further consideration.
• thejecific policy deemed appropriate by the Town for adoption into the 1992
Land L1se Plan:
The Town's final selection and adoption of Ind use policies was based upon
' an extensive land use and economic dc:a analysis as well as a full
examination of the best possible alternative for each land use issue. These
policy choices are set forth in the following sections of this chapter. The
Planning Board has found that the recommended policies are reasonable
and achievable by the Town government and are sensitive to the fiscal
constraints and the 7bwn's administrative ..:stem which will be in -place for
the 10 year planning period.
recommended implementation strategies to ensure that the adopted land use
' MEcy can be placed into effect thmug_h reasonable actions by the nubliic and/or
private sectors.
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1992 CAMA Land Use Plan Update -Draft Plymouth - North Carolina
In this document, the 7bwn presents the desired strategies and methods for
' achieving the policies which have been adopted for the five major land use
issue categories. In addition, the following sections of this document address .
' the methods by which Plymouth intends to implement the adopted policy
choices as well as a proposed time schedule for implementation.
Consideration of Policy Alternatives and Policy Implementation Schedule
Based on Coastal Resource Commission study requirements, a wide range of land use policy
options have been evaluated in order to ensure that any given issue has been fully explored. This
process began with a detailed examination of past planning policies by the Planning Board. An
analysis tool entitled the Policy Critique Questionnaire was designed to facilitate a thorough
review of these past policies (see appendix II). A public participation process was conducted to
' create the forum for the input of all Plymouth citizens. Extensive public meetings and work
sessions focused on defining the range of options from which an optimal policy on given issues
could be drawn.
IAt the conclusion of each of the following policy sections, there is a description of those policies
considered during the planning process, but which have been eliminated. Those policies which
have been stricken from consideration, in some instances, may be revisited at some future point
in time. Other eliminated policies, after thorough examination within the context of the locality,
were found to be inconsistent with CRC, State and Federal planning requirements.
' In a number of cases, specific policies were not pursued because of their incompatibility with the
current political climate in the Zbwn. Such policies usually involved the Board making a choice
between perceived conflicts in (1) fully respecting "private property rights" and (2) imposing "too
much government" on the people. Such conflicts take many forms when striving how best to
establish a unified and comprehensive "vision" for the Town's future. There are those who
promote expansive economic development without regard for the environment. On the other hand,
environmental activists oftentimes promote "no growth". agendas under the veiled guise of
ecological propriety. Further, public policy debates occasionally pit the interests of "town folk"
versus "country folk," "poor folk" versus "wealthy folk," and "local government" versus "the
feds." These debates over such age-old conflicts exist in every community which has ever
undertaken a land use plan. Case history shows that, in most cases, there is no "right answer," but,
' rather, policies often lean towards convenient, short-term political answers that are responsive to
the most vocal of prevailing constituent interests.
In the 1992 Land Use Plan Update, the Planning Board has sought to resolve the complex issues in A.
dignified fashion, while maintaining the central belief that Plymouth has a strong and competent
local governmental structure. This structure is founded on political and economic thought driven
' by the expressed needs of the local constituents. This philosophical base fully respects State and
Federal statutes related to land development and the environment. The Town promotes a pro-
active land planning stance by. taking the lead in guiding .and managing local land use
. activities. Plymouth currently employs zoning and subdivision ordinances which are designed to
improve the health, safety and general welfare of the citizenry: These ordinances are designed to
'
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1992CAMALand Use Plan Update -Draft` Plymouth * North Carolina
' avoid unreasonable restrictions on personal property while establishing clear guidelines for
growth.
The PlanningBoard in concert with input from the Town Staff, has outlined a recommended
� P
schedule for the implementation of the following adopted policies. Since the implementation of
many policies involve the pursuit, approval, and allocation of public funding, continued
scheduling refinements, including the possible elimination of some implementation objectives,
may be required. Further, certain implementation tasks and strategies outlined herein 'are
considered to be. "ongoing and continued actions" for which no specific timeframe for execution is
required for adoption.
Recommended Planning Policies for Plymouth
A. Resource Protection Goals, Objectives and Policies
In establishing goals and policies related to resource protection, Plymouth has thoroughly examined
the various areas of environmental concern (AEC's) located within its jurisdiction and has classified
the categories of land uses which are appropriate for the Town. For each class of land use, the Plan
Update has carefully considered the specific rationale and reasons for the recommended land uses.
( There are no coastal wetlands or Outstanding Resources Waters (ORWs) in the estuarine system AECs of
the Town of Plymouth, nor are there any ocean hazards AECs.
tIn this effort, the physical constraints to land development in the Town have been analyzed pursuant to
T15A: 07B .0202(c) of the Coastal Resources Commission administrative rules for land planning.
Further, uses for areas with cultural and historic value have been analyzed to determine what will be
the benefits and/or liabilities which will accrue to the Town and its citizens by either encouraging the
development or preservation of these areas.
1 The Town of Plymouth contains three areas of environmental concern in its estuarine system, which are
categorized as Estuarine Waters and Public Trust Areas. Estuarine Waters are defined in G.S.113A -113
(b) (2) as "all the water of the Atlantic Ocean within the boundary of North Carolina and all the
waters of the bays, sounds, rivers, and tributaries thereto seaward of the dividing line between coastal
fishing waters and inland fishing waters, as set forth in an agreement adopted by the Wildlife
' Resources Commission and the Department of Environment, Health and Natural Resources." Public
Trust Areas are defined as all publicly or state-owned land covered by tidal waters, as well as
navigable waters on non -tidal lands. Public trust rights in regards to these areas include the right to
navigate, swim, hunt, fish and enjoy other recreational activities, and also to freely use and access
public beach areas and shorelines. It is a policy of the State to conserve and protect water systems for
the benefit of the public.
The three areas of environmental concern are listed as follows:
• The Roanoke River and its adjacent shorelines, extending landward for a distance of 75 feet.
• Conaby Creek and its adjacent shorelines, extending landward for a distance of 75 feet.
' T Company Goals Objectives and Policies • VIII-4
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1992 CAMA Land Use Plan Update -Draft
Plymouth • North Carolina
• Welch Creek and its adjacent shorelines, extending landward for a distance of 75 feet.
1. Identify and address areas of the 7bwn and Extra-lbrritorial Jurisdiction with land
development constraints and guide appropriate and compatible land development
activities.
a. Define and delineate land areas with development constraints as a part of the
Land Use Plan Update process.
b. Continue to support and amend existing subdivision regulations which
appropriately regulate and control land development in areas with identified
physical constraints to land development.
c. As indicated in the. adopted subdivision regulations, all commercial,
industrial, institutional and residential subdivision development should be
sensitive to the character of prevailing soils types, flood prone areas and
physiographic conditions which impact septic tank use; .private wells, and
construction feasibility. Update existing subdivision and zoning regulations
to complement Plymouth's Land Classification Map.
d. Draft a Town Water and Sewer Plan which would direct future expansion, and
current maintenance of Town water and sewer facilities. Prepare water and
sewer maps in conjunction with this Plan.
e. Encourage intensive land development activities only on lands which do not
possess any significant land development constraints.
f. Development in areas where soils types have severe bearing capacity
constraint is not encouraged.
g. Develop and adopt administrative procedures for Building Administrator to
review and report on land development and/or land disturbing activities in
AECs, and other areas of development constraints.
h. Continue to support and update existing and study new alternative local
growth management techniques --such as zoning --which would provide for the
recognition and control of land use types, densities and development criteria
within areas having defined development constraints.
i. Draft and adopt a Stormwater Management. Plan which would outline future
expansion and maintenance of existing stormwater facilities.
2. Preserve and protect Areas of Environmental Concern (AECs) within
Plymouth.
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
' a Support and complement Coastal Resource Commission efforts to protect,
preserve and manage Areas of Environmental Concern (AECs).
' b. Create guidelinesP for land development which only conforms to the general
use standards of the North Carolina Administrative Code, as amended for
1 development within the defined estuarine system in and around the Town.
c. Support development in AECs only if such development meets the
imanagement objectives in 15 NCAC 711.0203 and the use standards in 15
NCAC 7H.0208 and .0209.
I
d. Ensure that development within the estuarine shoreline does not significantly
interfere with existing public rights, usage and access to navigable water and
other public resources.
e. Continue to support and amend existing subdivision ordinance standards to
ensure that any development within AECs does not weaken or eliminate
natural barriers to erosion. (see Section 5 of existing Municipal Subdivision
Ordinance).
f. Ensure that all land development plans within AECs have evaluated all
possible alternatives to controlling pollution, limiting drainage, and
reducing other potentially negative impacts related to land use activities.
g. Examine the potential for the future construction of marinas in the Zbwn and
Extra -Territorial Jurisdiction, as well as in adjoining County areas. This
construction shall be according to the following Coastal Management
standards. The Town does not feel the need for more restrictive policies at this
time.
• new marinas are not to be located in Primary or Secondary Nursery
Areas;
• the timing of marina construction involving dredging shall be
determined by Division of Marine Fisheries.
h. Continue to study alternative local growth management techniques which
would provide for the controls, land use types, densities and development
criteria within AECs.
i . Initiate studies relative to the identification of and nomination procedure for
expanded Areas of Environmental Concern under Section .0500 of 15A NCAC
7H for other hazardous or fragile land areas, including but not limited to
freshwater swamps and marshes, and 404 wetlands, water supply areas and
other waters with special values, cultural and historic resources, and
manmade hazards.
The Cox Company
Goals, Objectives and Policies 9 VIII-G

1992 CAMA Land Use Plan Update -Draft Plymouth * North Carolina,
Preserve and Protect natural, cultural, and historic resources within Plymouth.
' a. Encourage land use proposals which will have no negative impact on historic,
g P P g
cultural, and/or archaeological resources in the Town and/or Extra -
Territorial Jurisdiction.
b. In cooperation with the Cultural Resources Commission and State
Preservation Office, periodically review, revise and update the inventory of
historic properties in the Town and surrounding area.
c. Continue studies of the establishment of a land conservation fund which
would protect areas of environmental, recreational, and/or aesthetic
importance by fee acquisition, dedication and/or permanent easement.
d. Promote citizens' awareness and public educational opportunities
programs
for Town historic and natural resources, including the conservation,
preservation and maintenance thereof.
e. Draft and adopt a Transportation Plan which would supplement the NCDOT
document. The Plymouth Transportation Plan would provide a critical path
for corridor expansion and improvement within the Town and Extra -
Territorial Jurisdiction.
f. Support the Albemarle -Pamlico Estuarine Study (APES).
g. Draft and adopt a Recreation Plan which would indicate potential locations
for public owned recreational facilities.
4. Determine Hurricane and Flood Evacuation Needs and Plans.
a. Policy statements for hurricane and flood evacuation needs and plans, as
specified in Rule .0203(a)(6) of this Section are outlined in a separate policy
category in this chapter.
5. Protect the Zbwn's Water Supplies and Potable Water Resources.
a. The Town should make every effort to ensure that the protection of existing
and future potable water supplies and resources will be consistent with all
State and Federal policies and guidelines.
b. Prepare and periodically update a Water and Sewer Plan which would direct
future expansion and current maintenance . of Town water and sewer
facilities. Prepare water and sewer maps in conjunction with this Plan.
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
c. Ensure that the Town's land development reriew process examines all land
use proposals to determine their impact on the Town's potable .water supplies
and resources.
d. Support and promote to the extent feasible land use regulatory requirements
near groundwater sources as regulated by the North Carolina Division of
Environmental Management, via N.C.A.C. Subchapter 2L and Subchapter
2C.
e. Create an active program to support State efforts to remove leaking
underground storage tanks (USTs) and to restore adversely affected water
supplies.
f. Create. an active program to support State regulations for the control of siting,
construction and maintenance of underground storage tanks.
g. Continue to support and update existing subdivisions regulations .which
address the control of underground storage tanks.
h. Support state and federal programs that regulate underground storage of
hazardous -materials. Support regulations that require tightness testing for
- existing tanks and construction standards for new tanks. Immediate
' removal of leaking tanks should be required. Support establishment of a state
fund to stop tank leaks and to clean up affected water supplies.
i . Continue to support capacity use groundwater monitoring by the Division of
Environmental Management.
j Continue the extension and maintenance of public water supplies and
distribution systems into selected areas of the Town.
jk. Develop citizens' awareness programs related to expanding water supplies
and distribution systems, including information promoting access to these
' systems.
6. Develop Guidelines and Policies for the use of sewer treatment package plants
in Plymouth:
a. The Town recognizes that private package treatment plants are not appropriate
alternatives to be used in the support of future land development activities in
the Town.
The Cox Company ` Goals, Objectives and Policies • VIII-8

