Land Use Plan-1986

1 I LYMOUTH
LAND USE
PLAN
1986
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

P L Y M 0 U T H L A N D U S E P L A N
Prepared for the
Plymouth Planning Board
With assistance provided by
Stephenson and Associates
Greenville, N.C.
Adopted by the Town of Plymouth Town Council on January 12, 1987
Certification by the North Carolina Coastal Resources Commission
on June 5, 1987
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.

1986 PLYMOUTH LAND USE PLAN UPDATE
PLYMOUTH TOWN COUNCIL
William R. Flowers, Mayor
Louise F. Spruill
Robert L. Wilkins
James A. Brunson
Shelton W. McNair
Zebedee Taylor
Melvin M. Cordon
PLYMOUTH PLANNING BOARD
Edison Towe, Chairman
Abbie Johnson
Marvin Hare
Tom Broderick
Steve Walker
PLYMOUTH ADMINISTRATIVE STAFF
Guy Matteson, Town Manager
Rob Gandy, Zoning Administrator
Anita N. Sawyer, City Clerk
Technical Assistance
Dr. Richard A. Stephenson, Planner -in -Charge
Bruce C. Payne, Planning Associate
Stephenson & Associates, Greenville, North Carolina

F
F
n
TABLE OF CONTENTS
I. Introduction
II. Data Collection and Analysis
Regional Setting
Population and Economy
Population Trends and Characteristics
Local Economic Base and Employment
Income
Summary
III. Existing Land Use
Growth Patterns
Residential Land Use
Commercial Areas
Office and Institutional Land Use
Industrial Land Use
Recreational Open Space
Vacant Land
Utilities and Streets
Summary
IV. Existing Plans, Regulations and Constraints
Transportation Plans
Schools
Community Facilities Plan
Recreation Program
Capital Budget & Capital Improvements Program
Housing Ordinance
Solid Waste Collection/Disposal
Prior Land Use Plans
Floodway Ordinance
Building Code
Septic Tank Regulations
Subdivision Regulations
Zoning Ordinance
Inplementation and Enforcement Ordinance
Constraints Related to Town Facilities
Soils Limitations
Limitations Due to Areas of Environmental
Concerns (AEC's)
V. Storm Hazards Planning and Mitigation
Mitigation of Hazards
Adequacy of the Disaster.Relief Plan
Adequacy of the Hurricane -Evacuation Plan
VI. Issues, Policies and Implementation
Land Use Issues
Land Use Policies
Page
1
2
3
7
7
7
9
9
9
12
12
12
12
13
13
14
14
14
15
15
15
15
15
16
16
16
16
16
16
16
17
17
17
20
21
24
24
25
25
26

TABLE OF CONTENTS (cont.)
Page
'
Resources Protection Policies and Implementation
26
Policy and Implementation Related to Soils
26
Policy and Implementation Related to
Floodable Areas
27
'
Policy and Implementation Related to
Fragile Areas and AEC's
27
Policy and Implementation Related to
Stormwater Runoff
27
Policy and Implementation Related to
Cultural or Historic Resources
28
1
Policy and Implementation Related to
Environmental Impact
28
Resources Production Policies and Implementation
28
Policy on Public Access to the Waterfront
29
Policy and Implementation Related to
Farmland
29
Policy and Implementation Related to Forests
29
'
Policy and Implementation Related to
Fisheries
29
Economic and Town Development Policies and
Implementation
30
Policy and Implementation for Town
Revitalization
30
Policy and Implementation Related to Growth
31
1
Policy and Implementation Related to
New Development
31
Policy and Implementation Related to the
Commitment for Planning and Management
32
Hazard Mitigation Policies
32
Policy and Implementation Related to
1
Public Participation
32
VII. The Land Use Plan
34
Land Classification
Developed Land Use
34
34
Transition Land Use
34
Community Land Use
34
Rural Land Use
34
Conservation Land Use
36
Spatial Arrangement of Land Uses
36
Developed Areas
36
Transition Areas
36
Community Areas
36
Rural Areas
Conservation Areas
37
37
Relationship of Policies and Land Use Catagories
37
Resources Production Policies as Related to
Land Use
37
Resources Protection as Related to Land Use
37
Economic Development as Related to Land Use
37