1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
b. The location of any proposed package treatment plants within the Extra -
Territorial Jurisdiction which would impact Plymouth should be approved by
' the Town.
c. Prepare a Water and Sewer Plan which would direct future . expansion and
current maintenance of Town water and sewer facilities. Prepare water and
sewer maps in conjunction with this Plan.
d. Private developers considering the use of private sewer treatment plants
within the Extra -Territorial Jurisdiction must prepare detailed facility
' impact statements which should include consideration of maintenance and
operational requirements for the plant and provisions for the dedication of the
plant into the public system where possible, should the private operation fail to
meet any and all public guidelines.
e. Any request for the approval ofma private package treatment facility must be
accompanied by environmental impacts statements and documentation of
assurances that all applicable State and Federal health requirements will be
satisfied.
r
Other Resource Protection Policies for Plymouth:
Pursuant to CAMA planning guidelines for Resource Protection Policies,
certain additional issues must be addressed in the mandatory CRC approval
process for the Land Use Plan Update. Some of the following policies have
lower priorities than those hereinabove described due to the geographic
location of Plymouth relative to some of the other areas within the province of
the Coastal Resource Commission. Notwithstanding, these policies are
deemed important to Plymouth and are adopted into the Resource Protection
policies of the community.
7. Stormwater runoff
The Town recognizes the importance of private management of stormwater
runoff associated with agriculture, residential/commercial development, and
its impacts on wetlands, surface water or other fragile areas. The Town will
develop new and support existing guidelines and land development criteria
for stormwater management and runoff related to private land uses. The
Town supports State and Federal stormwater runoff criteria applicable to land
development. The Town will consider drafting and adopting a Stormwater
Management Plan in . support of existing State, Federal and Local
regulations.
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
Conaby Creek currently requires clearing and snagging to provide for
efficient use of currently established storm drainage channels.
8. Marina and floating homes
While not a major issue at this time, marina and floating home development
should be mentioned in this context as a potential future project within the
Town and/or Extra -Territorial Jurisdiction. Development standards for
marina and floating home construction, dry stack storage facilities for boats
associated either with or independent of marinas, is important to ,Plymouth
from both an environmental and economic standpoint. Resource protection
policies for marina development are addressed elsewhere in this section. The
Town may encourage the development of marinas and dry stack storage
Lwith
facilities at appropriate locations provided that such development is consistent
other Resource- Protection Policies as well as all. State and Federal
regulations. Floating home development is not considered to be an issue in
'
Plymouth at this point in time. At this time the Town does not feel the need for
creating more restrictive policies relating to marinas and floating homes.
9. Industrial impacts on fragile areas
Town policies related to industrial development impacts on fragile areas
should be consistent with other Resource Protection policies as well as general
'
policies addressing Resource Development and Economic and Community
Development.
10. Development of sound and estuarine system islands
A policy on the development of sound and estuarine system islands is not
applicable to Plymouth.
'
11. Restrictions on development within wetland loss and sea level rise areas
A Policy on the restriction of development within areas up to five feet above
'
mean high water that might be susceptible to sea level rise and wetland loss is
not presently applicable to Plymouth. See Storm Hazard section for further
discussion.
12. Upland excavation for marina basins
The Town encourages the continued study of development guidelines for
marinas for inclusion. At this time, upland excavation for marina basins
does not apply to Plymouth.
' 13. The damaging of existing marshes by bulkhead installation
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
When necessary, bulkhead installation should be conducted employing
appropriate construction and resource protection. techniques. Where
installation is required, development plans should consider every feasible
alternative to minimize the damage to existing marshes. Bulkhead
installation, however, is not a critical issue in Plymouth at this time. .
Policy alternatives eliminated during the planning process:
Based on CAMA requirements, the Planning Board shall list those policies
considered, but eliminated. The Planning Board does not see the need for
elimination of any of the above policies at this time.
Schedule for policy implementation by Town:
The Planning Board, m concert with input from the Town Staff and Officials,
shall outline a schedule for the implementation of the above policies.
B. Resource Production and Management Goals, Objectives and Policies
rThe Town is acutely. aware of the impacts of future land development on its existing resource
production base. The water. and waterfront represents a productive natural resource in Plymouth
' which must be recognized in the Plan's land use policies. Policies directed at resources such as
agriculture and forestry apply mainly to the Extra -territorial Jurisdiction of the Town, rather than
the Town proper.
1 Encourage sensitive resource management policies and implementation
techniques for productive agricultural lands in Plymouth and the Extra-
territorial Jurisdiction (ETJ).
a. Support State and Federal agricultural programs, where applicable, which
assist farming and aid in identifying prime agricultural lands in and
around Plymouth.
' b. Enhance the degree of land use controls on agricultural lands in order to
provide opportunities for Town or Extra -Territorial expansion and/or
development as dictated by the Plymouth Land Classification System.
c. Promote public awareness of agricultural Best Management Practices in the
Town and surrounding areas, while encouraging farmers to implement such
' practices to the benefit of their natural resource production activities.
d. Encourage the initiation of effort by the Agricultural Extension Service and
the Chamber of Commerce. to work with the locality to develop farm markets
targeted at benefiting local farmers.
' The Cox Company Goals, Objectives and Policies • VIII.11
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1992 CAMA Land Use Plan Update -Draft` Plymouth - North Carolina
e. Continue to promote use -value assessment as a means of preserving the
farming base and encourage farmers owning parcels of 10 acres or more to
apply for use -value assessment.
f.
Continue to support and amend alternative land use guidelines, such as
zoning and subdivision- regulations, which ensure that the subdivision of
agricultural land can be ' optimally achieved without adversely impacting
adjacent agricultural lands.
g.
Employ the Land Classification System to encourage and guide the location of
intensive land. development activities in areas of the Town and the Extra -
Territorial Jurisdiction which are currently served by public utilities (or may
be served in thefuture), while discouraging leap -frog subdivision of active
-agricultural lands in remote areas of the Town and/or Extra -Territorial
Jurisdiction.
r2.
Encourage forestry as a valuable natural resource industry and preserve and
protect the Town and Extra -Territorial Jurisdiction forest lands in areas as
dictated by the Land Classification Map.
a.
Support State and Federal forestry programs which assist Town (where
applicable) and Extra -Territorial Jurisdiction commercial forests and the
forestry industry.
b.
Enhance the degree of land use controls on commercial forest lands in order
'
to provide opportunities for Town or Extra -Territorial expansion and/or
development as dictated by the Plymouth, Land Classification System.
c.
Promote public awareness of forestry Best Management Practices in the area,
while encouraging the private forestry industry to implement such practices to
the benefit of their natural resource production activities.
d.
Future public improvements should be planned and financed using fiscal
mechanisms which avoid adverse tax impacts on the owners of prime forestry
lands where such lands will not directly benefit from the planned public
improvements.
e.
Continue to promote use -value assessment as a means of preserving the
forestry resource base and encourage owners of parcels of 20 acres or more to .
'
apply for use -value assessment.
f.
Continue. to support and explore alternative land use guidelines and
.
subdivision regulations which ensure that the subdivision of forestry land can :.
be optimally achieved without adversely impacting adjacent forestry lands.
The Cox Company Goals, Objectives and Policies 9 WII--12
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
g.
Employ the Land Classification System to encourageand guide the location of
intensive .land development activities in areas- of the Zbwn and Extra -
Territorial Jurisdiction which are served by public utilities and facilities,,
while discouraging leap -frog subdivision of active forestry lands in areas
without'Ibwn services.
imaintain
h.
Encourage forestry operators in the Extra -Territorial Jurisdiction to
vegetative buffers between cleared areas and major public
roadways.
i .
Encourage immediate replanting of areas within the Extra-lbrritorial
Jurisdiction cleared for timber, employing Town inspection staff to undertake
periodic reviews of, and produce reports on clearing activities.
'
3.
Support, encourage and protect the Zbwn's commercial and recreational
fishing and other wateribased resources and production activities.
a.
Commercial and recreational fishing resources and production activities,
including nursery and habitat areas, and trawling activities in estuarine
waters, are recognized as minor contributors to the economy of Plymouth. The
majority of the fishing activity is recreational.
b.
The consideration of detailed policies, strategies and implementation
programs designed to protect and enhance commercial and recreational
fishing activities in the Roanoke River should be actively pursued by the
Town.
c.
The Town may initiate studies which consider appropriate marina siting
criieria which serve to maintain and protect important nursery areas.
d.
The Town should actively support State efforts to reduce nutrient loading in the
Town's surface waters, which include consideration of more stringent
restrictions on nitrogen discharges and enhanced regulations controlling the
disposal of animal wastes.
e.
Continue to support and amend regulations which create incentives for private
development to preserve areas adjoining Primary and Secondary Nursery
Areas.
'
f.
Initiate a stud to review the need for the most appropriate location of
Y
additional public river access sites in the Town.
g.
Utilize the Plan's Land Classification System .to recognize and establish
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
' minimum protective buffers along waterways where adjacent lands have
soils and development constraints which create adverse environmental
' impacts.
h. In order to encourage the productivity of Plymouth aquiculture, studies should
be initiated which examine :opportunities for locally initiated land
development guidelines for freshwater runoff and fecal coliform pollution in
order to reduce the detrimental impacts on the Zbwn's estuarine waters.
Other Resource Production and Management Policies for Plymouth.
Pursuant to CAMA planning guidelines for Resource Production and
Management Policies, certain additional issues must be addressed in the
mandatory CRC approval process for the Land Use Plan Update: Some of the
following policies have lower priorities than those hereinabove described due
to the geographic location of Plymouth relative to some of the other areas
within the province of the Coastal Resource Commission. Notwithstanding, .
the following policies are deemed important to Plymouth and are adopted into
the Resource Production and Management policies of the community.
4. Mineral production areas
The mining of minerals in the community such as phosphate or peat is not an
issue since commercially important deposits. are not found in the immediate
area.
5. Off -road vehicles
The Town does consider off -road vehicles to be an issue of potential concern.
It is foreseen that regulations directed at controlling the use of off -road
vehicles will be required in the near future.
6. Residential, commercial and industrial land development impacts on any
resources
The relevant policies related to land development impacts on natural
resources are fully addressed in other policy sections of this document.
Policy alternatives eliminated during the planning process:
Based on CAMA requirements, the Planning Board shall list those policies
considered, but eliminated. The Planning Board does not see the need for
elimination of any of the above policies at this time.
Schedule for policy implementation by Town:
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
The Planning Board, in concert with input from the Town Staff and Town
' Council, shall outline a schedule for the implementation of the above policies.
C. Economic and Community Development. Goals, Objectives and Policies
Plymouth strongly supports the ongoing implementation of responsible economic and community
development projects throughout the area. Further, in light of the current economic downturn in
the national and regional economy, the Town's encouragement and active support of local
employment generating land uses is considered to be an important goal of the 1992 Land Use Plan
Update. Also of great concern and importance are "quality of life" issues such as adequacy of
' school systems and crime rate.
'
1. General Town goal for economic development:
The Town encourages and supports all types of economic development land
'
uses which can be shown to complement, and not adversely impact, the
existing demographic, economic and environmental base within Plymouth.
'
2. General Town commitment to provision of supporting services to economic
development:
'
The Town, including the Extra -Territorial Jurisdiction, is committed to
providing appropriate levels of public services, facilities and infrastructure
in support of economically and environmentally viable commercial and
industrial development.
H.
General locational and development characteristics for economic
'
development activities, including redevelopment:
a.
Encourage location of new commercial/retail uses in vacant commercial
buildings Downtown. .
b.
Encourage new residential development to take the form of infill in the
'
Downtown.
c.
Promote funding for Downtown revitalization in an effort to attract new
commercial development to the Central Business District.
d.
Continue to apply for funding for local housing improvements under the
'
Community Development Block Grant Program. Attempt to expand the local
contribution to increase the competitiveness of the application.
'
e.
Draft and adopt a Downtown Redevelopment. Plan organizing a methodology
and critical path for Downtown redevelopment.
The Cox Company Goals, Objectives and Policies * WIT L5

t
1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
f. Continue to support and fund development of affordable housing in the
Plymouth area.
g.
Encourage a variety of choice in existing neighborhoods through a balance of
'
preservation, rehabilitation and new development.
h.
Continue to ensure maximum possible enforcement of housing construction
and maintenance codes.
i .
The Town emphasizes the importance of locating new economic development
in and around the existing urban area where public infrastructure and
acceptable transportation systems already exist or where such infrastructure
and systems can be reasonably extended.
J.
The Town places priority on encouraging new economic .development which
'
provides employment -intensive opportunities for the local work force and, in
particular, offers viable job opportunities for the youth and unemployed of
Plymouth.
'
k .
The Town supports private ownership of housing units and will begin a study
directed at promoting this ownership through various methods and sources of.
funding assistance.
I.
The Zbwn encourages the redevelopment and revitalization of existing
underutilized industrially and commercially developed areas, placing an
'
emphasis on (1) improving those areas which currently exhibit deleterious
environmental and visual impacts and (2) increasing development densities
on properties which are capable of supporting higher land use intensities
without being deleterious to the environment and public infrastructure. In an
effort to achieve these goals, the Town will, when possible, maintain active
contact with absentee land owners.
In .
Continue to enhance pedestrian interaction with the Roanoke waterfront.
Continue to apply for funding dedicated to enhancement of waterfront area
and promote public interaction by sponsoring and/or supporting periodic
festival/market events such as Riverfest.
4.
Commitment to jurisdictional, regional, State and Federal economic
development activities:
■ a. The Town will continue to provide leadership for commercial and industrial
growth by supporting local, regional and State public interest groups
concerned with economic development.
The Cox Company Goals, Objectives and Policies • WIT 16