'
TABLE OF CONTENTS (cont.)
Page
1
III. Conclusion
40
Organization and Management for the Land
Use Plan
40
1
° Conclusion
41
IX. Amending the Plan
42
Public Hearing
42
Notice to the Coastal Resources Commission
42
Adoption Procedures
42
1
References
43
Appendix A
A-1
Assessment of 1981 Land Use Plan Policies
1
and Objectives
A-1
Appendix B
B-1
State Development Regulation Agencies
B-1
1
Federal Development Regulating Agencies
B-2
Appendix C
C-1
Post -Disaster Reconstruction Plan
C-1
Organization of Local Damage Assessment Team
C-2
Damage Assessment Procedures and Requirements
C-3
Organization of Recovery Operations
C-5
Recommended Reconstruction Policies
C-6
Temporary Development Moratorium
C-7
1
Appendix D
D-1
List of Historic Places
D-1
Appendix E
E-1
List of Meetings and Advertisements for
Adoption of Plan
E-1
Planning Board Meetings
E-1
Town Council Meetings
E-1
Advertisements
E-1
.1
. I

LIST OF TABLES
Table Page
1 Labor Force Characteristics, 1980 4
2 Income Characteristics, 1979 5
3 City/County Population Pyramid 6
4 Land Use by Category 11
5 Severity of Risk 22
6 Relationship of Land Use and the Land
Classification Categories .38
LIST OF FIGURES
Figure
1 Existing Land Use 10.
2 Floodable Areas 23
3 Land Classification 35

1 1986 PLYMOUTH LAND USE PLAN
' I. INTRODUCTION
' This land use plan represents an update of the existing Plymouth Land
Use Plan, and when adopted will supercede the previous plan. The
' original plan and its five year updates are required by the North
Carolina Coastal Area Management Act (CAMA). The Town of Plymouth
Planning Board is the local planning agency whose responsibility it is to
oversee the planning process, of which this land use plan is a part.
This document is in accordance with the land use planning guidelines
(Subchapter 7B 15NCAC).
Land use planning is the very core of the planning process. All
other phases of planning are performed to service the projected land use
pattern outlined in the land use plan. The existing land use pattern of
Plymouth is the result of many years of interaction between the human and
natural resources in the town and the surrounding area.
The land .use plan can help keep the desired character of the -Town of
Plymouth, and at the same time guide growth and change in an acceptable
manner. It is intended that this plan serve as a tool for growth to meet
the needs of the people, both now and into the 21st century.
Land use planning is based on many factors including topography,
drainage, soils, existing uses of land, availability of community
services, roads, population projections, trends in economic development,
and future land use needs. The coordination of all these factors is what
planning, in general, is all about. Planning is essential to avoid the
chaos typical of other areas experiencing faster growth. But land use
planning is not an end in itself. Although the plan allows for changes
in the future, it must be implemented to receive the benefits from its
adoption.
There are many tools that the Town of Plymouth has at its disposal to
implement a land use plan. One important tool is zoning which is already
being used. Other tools include: 1) purchase or condemnation of
property which usually determines what uses will occur, 2) affect land
I
use with or without provisions of community services, 3) tax property to
affect what will occur, 4) use of subdivision and other similar types of
regulations, 5) floodplain ordinances, and 6) growth management
'
mechanisms, such as housing unit controls, land banking, and 7) timing
and sequencing controls. All of these tools require the education and
.understanding.by the officials and citizens of the community.
tSince
the last land use plan update in 1981, the Town of Plymouth has
moved steadily forward, implementing many of the policies set forth at
that time.(See Appendix A).. The foresight of the Town Council, the
Planning Board, the Town Manager and the Zoning Administrator, and other
officials, have provided an excellent foundation on which to build the
future of the Town of Plymouth.

II. DATA COLLECTION AND ANALYSIS
Regional Setting
The growth of the Town of Plymouth in the past and its prospects for
the future can be attributed to its relative location. Plymouth is the
product of its regional setting and the distribution of the natural and
human resources in the area. The Town of Plymouth is situated on the
south bank of the Roanoke River where an ancient shoreline now known as
the Suffolk Scarp has its junction with an equally ancient estuary. The
Roanoke River, one of the largest drainage systems crossing the coastal
plain, provides a wealth of natural resources along its course, and gave
Plymouth its original purpose of being.
Plymouth is located on the Atlantic Coastal Plain Physiographic
Province, where the inner and outer sections of the coastal plain meet.
This province extends from Massachusetts to Florida, and includes many
types of land forms and natural habitats. At one time the area was
covered with a dense forest which was a habitat for much wildlife. To
the east.of Plymouth are the low-lying wetlands and low sandy ridges
which are poorly drained. To the west of Plymouth are the rolling
uplands at higher elevations -which are better drained than to the east.
While some parts of the site of Plymouth are low and poorly drained, the
town is benefited with an upland area which many areas to the east do not
have.
The Town of Plymouth and its environs of today is very different from
the days of early settlement. Plymouth, in its early years, was one of
the major ports in North Carolina. This is due, at least in part, to the
movement of people and goods along the eastern seaboard of America. At
first, settlement in the area was widely scattered as plantations and
small farms appeared on the land near navigable water courses. Later,
compact rural development began to appear on the landscape further
inland. This occurred at the crossroads of major land routes. Growth
continued along the water courses and land routes with the larger
communities locating where land and water routes met.
The Roanoke River above Plymouth tends to be more shallow during
dry periods making Plymouth the location where ocean-going ships
transferred their cargo to shallow draft vessels for the journey
upstream. These same river barges and boats brought cargo from upstream
areas to Plymouth for export. In addition to this trade and commerce,
Plymouth became a place for repairing and building barges, boats and
ships. While the trade and commerce has changed over the years and .
Plymouth has attempted to adjust to this change, the relative location of
Plymouth has gained new and added meaning. It is up to the leadership of
the community to continue to enhance the Town of Plymouth as a beautiful
small community with traditions in the American way of life; with good
jobs and income potential, education facilities, community services and a
relaxed atmosphere.
Increased mobility and more leisure time over the past several
decades have created adjustments in growth and development. The
-2=

automobile has eased the movement of people and goods, and changes in.
land uses resulted. Further, the demand for land uses devoted to leisure
activities and services has increased as people have become more
efficient with the use of their time for work. The Town of Plymouth is a
part of this change, and its growth and development has been, and will
continue to be, in relation to it.
Population and Economy
The Town of Plymouth has had modest growth since the World War II
years. The population in 1950 was 4,486 and in 1980 it was 4,571. In
1970 the population achieved its greatest level with 4,774 citizens. The
1990 projection provided by the North Carolina Department of
Administration indicates a population of 4,760, or a recovery to the 1970
level. The Town is committed to achieving a sustained level of
controlled growth and, between now and 1990, the population could be an
even greater number than that projected if the local leadership is
innovative and active in improving the infrastructure and amenities of
the town.
The economy of the Town of Plymouth is reflected in the occupations
of its citizens. In 1980 the U.S. Census showed 1,661 persons 16 years
and older gainfully employed. The occupation distribution indicated in
1
Table 1 shows that a large part of those employed are professional and
skilled workers, with 36.2% in manufacturing, 22.5% in professional and
related services, and 14.8% in retail trade.
Median family income stood at $14,875 while the mean family income
was $17,189 in 1980. The median is the point where half of the families
bring in more income and half of the families have less income. It is a
more accurate measure than is the mean of the general income
characteristics of the people of Plymouth. The difference between the
two measures indicates a larger portion of families are below the mean
than above it, meaning that there are more families in Plymouth making
less than average income than are making more than the average. Also,
the census showed that mean household income was $16,781 indicating two
or more "breadwinners" in some households. About 20% of the families in
Plymouth showed an income below the poverty level, and 27.9% of the
households were receiving Social Security or public assistance income
(Table 2).
When comparing Plymouth with several surrounding communities, we find
that Plymouth is higher in median income, average income, low in
population below the poverty level, low in unemployment, and high in
manufacturing workers. In general, Plymouth is holding its own and looks
better than most. It is expected that Plymouth can continue in its
existing situation, but also it has the potential to improve, meaning a .
modest increase in population and an improved quality of that population.
' Population Trends and Characteristics
The population characteristics of •Plymouth are reflected, in part -,by
the population pyramids shown in Table 3. Plymouth is experiencing the
-3-