1992 CAMA Land Use Plan Update -Draft
Plymouth • North Carolina.
b. Continue to support the Chamber of Commerce in their efforts to market the
Town's retail and industrial sites.
c. Examine possible development opportunities within the Extra -Territorial
Jurisdiction. Study opportunities for potential future annexation to enhance
the tax base and expand the range of land use available in the Zbwn. Draft
and adopt Annexation Plan in conjunction with Land Development master
scheme as shown on the Land Classification Map. Pursue expansion of
existing Extra -Territorial Jurisdiction based on development trends.
d. Continue to support and provide public information pertaining to groups such
as the Albemarle Commission.- -the Regional Development Institute; and the
Small Business Institute at East Carolina University, which provide
assistance to new and small businesses. and to economic development
projects.
e.
Constitute aTown-appointed Committee on Economic Development to actively
' .
solicit appropriate economic development and tourism activities which
emphasize promote the objectives and policies of the 1992 Land Use Plan.
tf.
The Town remains committed to State and Federal programs in planning
areas related to community and economic development, including erosion
'
control, public access, and highway improvements.
5.
Tourism:
a.
Continue to study and pursue programs aimed at promoting and enhancing
levels of tourism and tourism -related development opportunities in the Zbwn.
'
b.
Support and promote the Downtown and riverfront areas as potential locations
for seasonal/annual festivals, markets and recreational activities.
'
c .
Continue to support the activities of local and regional public interests groups
responsible for promoting tourism in the'lbwn.
d.
Develop an annual calendar of all special events to be held throughout the
Town. Publicize monthly listing of events in appropriate local, regional and
■
national publications.
6. Coastal and estuarine water beach access:
' a. Enhance opportunities in the Town for Roanoke riverfront access and
continue to undertake active efforts to increase such access to public trust
' waters.
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1992CAMALand Use Plan Update -Draft Plymouth • North Carolina
b.
Methods of attracting the Town's permanent and seasonal population to the
pedestrian amenities along the Roanoke should be studied and pursued.
for locations
c.
Estuarine water access must comply with State standards access
as expressed in 7M .0303. These access areas should be studied and indicated
on maps which could be incorporated into the Land Use Plan.
d.
Study the feasibility of identifying, selecting and developing additional sites
'
for public access on the Roanoke River.
e.
Continue to undertake necessary efforts with the State Division of Coastal
'
Management and Office of Water Resources to obtain public trust water access
assistance in funding the planning, land acquisition and site development of
these improvements.
7.
Land use trends and the management policies related to future Town/Extra-
Territorial Jurisdiction growth:
a.
Employ the Land Classification Map as a means of selecting and designating
appropriate areas of the Zbwn for future commercial, industrial and other
economic development land uses.
b.
Utilize the Land Classification Map at the Board level to guide growth -related
land use decisions in areas most conducive to commercial and industrial
development, while employing the Map to discourage intensive economic
'
development activities in remote areas of the Town which are not currently
served by adequate public facilities and public access.
C.
Continue to provide for the orderly growth and economic viability of land
development in the Town by establishing reasonable land use guidelines
which ensure the public's health, safety and general welfare.
'
d.
Continue the use of zoning as a mechanism to select, designate, and reserve
optimal economic development sites for future industry and commerce.
e. Continue to study the most appropriate means by which to link land use
density requirements to the Town's Land Classification Map.
f. Continue to utilize zoning practices to establish minimal, but appropriate,
controls for the location, density and standards for all types of land uses.
g. Discourage the development of any future landfill operations in Plymouth or
the Extra -Territorial Jurisdiction.
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1992 CAMA Land Use Plan Update Draft Plymouth • North Carolina
8. Quality of life issues in the Town:
a. Schools
' • One of the primary reasons that young families continue to be drawn to
other jurisdictions is the perceived difference in the educational quality
between school districts. The Town and County should continue to make
concerted efforts to aid in the improvement of existing school facilities.
• A program of adult education should be introduced to the local school
curriculum. The goal of this program would be to introduce new
vocational/technical training, each of which would help to stimulate
economic development.
• Teacher training programs should continue to be held in the school
systems. These programs are designed to update the educators on current,
' "state of the art" teaching methods.
b. Police Protection
' Establish support a 911 system which will be used jointly b the police,
Estab s and pP Y J Y Y
fire and rescue services.
• Encourage the organization of Community Watch programs. Citizens
should be periodically educated on crime prevention and crime awareness
' in the Town.
• Pursue possible additional financial and personnel support targeted at the
police/fire/rescue services.
• Institute a Drug Task Force to help identify, rehabilitate and educate those
' Town citizens with drug problems.
c. Support the development and enhancement of urban waterfront areas, while
' ensuring such projects are compatible with all local, State and Federal
environmental requirements.
d. Continue to support and amend existing subdivision regulations so as to
preserve the rural character of the Town's outlying areas.
e. Provide active leadership in ensuring that NCDOT roads and streets in the
Town are adequately maintained and upgraded in a fashion consistent with
the 1992 Plan's land use objectives.
'
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1992 CAMA Land Use Plan Update -Drab` Plymouth • North Carolina
9. Other Economic and Community Development Policies for Plymouth.
Pursuant to CAMA planning guidelines for Economic and ' Community
Development Policies, certain additional issues must be addressed in the
mandatory CRC approval process for the Land Use Plan Update. Some of the
following policies have lower priorities than those hereinabove described due
to (a) the prevailing attitudes of the Town's citizenry and related political
influences, and (b) the geographic location of Plymouth relative to some of the
other areas within the province of the Coastal Resource Commission.
Notwithstanding, the following policies are 'deemed important to Plymouth
and are adopted into the Economic and Community Development Policies of
the community.
• Channel Maintenance
The maintenance of channels does not currently apply to the Town of
Plymouth.
• Energy Facility Siting
The siting of OCS energy facilities is not an issue with the Town at this point
in time. The Town does not specifically encourage public or private projects
related to energy facility siting and development.
Policy alternatives eliminated during the planning process:
Based on CAMA requirements, the Planning Board shall list those policies
considered, but eliminated. The Planning Board does not see the need for
elimination of any of the above policies at this time.
Schedule for policy implementation by Town:
The Planning Board, in concert with input from the Town Staff and Town
Council, shall outline a schedule for the implementation of the above policies.
D. Public Participation Goals, Objectives and Policies
Public participation provided the cornerstone for the 1992 Plan Update. The Town Council believes
that the greatest value of citizen participation in the planning process is that it allows each member
of the community the opportunity to influence governmental decision making. In order for the
1992 Land Use Plan Update to be an effective policy document, it must accurately represent the
ideas, attitudes, and concerns of the residents. All meetings held by the Planning Board were
advertised by local and regional news media and were open to the public. Dates and minute
summaries are included in Appendix I. By preparing a Land Use Plan Update which is integrally
The Cox Company Goals, Objectives and Policies • WII--20

1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
tied to its precedent goals, objectives and policies, the old adage that "a locality can be no better than
it aspires to be is underscored.
In this regard, an intelligent and comprehensive plan cannot be structured without the direction of
the locality's vision for its future. The Board has recognized that this vision must come from the
residents of Plymouth. To achieve this end, at the outset of the planning process, the Planning
Planning Board designed a Public Participation Plan setting forth the specific methodology to be
used by the Town in its effort to achieve this essential representation of its citizens.
The previously adopted Public Participation Plan and other documentation related to the Town's
ongoing citizens' involvement strategies are included in the Appendix of this document.
1. Planning Board:
The Planning Board was officially designated by the'Ibwn Council as the
lead representative for obtaining citizen input to the planning program and
' reporting that information to the Mayor and Town Council. In this effort, the
Planning Board was responsible for investigating land use issues, analyzing
past Town planning policies, preparing public news releases, organizing
citizen meetings, conducting work sessions to discussions policy options,
presenting alternative goals and objectives to the citizens, and synthesizing
the community input into a consolidated set of goals, objectives and policies
for adoption into this document.
2. Public notification of the planning process:
' Duringthe preliminary stages of the 1992 Land Use Plan Update process, all
P rY g
Town citizens were provided periodic official notices that the planning process
was underway. These notices were intended to encourage the citizens to
express their. attitudes and feelings regarding land use issues in the Town.
The public was informed of when and where they could voice their concerns.
In most cases, the Planning Board reserved time on its agenda at each regular
monthly meeting to obtain citizen comments. As the Land Use Plan process
matured, periodic. updates which outlined completed and pending tasks and
policy -related decisions were made available to the citizenry for ongoing
review.
t3. General public information on the planning process:
The Planning Board drafted and distributed regular official notices of the
' Land Use Plan Update process via the Roanoke Beacon. A reporter from. these
• publications was periodically informed by the'fbwn Manager and/or Town
Planner of the progress and status of the Land Use Plan Update. The local
reporters were encouraged to act as "partners" with the Town officials in the
conveyance of information to the public.
The Cox Company Goals, Objectives and Policies 9 WII--21

' 1992 CAMA Land Use Plan Update Drat
Plymouth • North Carolina
The news media was informed of the time and location of the monthly
Planning Board meetings and was encouraged to promote citizen attendance
and participation. In addition, the media was asked to prepare "focus"
articles aimed at the Land Use Plan Update process.
4. Policy Critique Questionnaire:
The Land Use Planning Board was asked to complete a "Policy Critique
Questionnaire." This document, prepared by the Town's consultants,
provided a format for the examination of and revision to the 1986 Land Use
Plan's policies and implementation recommendations. This "Policy
Critique Questionnaire" was subsequently distributed to the Board of
Commissioners for use in their evaluation and formulation of new policies
for inclusion in the Plan Update.
5. Public Attitudinal Survey:
Citizen involvement in the planning process was solicited via a "Public
Attitudinal Survey and Citizens' Questionnaire." This questionnaire was
designed by the Town's consultants and was thoroughly reviewed by the
Planning Board and Town Staff prior to its distribution. The survey was
printed with large typeface in a concise tabloid format, ensuring ease of
distribution and use by Town residents. This survey document was
particularly useful in allowing the residents to register their individual
concerns pertaining to the character, degree and pattern of population growth
as well as future land use issues for the Zbwn.
Indirect distribution of the questionnaire was made through the local news
media. Also, the questionnaire was distributed. to local merchants as well as
through interest groups as described below. A total of 1000 surveys were
distributed. The general findings and statistical results of this survey are
presented in the Appendix of this document.
6. Participation of public interest groups:
In an effort to reach the greatest audience, representatives from various public
interest groups were asked to regularly attend Planning Board meetings and
report back to their membership.
'
7. Synthesis and incorporation of public participation input into 1992 Land Use
Plan Update:
The Town of Plymouth officials understood the great value and necessity of
comprehensive public participation in the planning process. Community
The Cox Company
Goals, Objectives and Policies • WII-22
11

1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
participation was- viewed as an opportunity which should continue through
' every phase of the Land Use Plan Update and subsequent Town decisions
related to land use. Through - the implementation of this process, the Board
feels that a representative profile of the Town's constituency has aided in
formulating a clear and attainable vision for the future of Plymouth.
In summary, the primary purpose of this Public Participation Plan, is to
inform, educate and involve the citizens as fully as possible in matters related
to land use planning in Plymouth. In pursuit of this purpose, this participation
process was intended to remain flexible in format and execution, while
1 giving every Plymouth citizen the opportunity to take part in this democratic
process.
8. Ongoing public participation in the Zbwn's governmental planning activities
and land use review process:
The Town is committed to ensuring that all citizens have the opportunity to
continue to participate in the planning process subsequent to the adoption of the
1992 Land Use Plan. Zb this end, the following policies and strategies will be
carried out by the Town:
a. Official notification of all Town Planning Board hearings involving land
use issues will be placed in the local media.
b. The Town Staff will provide the local media with public interest information
' to assist and ensure the preparation of accurate and timely articles
concerning land use, economic development and community -related issues.
' c. The Town will establish appropriate study committees, on a case -by -case
basis, to further investigate evolving land use issues as well as other policy
directives as outlined in the 1992 Land Use Plan.
E. Storm Hazard Mitigation, Post -Disaster Recovery and Evacuation Planning Goals,
Objectives and Policies
Storm hazard mitigation policies for Plymouth are a mandatory requirement of the Coastal Area
' Management Act and are included in the 1992 Land Use Plan. As related to contemporary land
use issues in Plymouth, CAMAs primary aim in establishing these policies is to ensure that the
Town government fully recognizes the need to promulgate .reasonable guidelines for land
development so that the risk of damage to property and the threat of. harm to human life from
coastal storms is kept to a minimum level.
The Town Council fully recognizes that Plymouth faces the potential threat of major storms.
While there has been a substantial reduction in the overall frequency and severity of significant
The Cox Company Goals, Objectives and Policies • WII--23

' 1992 CAMA Land Use Plan Update -Draft Z Plymouth • North Carolina
coastal storms over the past several decades, this does not diminish the reality of the resulting
havoc when the long predicted "big one" finally, but predictably, arrives.
Although Plymouth does not have the direct coastal exposure of many other CAMA communities,
the Town's estuarine areas are considered to be potentially threatened by hurricanes and tropical
storms. The 1986 Land Use Plan included a Storm Hazards Planning and Mitigation section as
well as a Post -Disaster Reconstruction Plan. These sections will be updated as part of the 1992
1 Land Use Plan.
In preparing the updated policies for the 1992 Land Use Plan, the 1986 Land Use Plan studies were
thoroughly reviewed in the context of (a) updated CAMA policies for storm hazard mitigation and
(b) its application to this document. While not specifically presented in the format of the new
CAMA policy guidelines, the 1986 studies were found to be consistent in most areas with the
' recently amended CAMA code and is referenced herein as being the source of the most current and
competently researched plan of action to date on this issue. The 1986 Land Use Plan presents
considerable background data which remains relevant, applicable and, to a limited extent, is
hereinafter incorporated by reference.
For storm hazard management and planning purposes, there are three categories of impacted land .
in Plymouth which must be considered in preparing policies: (1) Areas of Environmental
Concern, (2) areas subject to flooding, and (3) areas with highly erodible soils. The AECs in the
Town are defined as public trust areas, and estuarine waters and shorelines. Areas which are
subject to flooding generally adjoin the AECs. Floodprone areas are mapped by the Federal
Emergency Management Agency; these areas being graphically depicted on official floodplain
maps which are on file at the Office of Emergency Management. Areas with highly erodible soils
are defined on the soils maps of the Soil Conservation Service.
1'. Coastal Storm Hazard Mitigation Planning Activities and Studies:
' a. Effects of coastal storms on Plymouth:
Of the many storm related hazards associated with coastal communities,
Plymouth is realistically subjected to three: 1) high winds associated with
hurricanes and tornadoes, 2) heavy rains causing flooding in lowlying areas
' primarily associated with the Roanoke, Conaby and Welch Creeks, and 3)
erosion.
' 1) , High Winds
High winds area most frequently associated with the actions of hurricanes
and tornadoes. To be classified as a hurricane, sustained winds must reach a
minimum speed of 73 miles per hour. Winds are typically dissipated upon
landfall. Being located inland relative to many other CAMA communities
' the Town has a reduced potential danger of direct oft -water winds. Plymouth,
however, has been subject to extreme hurricane winds in the past, and this
hazard remains, potentially, Plymouth's greatest.
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1992 C.,ULALand Use Plan Update Draft
Plymouth • North Carolina
2) Flooding
Flooding is limited to areas located adjacent to' existing drainage channels.
Plymouth contains three major water sources: 1) the Roanoke River, 2)
Conaby Creek and 3) Welch Creek. On average, these areas may reach
specified flood levels every 1 to 2 years. -The amount of development which has
occurred in areas deemed as 100 year floodplain is minimal. The potential
for human or structural loss in the event of a flood is minimal.
3) Erosion
'
A significant consequence of hurricanes, tornadoes and flooding is erosion.
Much like flooding it is unlikely that Plymouth would sustain significant
human of structural loss resulting from erosion. Current ,development
patterns in the Town are located away from areas most susceptible to erosion
damage.
b. Composite Hazards Map:
The County of Washington, of which Plymouth is a part, is currently updating
'
and amending their Multi -Hazard Plan. The Plan is based on the most
current information available including NFIP maps and data, the Eastern
N.C. Evacuation Study, and AEC data. The County of Washington and all
incorporated areas. within the County also utilize the Hurricane Evacuation
Plan as amended and updated. The Town of Plymouth has examined each
hazardous area in terms of type of potential storm hazard and the relative
severity of risk presented at that particular location.
'
cExisting Land Use Inventory:
In conjunction with the existingland use analysis for the 1992 Land Use Plan,
the Town' conducted an inventory for each of the most hazardous areas for the
purpose of determining the amount of existing development at risk for.each
area. The impact of this analysis is achieved by overlaying each hazard area
shown on the Composite Hazards Map upon the updated Existing Land Use
Map. A discussion of this impact is found in Chapter 3 of this document. .
' 2. Coastal Storm Mitigation Policies:
Based on the preceding analysis, the'Ibwn has incorporated and adopted the
following Coastal Storm hazard mitigation policies into the 1992 Land Use
Plan:
' a. Policies related to high wind, surge, flooding and erosion are:
The Car Company Goals, Objectives and Policies • WII--25

I
' 1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
• The Town supports the enforcement of the North Carolina Building Code
construction standards for wind -resistive factors and design wind velocity.
• The Zbwn, through its building inspection activities, will periodically
review and report on violations of the Building Code related to wind
standards, including matters related to the tie -down of mobile homes.
' • The Town remains supportive of the hazard mitigation elements of the
National Flood Insurance Program.
The Zbwn remains supportive of the enforcement of CAMA and 404
Wetlands permitting processes in areas potentially susceptible to flooding.
• The Town remains supportive of the Washington County Multi -Hazard
Plan as amended and updated.
• The Town remains supportive of the Washington County Hurricane
Evacuation Plan as amended and updated.
' b. Policies related to discouraging development in Most Hazardous Areas:
• The Town will continue to discourage development, especially high density
or large structures, in its most hazardous areas.
• The Town remains supportive of CAMA permitting processes for
development standards for shoreline stabilization and drainage along the
Town's estuarine shoreline areas.
• The Town utilizes existing subdivision regulations supportive of and
complementary to State and Federal policies related to Most Hazardous Areas.
• The Town utilizes the.existing zoning ordinance which requires location of
new development in accord with the requirements and limitations set forth in
' the County, State and Federal regulations as they apply to natural hazard
areas.
' c. Policies related to land acquisition in Most Hazardous areas:
• The Town, at this time, does not intend to commit local funds to implement
any widespread public acquisition of land in the Most Hazardous Areas,
provided that certain areas may be deemed appropriate for purchase where
specific circumstances dictate.
' d. Policies related to citizen evacuation:
The Cox Company Goals, Objectives and Policies • WIII--26
1

' 1992 CAbiA Land Use Plan Update -Draft Plymouth • North Carolina
• The Town continues to support Washington County's Multi -Hazard Plan
and Hurricane Evacuation Plan, as amended, which outlines extensive
procedures for efficient and safe evacuation of the .Town citizens.. These
documents are currently used as the primary guidance resource for Town's
evacuation efforts.
• The Town supports limited development density in Most Hazardous Areas
so as to decrease the number of people needing to be evacuated.
• The location and form of new development must fit within the framework
of the existing subdivision and zoning documents in the Zbwn.
• The Town encourages the. adequate planning, development and use of
' motels, condominiums and other large-scale residential structures for
adequate and sufficient emergency shelter for their occupants and residents.
' The Town supports a policy of ensuring that new public buildings can be
adequately prepared and used as emergency evacuation shelters.
• The Town continues to support ongoing refinements and participation in
the regional evacuation planning process currently drafted by the County of
Washington.
3. Post Disaster Reconstruction Plan and Policies:
' Post disaster reconstruction policies are required by CAMA as part of the 1992
Land Use Plan in order to guide new development and redevelopment during
the reconstruction period following a natural storm disaster. In this regard,
' the Town leadership's major goal is to ensure that, as reconstruction activities
are planned, programmed and implemented, Plymouth will be less
vulnerable to coastal storms than it was before the disaster.
a . Previous Town planning studies related to post disaster recovery:
• The post disaster reconstruction program the rfbwn shall be generally
guided by the Washington County Multi -Hazard Plan and Hurricane
Evacuation Plan as amended and adopted.
• The Town continues to support the generalized policies of the Washington
' County Multi -Hazard Plan and Hurricane Evacuation Plan related to
establishing priorities and staging and permitting of reconstruction repairs
following a major natural storm disaster:
Priority 1: Repair and rebuild essential service facilities such as
electricity, water, and sewer.
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Plyi, outh • North Carolina
Priority 2:. Repair other public facilities as necessary for. shelter.
Priority-2: Use a triage (worst damage last) approach to staging and
permitting the private sector reconstruction effort.
Update Town policies governing the support, direction and management of
post disaster recovery activities:
• The Board of Commissioners shall appoint a Post Disaster Recovery Task
Force before any major storm occurs for the purpose of to overseeing the
potential reconstruction process as well as establishing any recovery -related
policy issues which might arise after a given storm disaster.
• The Emergency Preparedness Coordinator shall serve as the chairman of
the Post Disaster Recovery Task Force and shall be -directly responsible to the
Board of Commissioners.
• The Town's Post Disaster Recovery Task Force shall be responsible for the
.establishment of a schedule for staging and permitting repairs, including the
imposition of construction moratoria. Any moratorium shall be in full accord
with the Task Force's established priorities assigned to the restoration of
essential services, minor repairs, major repairs and/or new development
based on the impacts of the particular storm.
• Upon adoption of this Plan, the Emergency Preparedness Coordinator and
its Post Disaster Recovery Task Force shall be directed to convene to review,
update and reformulate a set of generalized action plans, logistical structures
and management strategies to be used for .any given potential post disaster
recovery program, including (1) reconstruction scheduling and priority
setting routines, (2) public information dissemination, (3) damage
assessments and accounting systems, (4) appropriate coordination and
communication links with State and Federal agencies, (5) coordination of
private and pubic inquiries to appropriate sources, and (6) assistance
programs as may be deemed appropriate. The results of this study shall be
presented to the Town Council and other appropriate agencies for review and
adoption.
c. The Town supports the establishment of general guidelines related to the long
term recovery and restoration process subsequent to natural disaster.
• Reconstruction shall be implemented under at least the minimum
standards in effect prior to the given storm.
• Structures not conforming to minimum standards and storm hazard
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
mitigation policies which were. destroyed must be. redeveloped to those
' standards and policies.
• The County Planner shall serve as the overall Emergency Coordinator for
intermediate to long term post disaster recovery activities. The Chairman
shall delegate the oversight of the reconstruction and recovery effort as well as
implementation of the long term recovery plan to appropriate personnel.
• Upon receipt of sufficient information from the Post Disaster Recovery
P P
Task Force pertaining to any given storm disaster, the Emergency
' Coordinator shall prepare and recommend a long term post disaster recovery
plan for adoption by the Town Council. The plan shall include, but not be
limited to, the following: (1) development moratoria, (2) repair and
reconstruction priorities, (3) repair and reconstruction phasing and
scheduling, (4) fiscal and economic impacts of the plan, 5) emergency
regulations governing all facets of land use and land development
permitting, (6) repair and/or replacement of public infrastructure, (7)
relocation of pubic infrastructure to less hazardous areas, and (8) setting
timeframes and schedules for planning and redevelopment activities.
• The Emergency Coordinator shall establish a Damage Assessment
Committee. The Damage Assessment Committee shall conduct surveys of
damaged structures for the purpose of estimating the physical and economic
impacts of storm damage. Damage classification. criteria shall be in terms of
.the following:
Destroyed: Repairs costing more than 80% of value.
Major. Repairs costing more than 30% of value.
Minor. Repairs costing less than 30% of value.
Habitable: Repairs costing less than 15% of value.
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Chapter IX.
Land Classification System
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
1
CHAPTER IX:
Land Classification System
In its simplest form, the Plymouth Land Classification System (PLCS) is a map which attempts to
' visually, portray the Town's "vision for the future." The PLCS is achieved through an extensive
study process during which the physical, social, economic and environmental realities of the
Town are carefully examined. The Land Classification Map graphically outlines and assigns
recommended land use categories to individual geographical areas comprising the Town. The
PLCS map is intended to serve as a general guideline to assist the Zbwn Council in implementing
the adopted Land Use Plan's policies and strategies. In theory, the PLCS is one which:
1. Best accommodates the 4bwn's land use goals, objectives and policies;
' 2. Is capable of implementation within the context of satisfying both (a) the
demands of the marketplace, and (b) the ability of the 4bwn to responsibly supply
municipal service and infrastructure;
3. Provides positive community -wide benefits with the least negative impact
on the existing physical, social, political and economic environment
4. regulatory Satisfies the re requirements of the State's Coastal Area
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Management Act (CAMA); and
5. Resolves the input o Ibwn citizens via the adoption o the PLCS map by the
p f P f
Town Council.
' By graphically delineating specific land use classifications, the'Ibwn Council is able to apply the
most appropriate planning policies to specific geographical areas within the Town. Thus, the map
' is to be employed by the'lbwn Council to provide thoughtful guidance to future land use activities
and development based on its commonly held "vision," as defined by this Land Use Plan. The
North Carolina CAMA regulations state:
"The land classification system provides. a framework to be used by local
governments to identify the future use of all lands. The designation of land
rclasses allows the local governments to illustrate their policy statements as to
where and to what density they want growth to occur, and where they want to
conserve natural and cultural resources by guiding growth."
The PLCS is intended to be. supported, complemented and implemented by growth management
"tools" which are potentially available to the Town. via State enabling legislation. These "tools"
include zoning, subdivision, environmental controls and other locally -adopted growth
management mechanisms which serve to implement local, State and Federal laws. However, in
the strict sense of the term, the PLCS is not a regulatory mechanism.