TABLE
1
LABOR FORCE CHARACTERISTICS 1980
(Source: U.S. Bureau of the Census)
Plymouth
Williamston
Edenton
Labor Force Status
Persons 16 yearsandn ove...........
Labor Force .......................
3,300
1,786
4,719
2,744
3,981
2,200
Percent of persons
16 years and over...........
54.1%
58.1%
55.3%
Civilian labor force............
1,786
2,744
2,194
Employed .....................
1,661
2,529
1,939
Unemployed.. .. .........
125
215
255
Percent of civilian
labor force.... •..••.•
7.0%
7.8%
11.6%
Not in Labor Force ................
1,514
1,975
1,781
Inmate of institution..
3
233
150
Occupation
Managerial and professional
specialty occupations ..............
472
468
387
Technical, sales, and administrative
support occupations........... ••
375
677
469
Farming, forestry, and
fishing occupations..... ...........
39
87
12
Precision production, craft, and
repair occupations .................
189
335
205
Service occupations ...................
253
415
277
Operators, fabricators, and laborers..
333
547
589
Industry
'
Agriculture, forestry, and fisheries..
68
61
27
Mining.. ...........................
0
0
6
Construction ..........................
40
136
100
Manufacturing .........................
602
669
568
Transprotation........................
6
54
60
Communications and public utilities...
17
105
55
Wholesale trade .......................
Retail trade.. •
85
245
146
491
78
267
Finance, insurance, and real estate
54
89
49
Business and repair services..........
16
46
35
'
Personal, entertainment,
andrecreation services.... ..•..•..••
67
116
139
Professional and related services.....
374
422
414
Public administration .................
87
194
141
Class of Worker
Private wage and.salary workers........
1,194
1,778
1,349
Federal government workers............
70
80
96
State government workers ..............
171
157
233
-Local government workers ..............
Self-employed workers...
183
36
401
113
165
96
_4-

Table 2
INCOME CHARACTERISTICS, 1979
(Source: U.S. Bureau'of Census)
Plymouth
Williamston
Edenton
Income in 1979
Number of Households .....................
1,604
2,153
1,917
Less than $5,000......................
402
458
522
$5,000 to $7,499......................
144
289
0 280
$7,500 to $9,999......................
121
165
162
$10.000 to $14,999....................
268
454
339
$15,000 to $19,999....................
172
271
197
$20,000 to $24,999....................
222
168
161
$25,000 to $34,999............. ........
160
226
135
$35,000 to $49,999....................
76
98
57
$50,000 or more .......................
39
24
64
Median income .........................
$12,163
$11,529
$9,915
Mean income ............................
$15,189
$14,147
$14,872
Number of Families., .....................
1,287
1,549
1,455
Median income .........................
$14,875
$14,068
$12,019
Mean income ...........................
$17,189
$16,513
$17,264
Unrelated Individuals 15 years and over..
361
720
503
Median income .........................
$3,700
$5,474
$4,500
Mean income ...........................
.$6,143
$6,963
$6,796
Per Capita Income ........................
$5,221
$5,031
$5,299
Income Type in 1979
Households with earnings .................
1,252
1,715
1,446
Mean earnings .........................
$16,781
$13,746
$16,080
Households with Social Security income...
421
680
646
Mean Social Security income...........
$3,723
$3,327
$3,333
Households with public assistance income.
206
277
272
Mean public assistance income.........
$1,868
$2,127
$1,285
Income Below Poverty Level, 1979
Families .................................
262
274
387
Percent below poverty level........
20.4%
17.7%
26.6%
Householder worked in 1979,...........
112
135
163
Householder 65. years and over.........
48
32
77
Unrelated Individuals
174
278
222
Percent below poverty level........
48.2%
38.6%
44.1%
Worked in 1979
29
53
59
65•years and over
79
156
138
Persons for whom poverty status is
determined...... ....................
1,118
1,440
1,589
Percent below poverty level.........
24.5%
24.3%
30.5%
60 years and over... ..................
210
280
345
65 years and over .....................
161
.205
283
-5-