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1992 CAMA Land Use Plan Update -Draft '
Plymouth - North Carolina
Under the CRC's administrative rules, the Plymouth Land Classification System• may include
seven separate land use classes: developed, Urban Transition, Limited Transition, Community,
Rural, Rural with Services, and Conservation. At the.Town's option, the Town Council can further
subdivide these land use classes into more specific subclasses. If this is done, the subclass must
closely relate to the precepts of the original major class. While, not all of the seven major land use
classes will necessarily apply to Plymouth, the classification system --commonly referred to as the
7-Tiered System --provides a clear, uniform process by which the `lbwn officials and its citizens
can best make decisions concerning future land development and environmental issues.
In assessing the optimal organization of the Plymouth Land Classification System, the planning
process sought to focus on the statutory requirements of the Coastal Area Management Act, which
states that the classification should "give particular attention to how, where and when development
of certain types and intensity will be encouraged or discouraged.". For example, CAMA
recommends that:
"Local governments are also encouraged to make some distinction
between urban transition areas, which are intended to reflect intensely
developing areas with the full range of urban services to be supplied, and limited
transition areas that are less intensely developed, may have private services and
are frequently located in a rural landscape."
"Urban land uses and higher intensity uses which presently require the
traditional urban services should be directed to lands classified developed. Areas
developing or anticipated to develop at urban densities which will eventually
require urban services should be directed to lands classified transition. Low
density development in settlements which will not require sewer services.should
be directed to areas classified as community. Agriculture, forestry, mineral
extraction and other similar low intensity uses and very low density, dispersed
residential uses should be directed to lands classified rural. Generally, public or
private water or sewer systems will not be provided in areas classified rural as an
incentive for intense development."
With respect to the Land Classification Map for Plymouth, the seven land use categories are
defined, as follows:
1. Developed Areas:
As defined by CAMA, the purpose of the Developed Areas class is to provide for continued intensive
development and redevelopment of existing cities, towns, and their urban environs. Areas of the
Town meeting the intent of the Developed Areas classification are currently urban in character
where minimal undeveloped land remains and have in place, or are scheduled for the timely
provision of, the usual municipal or public services. Land designated as urban in character
includes mixed land uses such as residential, commercial, industrial, and other uses.at high to
moderate densities. Public services include water, sewer, recreational facilities, streets and
roads, police and fire protection. In some instances a Developed Area may not- have all the
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1992 CAM4 Land Use Plan Update -Draft t Plymouth • North Carolina
traditional urban services in place, but if it otherwise has a "developed" character and is scheduled
for the timely provision of these services, it. still meets the intent .of the Developed Area
classification. Areas developed for predominantly .residential purposes meet the intent of this
classification if they exhibit:
a density of 3 or more dwellings per acre; or
• a majority of lots of 15,000 square feet or less, which are provided or scheduled
to be provided with the traditional urban services, or
• permanent population densities which are high and seasonal populations that
may swell significantly.
The Town, at its option, may subdivide the developed class into subclasses. Developed/multi-
family residential, Developed/single family residential, Developed/commercial and
Developed/industrial are examples. This further refinement of the Developed Area class will be
helpful in future years when Plymouth elects to impose controls over the location of certain uses
which may not be fully compatible with each other. For example, future policies may stipulate that
heavy industry and low -density residential housing should not be located on adjacent parcels. In
such case, then a distinction on the Land Classification Map between Developed/industrial and
Developed/single-family residential would provide the Town Council with a means of more
responsibly, guiding the location of these potentially incompatible land uses.
In separating the Developed Area class into future subclasses, the Town should discuss how, when
and where, it will provide the services necessary to support the unique needs of the urban area. In
summary, the Developed Area class is designed to illustrate urban intensity development and the
public facilities and services necessary to support it. This class should be applied to_ existing cities
and towns and intense development within the extraterritorial planning jurisdictional areas
containing intense urban development requiring urban services.
The developed area of Town includes the downtown area, the densely populated "Old Plymouth"
which is in the middle of town, the Still Acres, Riverside and Creekside subdivisions and Plumbee
Court on the East end of Town. The developed class also applies to the the Liverman Heights
Subdivision and the Paylor Court Project on the South end and the Little Richwood Subdivision and
Country Club Village area on the West end.
2. Urban Mansition
The purpose of the Urban Transition class is to provide for future intensive urban development on
lands that are suitable and that will be provided with the necessary urban services to support
intense urban development.
Town geographical areas meeting the intent of the Urban Transition classification can be
categorized as either (a) presently being developed for urban purposes or (b) will be developed
within the next five to ten.years to accommodate anticipated population and urban growth. These
Urban Transition areas are in, or will be in an evolving, or "transitional," state of development
going:from lower intensity uses to higher intensity uses and, as such, will eventually require
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1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
urban services to be supplied by either the Town or .incorporated communities. Examples. of areas
defined by CAMA . as meeting the intent of this class are lands included within municipal
extraterritorial planning boundaries and areas being considered for annexation by incorporated.
communities.
Urban Transition areas in Plymouth will provide lands for intensive urban growth when lands in
the Developed Areas class are not available. Urban Transition lands must be able to support urban
' development by being generally free of physical limitations and be served, or readily served, by
urban services. Urban development includes mixed land uses such as residential, commercial,
institutional, industrial, and other uses at or approaching high to moderate densities. Urban
' services include water, sewer, streets and roads, police and fire protection that will be made
available at the time development occurs or soon thereafter.
In choosing land for the Urban Transition class, CAMA regulations indicate that such land
should not include the following:
' "Areas with severe physical limitations which would make the provision
of urban services difficult or impossible, lands which meet the definition of
conservation, lands of special value (unless no other alternative exists), such as
productive and unique agricultural lands, forest lands, potentially valuable
mineral deposits, water supply watersheds, scenic and tourist resources including
archaeological sites, habitat for. important wildlife species, areas subject to
frequent flooding, areas important for environmental 'or scientific values, lands
where urban development might destroy or damage natural systems or processes
of more than local concern, or lands where intense development might result in
undue risk to life and property from natural or existing manmade hazards."
Further, CAMA stipulates that "even though AEC standards occasionally permit urban transition
' type development on a lot by lot basis within. the various AECs, this classification should generally
not be applied to any AEC."
:areas that are predominantly residential meet the intent of the Urban Transition class if:
they are approaching three dwelling units per acre, or
• a majority of the lots are 15,000 square feet or less and will be provided with
essential urban services to support this high density development, or
• are contiguous to existing developed municipal areas..
The urban transition area of Plymouth includes the new Roanoke Shores Subdivision, a section on
the West Side of Rankin Lane (north of the train tracks and the west side of Wilson Street
' extension.
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3. Limited M-ansition Areas,
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Plymouth • North Carolina
As defined by CAMA, the purpose of the Limited Transition class is to provide for development in
areas of Plymouth that will have some services, but are suitable for lower densities than those
associated with the Urban Transition class, and/or which are geographically remote from
existing towns and municipalities. Town areas meeting the intent of this class will experience
increased development during the current 5-year planning period. The Limited Transition: Areas
will be in a state of development necessitating some municipal infrastructure, facilities, and/or
services. As opposed to Urban Transition Areas; these areas are of modest densities and are often
suitable for the provision of closed water systems rather than individual wells.
Within Plymouth, geographical land which is classified Limited Transition will provide
"controlled development" with services, but may not be applied on lands that are suitable for
traditional high intensity urban development normally associated with sewers or other services.
The Limited Transition lands may possess physical limitations or be applied to environmentally
sensitive areas of the Town near valuable estuarine waters or other fragile natural systems.
Sewers and other services may be provided because such services are already in the area or
readily available nearby, because the lands are unsuitable for septic tanks or the cumulative effect
of septic tanks may negatively impact significant public resources.
The Limited Transition class is intended for predominantly residential development with
densities of three units per acre or less, or in development with the majority of lots 15,000 square
feet or greater. In many areas, lower densities would be necessary and should be considered.
Clustering or development associated with Planned Unit Development may be appropriate in the
Limited Transition Class. Areas which meet the definition of the Conservation class should not be
classified Limited Transition.
CAMA guidelines recognize that due to its very nature, the Limited Transition land classification
may be controversial because it forces the locality to "pick" between potentially incompatible land
development and conservation issues. As such, CAMA requires that if a local government chooses
to implement this class, it shall describe the circumstances making thisclassification necessary
and shall also describe how this class will help the local government achieve both its economic
development and natural resources protection policies. This discussion shall include statements
' as to why lands included in this classification are appropriate for development which necessitates
the provision of services.
As sewer and other services become more widespread in Plymouth and the extraterritorial
jurisdiction, they could potentially be extended into service areas that are not suitable or conducive
for high density urban development. The use of such services generally increases environmental
protection requirements in these areas if the density of development remains relatively low. The
' Limited Transition class is intended to provide for appropriate moderate densities of development
with the benefits of both urban services and sound environmental protection guidelines. However,
the reliability of services, such as sewage treatment systems, is critical to the appropriate
development of these areas. If the Town -and its extra -territorial jurisdiction intends to allow the
private provision of urban services, such as sewage systems and garbage collection, then the Town
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
should require special -assurances that these private services will reliably protect the public
' resources and avoid unnecessary public expenses.
Both the Urban Transition and Limited Transition classes are designed to illustrate emerging
' and developing areas where some appropriate level of services are required.
The Limited Transition area in Plymouth is primarily located near Ken Trowbridge Road. The
Town expects development in this area because the road leads to Weyerhaeuser and this company
has a five year expansion plan in progress.
4. Community Areas
The purpose of the Community Areas class is to provide for clustered, mixed land uses at low
' densities to help meet the housing, shopping, employment and other needs in the rural areas of
Plymouth.
The portions of the Town meeting the intent of the Community Areas class are areas presently
developed at low densities which are suitable for private septic tank use. These areas are clustered
residential and/or commercial land uses which provide both low intensity shopping and housing
opportunities and provide a local social sense of a "community." Very limited municipal type
services such as fire protection and community water may be available, but municipal -type sewer
systems are not to be provided as a catalyst for future development. In some unusual cases, sewer
systems may be possible, but only to correct an existing or projected public health hazard.
Segments of the Town and extra -territorial jurisdiction, developed in a low density fashion in
small, dispersed clusters in a larger rural landscape with very limited or no water and sewer
services meet the intent of this Community Areas class.
The Coastal Area Management Act stresses that the Community Areas class applies to clustered
low intensity development in a rural landscape. This development is usually associated with
"crossroads" and "country store neighborhoods" in Plymouth and the extra -territorial
jurisdiction. Some Community Areas may have or may require municipal type services to avert
an existing or anticipated health problem. Even though limited services may be available, these
Community Areas should not be shown in the higher intensity land classes, as the major
characteristic which distinguishes Community Areas with limited services from the Developed
and Transition classes is that services are not provided to stimulate intense development in rural
setting, but rather to neutralize or avert health problems. Due to the small size of most Community.
Areas, they will appear as small areas in a dispersed pattern on the Town's Land Classification
Map. This Community Areas class, illustrates small, dispersed groupings of housing and
commercial land uses in a rural landscape.
The areas of the Town meeting the Community Area designation are bordered by part of Mackeys
Road on the East side, the Roxie Reese Road area on the Southeast side and part of Highway 32 on
the South side of town.
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1992 CAMALacnd Use Plan .Update -Draft Plymouth • North Carolina
5. Rural Areas
The Rural Areas class is 'to provide a Zbwn designation for .agriculture, forestry, mineral
extraction, and other allied uses traditionally associated with an agrarian region. Other land
' uses, due to their noxious of hazardous nature and negative impacts.on adjacent.uses.may also be .
appropriate here if sited in a manner that minimizes their negative effect on surrounding. land
uses or natural resources. Examples of such uses include energy generating plants, refining .
' plants, airports, sewage treatment facilities, fuel storage tanks,. and other industrial type uses.
Very low density dispersed residential uses on large lots with private on -site water and sewer are
consistent with the intent of the Rural Areas class. Development in this class should be as
' compatible with resource production as possible.
Town and extra -territorial jurisdiction land meeting the intent of the Rural Areas classification
' which is appropriate for, or presently used, for agriculture, forestry, mineral extraction and other
uses, that due to their hazardous or noxious nature, should be located in a relatively isolated and
undeveloped area. Very low density dispersed, single family residential uses are also appropriate
within rural areas where lot sizes are large and where densities do not require the provision of
urban type services. Private septic tanks and wells are the primary on site services available to
support residential development, but fire, rescue squad and sheriff protection may also be
available. Population densities will be very low.
The Rural Area class is the broadest of the seven classes. In the future, the'Ibwn may wish to
further subdivide the rural class into subclasses such as Rural/agricultural, Rural/forestry, etc.
in order to illustrate where these basic rural activities should be maintained within the Town and
extra -territorial jurisdiction.
' Rural areas in Plymouth are located mostly outside the City limits with the exception of a section
South of Highway 64 near the Plymouth Landing Shopping Center.
' 6. Rural with Services
The Rural with Services category is designed to complement with Rural Areas category by
recognizing that limited residential development may occur without threatening the agricultural
environmental with potential suburban expansion. Thus, the Rural with Services class is
intended to provide for very low density land uses including residential use where limited water
services are provided -in order to avert an existing or projected health .problem. It is emphasized
that any and all land development within this class should be governed to ensure low intensity in
order to maintain a rural character. Rural water systems, such as those funded by Farmers Home
Administration, are or may be appropriate in these areas due to the need to avert poor water quality
problems. However, CAMA stipulates that these systems, however, should be designed to serve a
limited number of customers and should not serve as a - catalyst for future higher intensity
development.
In summary, Tbwn and extra -territorial jurisdiction areas meeting the intent of this class are
appropriate for very low intensity' residential uses, where lot sizes are large, and where the
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1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
provision of services will not disrupt the primary rural.character of the landscape. Private wells
and septic tank services may exist, but most development is supported by a closed water system.
Other -services such as sheriff protection and rural or volunteer fire protection and emergency
rescue etc. may also be available. This class is intended to be applied where the local government
has provided, or intends to provide, very limited water services to avert a known or anticipated
health problem in a predominantly larger agrarian region.
Although the Town currently contains no areas pertaining to the Rural with Services category, the
description of the classification is included here for potential future use.
7. Conservation
The purpose of the Conservation Areas class is to provide for the effective long-term management
and protection of significant, limited, or irreplaceable areas of Plymouth and/or the extra-
territorial jurisdiction. Land management is needed due to the natural, cultural, recreational,
scenic, and/or natural productive values of both local and regional concern.
Land areas in Plymouth and/or the extra -territorial jurisdiction meeting the intent of this
classification include the following:
• AECs, including but not limited to public trust areas, estuarine shoreline or
estuarine waters as identified in 15A NCAC 7H;
• Other similar lands, environmentally significant because of their natural
role in the integrity of the coastal region and include but are not limited to
bottom land hardwoods, pocosins, swamp forests, areas that are or have a high
probability of providing wildlife habitat, forest lands that are essentially
undeveloped and lands that otherwise contain significant productive, natural,
scenic, cultural, or recreational resources.
The Conservation Areas class is designed to illustrate the natural, productive, scenic, cultural
and recreational features of the extra -territorial jurisdiction which make it a desirable place in
which to live, work, and visit. As such the Conservation class should be applied to areas that
because of their unique, productive, limited, cultural, or natural features should be either not
developed at all (preserved), or if developed, done so in a extremely limited and cautious fashion.
At a minimum all AECs as defined in 15A NCAC 7H should be included in this class and the land
use plan should so state, and the local government is strongly urged to include other similar areas
protected by either other state or federal agencies. Examples include Army Corps of Engineers'
"404 wetlands." As AECs should be included in the conservation class, the local government
should acknowledge the distinctions among the various uses the Coastal Management Program
permits within each AEC group. It should be understood, however, the local government may
develop its own more restrictive standards as the state's are considered minimum. CAMA
stipulates that, at a minimum, each plan should include language such as:
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1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
• ' Estuarine Shoreline AECs These areas are located adjacent to estuarine
waters AECs and are known for their contribution to the natural productivity
of the waters close by. Many uses may by permitted as long as the 30 percent
impervious rule is met and development is well managed on individual sites
to ensure minimal degradation.
i-
• Other similar lands that are afforded some protection by another agency, such
as "404 wetlands" where use and performance standards of that agency will
apply.
• Other unique lands that may not be afforded protection by another.agency, but
are known for their natural, scenic, historical, cultural, or hazardous nature.
These areas might include areas identified by the Natural Heritage Program,
pocosins, savannas, tracts. of native forests, etc. When these areas are
included in the conservation class the local government should describe the
types of uses it deems appropriate, if any, within each area and under what
circumstances those uses might by appropriate.
Urban services, either public or private, should not be provided in the Conservation Areas due to
their potential nature as a catalyst to stimulate intense development. In most cases, limited on -
site services will adequately support any limited development within the Conservation class and
will also protect the very features which justify the area's inclusion in the Conservation
classification.
CAMA emphasizes that even though AEC standards occasionally permit urban type development
' on a lot by lot basis within the various AECs and that services are occasionally provided, this is the
exception rather than the rule, and the primary intent of the conservation class is to .provide
protection for the resources included therein. Mapping of AECs in the conservation class on the
local government's land classification map should be accomplished with the understanding the
AECs are intensively defined by their characteristics in 15A NCAC 7H, and therefore maps only
indicate approximate locations and are not definitive enough for site specific regulation purposes.
Policy development in the land use plan should acknowledge the intent of this class and policies
should be consistent with the function of areas shown in the Conservation class.
Most of the area classified as conservation is located on the west side of Plymouth near
Weyerhaeusen Another large portion is situated on the north side of Mackey's Road.
Intergovernmental Coordination and Implementation
The land .classification map for the Town of Plymouth serves to guide the activities of private
developers and public agencies and to coordinate policies, standards, regulations and other
governmental strictures which affect development within the Town limits: In doing so, -the
development policies, issues and concerns of adjoining jurisdictions shall also be considered,

1992 CAMA Land Use Plan Update -Draft I Plymouth • North Carolina
and meaningful attempts at conflict resolution and coordination shall be made with these
jurisdictions.
Throughout the constructing of this plan, continuous efforts were made to make local policies and
regulations consistent with the regulations. of nearby planning jurisdictions and the
' requirements of State and Federal governing agencies. The implementation of this plan will also
consider compatibility and consistency with these governmental bodies. The Public Participation
Appendix provides a detailed account of coordinating activities with local and State officials in the
making of this land use plan update.
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The cox Company Land classification System • IX-10

Chapter X.
Relationships of Policies and
Land Classification
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The Town of Plymouth Land Use Plan 1992

1992 CAMALand Use Plan Update -Draft Phmouth • North Carolina
CE APTER X
Summary: Relationships of Policies and Land Classification
The guidelines set forth by CAMA in section T15A: 07B .0205 require that this Land Use Plan
Update relates the general policy statements (Rule .0203) to the Land Classification categories.
The comparison shall indicate which land uses are deemed appropriate for the community within
the specific land classifications. The following section serves as a summary of the Land
Classification Chapter of this document.
1. Developed Class
The Town of Plymouth contains four sub -categories within the Developed classification: multi-
family residential, single family residential, commercial, and industrial. The Town will
continue to monitor the compatibility of these uses through implementation of the existing zoning
and subdivision. ordinances. Further development in these areas will be executed as indicated on
the Land Classification Map. The existing infrastructure will be improved, expanded and
maintained as necessary to provide for the continuance of these services to areas falling under
this classification. Other public services such as police and fire protection will be expanded
and/or improved as needed.
2. Urban Transition Class
The Urban Transition class indicates land areas which will accommodate future urban growth
patterns. Necessary steps will be taken to assure that areas classified as Urban Transition will be
able to support urban development by being generally free of physical limitations and be served or
readily served by urban services. Urban Transition areas as indicated on the Land
Classification Map are positioned so as to greatly reduce or eliminate potential land use
compatibility problems even in the event of full scale urban development.
3. Limited Transition Class
:areas falling under this classification will contain controlled development of lower density than
the Urban Transition class. These lands are generally suited to residential development rather
than high density commercial or industrial. The Limited Transition class within Plymouth is
intended to provide for moderate development densities with the benefits of both urban services and
sound environmental protection guidelines. The Town and its extra -territorial jurisdiction may
allow controlled private installation of urban services in this class.
The portions of Plymouth which are indicated as Limited Transition are those having special
environmental or geological features such as estuarine waters and/or limiting soil
characteristics.
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Relationships ofPolicies and Land Classification 0 X-1

1992 CAMA Land Use Plan Update -Draft Plymouth • North Carolina
.4. Community Areas Class
' The Community Area class indicates. primarily low density residential which is supported by
minimal municipal services such as fire protection. In some cases, community water may be
available. Due primarily to the low density format, public sewer service is generally not -
provided.
I Community areas usually take the form of crossroad developments and are located primarily
within the extra -territorial jurisdiction around Plymouth. Intensive development in this
classification is not encouraged.
5. Rural Areas Class
This classification contains uses dedicated to agriculture, forestry, mineral extraction and other
allied uses. Very low density residential areas served by private on -site water and sewer services
also fall under this heading.
Rural Areas within Plymouth are limited primarily to the extra -territorial jurisdiction. Future
development in this class will be as compatible with resource protection and resource management
policies as possible.
6. Rural with Services Class
Rural with .Services was established to provide for very low density land uses including
residential where water services are provided to avoid existing or projected health problems. It
should be noted that provision of these services is not to be used as incentive for future development.
This class will be compatible with resource protection policies.
7. Conservation Class
The Conservation Class applies to areas requiring strict management and protection of
irreplaceable land features located within Plymouth and its extra -territorial boundaries. These
areas include AECs and other lands having environmentally significant features due to their role
in the integrity of the coastal region. All policies relating to AECs and public trust waters as well
' as other environmentally significant features including but not limited to swamp forests, bottom
land hardwoods and prime wildlife habitat areas apply to this class.
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Relationships-ofPolicies and Land Classification • X 2

1
Appendix L
'
Public Participation Plan
1
1
The Town of Plymouth Land Use Plan 1992

1992 CAMA Land Use Plan Update -Draft $ Plymouth • North Carolina
' Appendix I
Public Participation Plan
The greatest value of citizen participation in the planning process is that it allows each member of
the community the opportunity to influence governmental decision making. In order for the 1992
Land Use Plan Update to be fully effective, it must accurately represent the ideas, attitudes, and
concerns of the residents.. By preparing a Land Use Plan Update which is integrally tied to its
' precedent goals, objectives and policies, the old adage that "a locality can be no better than it
aspires to be" is underscored.
' An intelligent and comprehensive plan cannot be structured without the direction of the locality's
vision for its future. This vision must come from the Town's residents. The following Public
Participation Plan outlines the methodology to be used by the Town of Plymouth in its effort to
' achieve this essential representation of its citizens.
• The Planning Board will be officially designated by the Town Council as
the lead agency for obtaining citizen input to the planning program and
reporting that information to the Town Council,
• During the preliminary stages of the Land Use Update process, all Town
citizens will be provided periodic official notices that the planning process
r is underway. This notice shall encourage the citizens to express their
attitudes and feelings regarding land use issues in the Town. The public
will be informed of when and where they may voice these concerns. In most
' cases, the Planning Board will reserve time on its agenda at each regular.
monthly meeting to obtain citizen comments. As the planning process
matures, periodic updates which outline completed and pending tasks and
. decisions will be available to the citizenry for further review. .
• The Town Planning Board will distribute official notice of the Land Use
Plan Update process via the local newspaper. A reporter from this
publication will be periodically informed by the Town Manager of the
progress and status of the Land Use Plan Update. The reporter will be
encouraged to act as a "partner" with the Town officials in the conveyance
of information to the public.
• The local news media will also be informed of the time and location of the
monthly Planning Board meetings and encouraged to promote citizen
attendance and participation. In addition, the media will be asked to
prepare "focus" articles aimed at the Land Use Plan Update process.
• The Planning Board will be asked to complete a "Policy Critique
Questionnaire." This document provides a format for examination and
revision to the status of the 1986 Land Use Plan's policies. and
implementation recommendations.
• Citizen involvement in the planning process will be solicited via a "Public
Questionnaire." This survey document will allow the residents to register
their concerns pertaining to the character, degree and pattern of population
growth as well as future land use issues for the Town. Indirect distribution
PublicPartici ationPlan• AL1
The Cox Company P

1992 CAMA Land Use Plan Update Draft Plymouth • North Carolina
of the questionnaire will be through the local news media. The
questionnaire will also be distributed door-to-door by the Town of Plymouth
Sanitation Department as well as through local interest groups as described
below.
• In an effort to reach the greatest audience, a representative from each of the
following interest groups will be asked to regularly attend Planning Board
meetings and report back to their members. These representatives will be
given both the "Policy Critique Questionnaire" and the "Public
Questionnaire" to distribute and/or review with their group members.
These groups may include:
1) Downtown Merchants Association
2) Historical Society
3) Rotary Club
4) Elks
5) Chamber of Commerce
6) Ministerial Association
7) Masons
8) Brotherhood Club
The Town of Plymouth officials understand the great value and necessity of comprehensive public
participation in the planning process. Resident participation will be viewed as an opportunity
which continues through every phase of the Land Use Plan Update. Accurate representation of the
Town's constituency will result in a clear and attainable vision for the future of Plymouth. The
primary purpose of this Public Participation Plan, therefore, is to inform, educate and involve the
citizens of the Town as fully as possible. In pursuit of this purpose, this process is intended to
remain flexible in format and execution, while giving every Plymouth citizen the opportunity to
take part in this democratic process.
The Cox Company
Public Participation Plano AI-2

The Town of Plymouth, N.C.
1992 Land Use Plan Update
Citizen Survey Tally Sheet
1. Population
1. The current population of the Town of Plymouth is 4,328. It has decreased by 9% over twenty
years. Population growth in the Town s!-ould be encouraged, _
Strongly 1 2. 3 4 5 Strongly
Disagree 18 6 34 26 121 Agree
12% 17% 72%
2. Without more local Industry and job opportunities, young people p In Plymouth will seek
employment and residences elsewhere.
' Strongly 1 2 3 4 5 Strongly
Disagree 12 2 4 12 176 Agree
7% 2% 91%
'
11. General Attitudes on Growth and Economy
3. The 'quality of life' in Plymouth is very good.
Strongly 1 2 3 4
5
Strongly
Agree
Disagree
32 43 72 38
20
37% 35% 28%
'
4. Do you feel that the unemployment rate (4.7%) Is a major concern In the Town?
Strongly 1- 2 3 4
5
Strongly
Disagree 15 15 43 48
84
Agree
15% 21% 64%
5. Growth In Industry Is Important to the long-term vitality of the Town and should
be promoted
In the
Land Use Plan.
Strongly 1 2 3 4
5
Strongly
Agree
Disagree
11 6 18 38
9% 83%
132
8%

' 6. Increased emphasis on tourlsm-related business would be good for the Town.
Strongly 1 2 3 4 5
' Disagree
18 8 29 43 107
13% 14% 73%
7. The preservation of historic Was and buildings Is an Important goal for the Town.
Strongly 1 2 3 4 5
Disagree
17 11 46 41 89
14% 22% 64%
Strongly
Agree
Strongly
Agree
8. Increasing the U.S. 64 Bypass to 4 lanes has eliminated the former traffic problems associated
with the Bypass area.
Strongly 1 2 3 4 5 Strongly
Disagree 17 16 22 50 95 Agree
16% 11% 73%
9. Recent new development has been properly regulated by the Town.
Strongly 1 2 3 4 5
Disagree 26 24 82 39 26
25% 42% 33%
r.
10. Economic growth In Plymouth has progressed at an acceptable pace.
Strongly 1 2 3 4 5
Disagree 71 50 39 16 19
62% 20% 18%
i
Strongly
Agree
Strongly
Agree
' _11. The redevelopment and renewal of the Downtown Business Area should be a major concern in
future Town plans.
Strongly 1 2 3 4 5 Strongly
Disagree 30 18 40 26 88 Agree
24% 20% 56%

Ill. Land Use Concerns
12.
The preservation of nearby agricultural lands and farming Industry should be a major concern for
the Town's future.
Strongly
Strongly 1. 2 3 4 5
Disagree 18 19 3037 0 88
16% 65%
Agree
19%
13.
There should be greater regulatory controls placed on nearby Industrial land uses
to reduce
Impacts on the environment.
'
Strongly 1 2 3 4 5
Strongly
Disagree 21 25 50 32 71
Agree
'
23% 25% 52%'
Town is
14.
The recycling program in the good.
'
Strongly 1 2 3 4 5
Disagree 50 29 55 27 40
Strongly
Agree
39% 28% 33%
15.
Any new residential and commercial development along the river should be strictly controlled
by the Town.
Strongly 1 2 3 4 5
Strongly
'
Disagree
26 21 43 33 78
Agree
24% 21% 55%
16.
The current Town regulations for subdivisions and new development are adequate.
Strongly 1 2 3 4 5
Strongly
'
Disagree 22 22 91 30 31
Agree
23% 46% 31%
17.
The Town should continue to promote development and subdivision on land outside the Town
limits.
Strongly 1 2 3 4 5
Strongly
Disagree
37 18 50 37 56
Agree
28% 25% 47%

' 18. Growth outside the Town should remain primarily agricultural.
Strongly 1 2 3 4 5 Strongly
Disagree 43 36 56 22 43 Agree
40% 28% 32%
1
IV.
Residential Housing
'
19.
Fiore affordable housing Is needed In the Town to serve the needs of low and moderate
,ncome residents.
Strongly 1 2 3 4
5
Strongly
Disagree
Agree
59 26 28 26
64
42% 14% 44%
20.
The current housing stock is sufficient to meet the needs of the Town.
Strongly l 2 3 4
5
Strongly
Disagree
Agree
42 21 58 33
44
32% 29% 39%
21.
More funds should be allocated for housing renovation and neighborhood Improvements.
Strongly 1 2 3 4
5
Strongly
'
Disagree 55 26 29 25
68
Agree
40% 14% 46%
in Plymouth.
22.
More housing for the elderly should be constructed
'
Strongly 1 2 3 4
5
Strongly
Disagree 28 22 29 38
81
Agree
25% 15% 60%

V. Town Services
23. The Town has sufficient recreation activities and facilities to serve the needs of Its citizens.
Strongly 1 2 3 4 5 Strongly
Disagree 86 28 26• 61 46 Agree
57% 13% 300A
24. Senior citizens programs and facilities In the Town are adequate for the needs of Its retired .
residents.
Strongly 1 2 3 4 5 Strongly
Disagree Agree
62 25 48 26 44
43% 23% 34%
25. Special transportation services are needed for the elderly and those without private
transportation.
Strongly 1 2 3 4 5 Strongly
Disagree 31 17 37 33 82 Agree
24% 19% 57%
26. The County school system provides adequate facilities and education for the Town's chAdren.
Strongly 1 2 3 4 5 Strongly
Disagree 81 31 32 22 37 Agree
55% 16% 29%
27. The community should play a greater role In supporting the local school system.
Strongly 1 2 3 4 5 Strongly
Disagree Agree
17 3 19 33 132
10% 9% 81%
28. The Town should assume greater responsibility for maintenance of sidewalks and drainage
Improvements in residential areas.
Strongly 1 2 3 4 5 Strongly
Disagree 9 5 27 35 126 Agree
7% 13% 80%

29. Streets and roads In Plymouth are In good condition and provide for the needs of the Town
residents.
Strongly 1 2 3 4 5 Strongly
Disagree 113 34 29 12 12 Agree
74% 16;yo 12%
30. 1 would be willing to pay extra taxes for the Township to construct public road and. drainage
Improvements.
Strongly 1 2 3 4 5 Strongly
Disagree Agree
107 21 40 18 18
64% 20% 16%
31. 1 feel the Town should Improve traffic access to Downtown from the Bypass.
Strongly 1 2 3 4 5 Strongly
Disagree Agree
84 17 41 17 43
50% 20% 30%
32. More public funds should be allocated for Improved fire and police protection.
Strongly 1 2 3 4 5 Strongly
Disagree 22 14 34 41 90 Agree
18% '17% 65%
33. The Town should continue to make public Improvements to the Roanoke River waterfront.
Strongly 1 2 3 4 5 Strongly
Disagree 55 14 47 28 56 Agree
35% 24% 42%
34. Leadership In the Town government has Improved compared to five years ago.
Strongly 1 2 3 4 5 Strongly
Disagree 49 34% 17 80% 21 25� 29 Agree

35. The Town does a good Job with my real estate tax dollars.
Strongly 1 2 3.
4 5 Strongly
1
Disagree 72 25 72
14 12 Agree
50% 37%
13%
36. Other comments:
There was no significant number of*similar
responses.
Five people said the city govenment needed
improvement, taxes are too high
or more department stores are needed and we
need to promote business in town.
Four people said improve police protection,
clean-up downtown buildings
1
or promote schools.
'
Important-1. least
rank 1-5 the following Issues In order of importance. (For example: very
Please ( ) 9
Important=5)
'
Tourism
2 Schools
1
1 Crime Rate
Housing Improvements
3
Unemployment
Attracting Businesses
5
Controlling Growth
Downtown Revitalization
1
4 Roads/Dralnage
Recreation
1
I currently live in the Town of Plymouth. YES
NO
1
i
1
1
1

' Public Meeting Dates and General Minutes
lbwnofPlymouth
Wednesday March 25:
' The Cox Company to submit to the Town of Plymouth a revised and
finalized Citizen Survey Document. Mr. Gandy to notify the news
media of the proposed publication date(April 1, 1992).
Monday & Diesday - March 30 & 31:
The Town of Plymouth Sanitation Department to canvas the Town
' with the Citizen Survey.
Wednesday - April 1:
The Citizen Survey to be published in the Roanoke Beacon. Message
' stating date and location for survey return.
Wednesday - April 15:
' All Citizen Surveys to be returned to Plymouth City Hall.
Monday - April 20:
i Processing of survey results to be completed by Town. Statistical
tabulations to be distributed to Planning Board members during the
regularly scheduled meeting.
' Friday - May 1:
Special meeting of the Planning Board to be held for the purposes of
' reviewing the Citizen Survey results and discussing applicable
policies for inclusion in the Plan Update.
Friday - May 8:
Prepare press release announcing public hearing to be held on May
18. This press release to be published on May 13. This hearing is to
be located at Town Hall and will be conducted during a regularly
scheduled Planning Board meeting.
Monday - May 11:
t Cox Company to provide draft policies based on the Citizen Survey
results to Planning Board for review.
' Monday - May 18:
Planning Board meeting and public hearing to discuss citizen input
and present draft Plan Update policies based on survey results.
' General Dates of Public Hearings and Planning Board Meetings.
10/28/91 5/4/92
2J17/92 5/27/92
3/16/92 6/24/92

Appendix II.
Policy Critique Questionnaire
The Town of Plymouth Land Use Plan • 1992

1992 CAMALand Use Plan Update -Draft Plymouth • North Carolina
APPENDIX II.
Policy Critique Questionnaire
As specified by CAMA, the Land Use Plan for a given community must be updated every five
years. The Land Use Plan Update allows .the community to maintain an up-to-date
understanding of current social and political conditions. This examination allows the
formulation of time -appropriate goals and policies to be included in the Plan Update. The Coastal
Resources Commission, operating under State law, requires the locality to re-examine existing
goals and policies for completion status and relevancy.
Compliance with this [data collection and analysis] element requires
each local government to analyze how effectively it has implemented
its policies as contained in its current plan of record.
The following Policy Critique Questionnaire is the tool which was utilized to achieve this task.
The document has been reviewed by both the Town of Plymouth Planning Board and members of
the Town Staff. Their responses have been applied during the drafting of the current 1992 goals
and policies.
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1. Resource Protection
A. Use available natural resources in a manner consistent with the best
conservation and resources management practices.
1. Utilize the Washington County Soil Survey.for land use planning
purposes.
2. Allow development only on well drained and otherwise suitable soils via
the town zoning ordinance, subdivision regulations and the land
classification system as provided for in the 1986 plan.
3. Allow septic tanks and nitrification fields to occur on suitable soils
through actions by the local sanitarian,
4. Allow the best farmland soils to remain through zoning and/or tax
incentives.
B. Preserve and protect Areas of Environmental Concern.
1. Identify fragile areas as conservation areas and provide for the protection
of these areas in the town zoning ordinance.
2. Review subdivision regulations and ensure that they reflect the town's
desire for protection of environmentally fragile areas.
C. Manage stormwater runoff in the most efficient and effective way.
1. Devise a stormwater drainage plan.
2. Lessen impact of storm runoff by constructing flow control devices.
3. Improve curbing and guttering of streets.
4. Approve a sediment control ordinance.
D. Protect the Town's Historic and Cultural Resources.
1. Identify all cultural or historic resources.
2. Establish and zone appropriate historic structures and/or districts in the
community.
E. Protect the environmental integrity of the town.
1. Seek and support legislative action for more stringent regulations with
respect to air and water quality.
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(Resource Protection Continued)
Potential Additional Resource Protectlon Pollcv/Imolementation
Conslderaflons:
Please note: In light of the above assessment the following have been
included as possible additional implementations relating to Resource
Protection. Please modify, andror comment as needed. Also please do not
hesitate to add others.
1. Support current state and federal efforts to preserve the Albemarle and
Pamlico Sounds.
2. Review existing subdivision regulations and ensure that they set
maximum runoff standards and encourage use of innovative stormwater
controls.
3. Encourage efforts in upstream communities such as improvements to
wastewater treatment facilities, adoption of land use controls, and
institution of storm water controls that will Improve water quality
downstream.
a. Review existing subdivision regulations and ensure that they speciy
the use of incentives to preserve land adjoining AEC's.
5. Consider adopting performance -based subdivision regulations where
lot size is determined in part by soil suitability
6. Consider the establishment of a land conservation fund which would
protect areas of environmental, recreational or aesthetic Importance by
in -fee acquisition or other techniques.
7. Review existing subdivision regulations and ensure that they offer
incentives for preserving environmentally sensitive areas and scenic
landscapes.
B. Review development of inland wetlands protection programs by state
and federal agencies so that Inland wetlands are afforded protection
similarly to that now afforded coastal wetlands under CAMA.
9. Encourage strict enforcement of all water quality regulations by the
State Department of Environmental Management.
10.To reduce solid waste, initiate a pilot recycling program with
curbside pickup: investigate markets for recyclable materials.
11.Support state and federal programs such as the state
Agdcuftural Cost Share Program which attempt to reduce non -point
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(Resource Protection continued)
agricultural run -oft -
12.Ensure proper functioning of the Town's wastewater treatment
system; prohibit new tie-ins until improvements 'are made should
demand over exceed plant capacity.
13.Prohibit development in AECs that does not meet the
management objectives of 15 NCAC 7H.0203. Discourage all
development in the town's AECs which is not water dependent
14.Permit development in AECs only if such development meets the
use standards in 15 NCAC 7H.0209. The location, design and
construction of any project in an AEC must give highest priority to the
conservation of the river and its shoreline and to protecting public rights
of navigation and recreation.
IS. Support state and federal programs that regulate underground
storage of hazardous materials. Support regulations that require
tightness -testing for existing tanks and construction standards for new
larks. Immediate removal of leaking tanks should be required. Support
establishment of a sfafa fund to slop tank leaks and to clean up affected
water supplies.
16.Continue participating in the Federal Flood Insurance Program
and enforce the Town's Flocdolain Ordinance.
17.Support strict enforcement of the stales Environmental Health
Code regarding the siting of in -ground septic systems.
18.In areas experiencing septic failures outside of Town investigate
the possibility of servicing with sewers.
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If. Resource Production and Management
A. Protect the prime farmland within the jurisdiction of the Town of Plymouth
1. Protect prime farmland through zoning ordinances.
2. allow prime farmland to be taxed as agricultural land.
B. Protectforests
1. Protect trees and forests in the town by enacting an arbor ordinance.
2. Maintain tees and other flora on public lands and rights of way.
3. Minimize commercial forestry activities within the town.
C. Protect area nurseries and fisheries
1. Seek better regulation of upstream flow on the Roanoke River.
2. Support efforts to improve water quality on the Roanoke River and all of
its tributaries.
3. Conduct implementation tasks related to stormwater runoff policy.
Potential Additional Resource Production and Manaeement
PolrcOm, olementation Considerationsr
Please note: In light of the above assessment the following have been
included as possible additional implementations relating to Resource
Production and idanagement. Please modify, andlor comment as needed.
Also please do not hesitate to add others.
1. To the extent feasible, design betterment systems for public .
improvements so that agricultural property whose agricultural use does
not benefit from those Improvements Is not charged for such
improvements.
2. Support only those proposals for industrial development that
demonstrate that their implementation will lead to no significant adverse
impacts on traditional andor current uses of land and water resources.
3. Support development in accordance with the Land Classification Map.
4. Consider starting a farmers market in downtown Plymouth; work with
other area towns to develop markets in every community in which all
County farmers could participate.
5. Support diversification of the local agricultural economy.
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(Resource Production and Management continued)
6. Encourage farmers owning parcels of ten or more acres to apply for
use -value assessment.
7. Support and comply with local, state and federal efforts to improve
recreational fisheries.
8. Support efforts to increase boat access to the Roanoke River and its
tributaries.
9. Support the Environmental Protection Agency's Albemarle -Pamlico
Estuarine Study.
10.Support state and federal programs which attempt to reduce
non -point pollution. These include the Agricultural Cost Share Program
and the Conservation Provisions of the 1965 Farm Bill.
11.Publicize the recreational fishing opportunities available in the
area in regional tourism brochures. .
12.Support state and federal efforts to preserve areas of prime
farmland.
13.Support legislative efforts to development of a comprehensive
statewide program for farmland preservation. Support use of
techniques such as agricultural districting and transfer of development
rights.
14.Support use of Best Management Practices for land
management and agricultural production.
15.Work with the Soil Conservation Service to encourage
participation in the state Agricultural Cost Share Program.
16. Support the Conservation Provisions of the 1985 Farm Bill:
• Conservation Reserve
• Conservation Compliance
• Sodbuster
• Swampbuster
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Ill. Economic and Community Development
A. Support expansion of existing industry and recruitment of new industrial and
commercial enterprises.
1. Organize an economic development commission.
2. Devise and adopt an economic development plan:
3. Devise and adopt a capital improvements program.
a. Organize a town beautification committee.
b. Devise and adopt a community facility plan.
6. Improve access within town and with other towns.
7. Devise, adopt and implement a water and sewer plan.
B. Provide for the orderly growth of areas within Plymouth and land outside of
town.
1. Refuse to allow hazardous waste dumping sites in and near the
community.
2. Refuse to a!iow energy facilities siting and development in the town.
3. Adopt performance zoning standards for industry and commerce.
a. Conduct an annexation study and proceed to annex areas adiacent to
e ex.sting town limits where necessary.
C. Revitalize the Town of Plymouth
-V. Organize a town revitalization cornmi;,ee.
8: Devise and adopt a revitalization plan.
13. Devise and adopt a transportation plan.
(?Devise and adopt a recreation plan..`^-�
5-­Improve the zoning regulations.
S. Install new street lighting and improve streets, sidewalks and parting. uaTtc:> .
.7.—Adopt a new riverfrontldowntown plan.
419mprove enforcement of the housing code. Nt2t:)'� ro er
D. Increase commitment to planning and management
1. Organize an in-service training program for all town personnel, including
police and fire departments, administrative personnel, public works
personnel and elected officials.
2. Allow and support town personnel to seek continuing training and
education.
3. Devise and adopt a growth management plan.
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(Economic and Community Development continued)
4. Conduct a carrying capacity study.
5. devise and adopt a five year comprehensive town planning program.
o n lal Ad i f nal ml n mu f D 1 m n
Polfcv/lmolemenfaf on Considerations:
Please note: In light of the above assessment the following have been
included as possible additional implementations relating to Economic and
Community Development. Please modify, and/or comment as needed.
Also please do not hesitate to add others.
t. Advocate the extension of water and/or sewer services to industrial and
commercial firms locating outside municipal service areas in
accordance with the Land Classification Map; for residential projects in
the unincorporated area, water and sewer service are to be the
responsibility of the developer.
2. Consider adopting a Mobile Home Park Ordinance.
3. Develop an annual calendar of all special events to be held thrcughout
the Town; publicize monthly listing of events in appropriate local,
regional and national publications.
4. Review existing subdivision regulations and ensure that they preserve
the rural character of outlying areas.
5. Encourage location of new commercial uses in vacant commercial
buildings downtown.
6. On the Town's Land Classification Map, classify areas within a one -
mile radius of Winton according to the gufdeGnes of 15 NCAC 7.B0200.
Developed areas outside of town which are currently or are expected to
be served by water and/or sewer should be classified Transition.
Agricultural and forest land should be classified Rural. Areas of
Environmental Concern and other sensitive natural or cultural resource
areas should be classified Conservation.
7. Consider formation of a local beautification committee.
8. Support location or expansion of marinas, if applicable, only in
accordance with the development standards of 15 NCAC 7H:
encourage developers to provide for public access (at a minimum,
pedestrian access) at project site or another off site location in town.
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(Economic and Community Development continued)
9. Continue to apply for funding for local housing Improvements under the
Community Development Block Grant Program; expand the local
contribution to increase the competitiveness of the application.
10.Continue to support development of low and moderate income
housing in the Plymouth area.
11.Participate In local and regional efforts to promote tourism in
northeastern North Carolina.
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IV. Public Participation
A. Maximize citizen participation in governmental affairs
1. Organize neighborhood planning committees based on planning units.
2. Organize task forces on specific issues to be solved.
3. Organize leadership workshops for citizens and town officials.
4, Organize a town revitalization committee.
Potential Additional Public Participatlon Policvrlmplementatton
Considerations:
Please note: in light of the above assessment the following have been
included as possible additional implementations relating to Public
Participation. Please modly, andlor comment as needed. Also please do
not hesitate to add others.
1. Advertise all Planning Board meetings in the local newspaper;
emphasize that citizens are invited and encouraged to attend all
meetings dealing with planning issues.
2. Apprise the public of planning issues as they develop.
3. Report important planning and community development issues,
decisions and developments to the local newspaper; propose feature
articles for especially important issues.
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V. Storm Hazards
A. Reduce the potential for.loss of property and human lives through
regulatory controls.
1. Adopt a hazard area redevelopment ordinance.
Potential Additional Storm Hazards PoItcylImolemenfation
Consideratfons:
Please note: in light of the above assessment the following have been
included as possible additional implementations relating to Storm Hazards.
Please modify, andlor comment as needed. Also please do not hesitate to add
cthers.
1. Continue to enforce the Town's floodplain ordinance.
2. Enforce the state building code in all new construction.
3. Consider adopting a housing code if applicable
s. Acquire land along the river; restrict future development of the property
" and use as a site for active and passive recreation.
5. Support the preparedness' program the County Office of Emergency
Management conducts in local schools.
6. Participate in the storm evacuation exercise held each year by the
Office of Emergency Management.
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PLANNERS • LANDSCAPE ARCIIITECTS
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The preparation of this report was financed in part through a grant provided
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administered by the Office of Ocean and Coastal Resource Mnnagement,
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THE TOWN OF PLYMOUTH, NORTH CAROLINA
THE COX COMPANY - -
PLANNERS • LANDSCAPE ARCHITECTS _ `• \ , / • I
CIVIL ENGINEERS • URBAN DESIGNERS ` �. \ • —, ,�
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Note: At this time, the To 'D
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The preparation of this report wn9 financed in part through a grant provided
by the North Carolina Coastal Management Program, through funds
provided by tLe Constai 7.one Management Act of 1972, as amended, which is
administered by the OILce of Ocean and Coastal Resource Management, '
National Oce&n:c and Atmospheric Administration.