TABLE 3
75 and over
70-74
65 - 69
60 - 64
55 - 59
50 - 54
45 - 49
40 - 44
35 - 39
30 - 34
25 - 29
20 - 24
15 - 19
10 - 14
5 - 9
0 - 4 yrs.
75 and over
70 - 74
65 - 69
60 - 64
55 - 59
50-54
45 - 49
40 - 44
35 - 39
30 - 34
25 - 29
20 - 24
15 - 19
10-14
5 - 9
0-4yrs.
CITY/COUNTY POPULATION PYRAMID
1980
600 500 400 300 200 100 100 200 300 400 500 600
MALE FEMALE
1970
600 500 400 300 200 100 0 100 200 300 400 500 600
MALE FEMALE
PLYMOUTH
WASHINGTON COUNTY

same phenomenon as the rest of the nation in that it's population is
getting older. By comparing the 1970 and 1980 pyramids, we see -an
increase in senior citizens and a decrease in the pre-schoolers. As the
"baby boom" generation moves through the pyramid, changes in emphasis for
various public and private facilities will occur. In the future, the
town will need to address problems related to more senior citizens and
fewer school children, unless there is an increase in the town's economic
attractiveness, which would serve to attract new population from the
outside. Currently, there is no seasonal population for the town to
contend with.
The Town of Plymouth reflects many small towns in population and
economy. The population of Plymouth can increase or decrease depending
on the willingness or the lack of it by the community leaders and the
citizens in making a commitment. This holds true for the economy as
well.
Local Economic Base and Employment
The local economic base is heavily dependent upon the major
manufacturing employers in the area. When compared to the nearby towns
of Williamston and Edenton, Plymouth compares favorably with regards to
income statistics. However, upon examination of the Labor Force
statistics for the three towns, it can be seen that Plymouth has a
lopsided dependence upon manufacturing positions. The large percentage
of the population of the Town of Plymouth in manufacturing tends to
improve the general employment picture, -but it can also cause a problem
if those industries decrease their labor force. The community should
take an active effort to diversify its economy. Potential resources that
can be utilized more effectively in the future are the historic
riverfront and downtown area, and the U.S. 64 "Bypass" for tourist and
commercial activity. U.S. 64 is the area in Plymouth where the greatest
amount of commercial expansion is occurring, and this trend is expected
to continue in the future. Current plans to improve and widen the
highway within the city to a five lane thoroughfare can be expected to
facilitate growth in this area.
Income
' The income of the citizens of Plymouth is better than most of the
surrounding communities. Hopefully, this will continue, but every effort
must be made to diversify the economy and seek new ways to improve the
economic well-being of the community. This includes improving education
opportunities, seeking new industry, improving business opportunities,.
diversifying the economy, and enhancing recreation activities. To do
this the community leaders will have to recognize and develop potential
areas of growth and attempt to enhance economic activity.
' Summary
The data used in this section was obtained from the 1980 U.S. Census
of Population, the 1984 North Carolina Statistical Abstract, and the
-7-

North Carolina Department of Administration. The data has been analyzed
by comparison of key indicators of well being (i.e. income, population,
occupation, etc.) with other similar size towns in the surrounding
region. This was done to determine if Plymouth has similar
characteristics with other towns.
Similar indicators for Washington County were collected and compared
with the six counties that lie along its borders. This was done to
determine whether Plymouth is positively or negatively affected by
economic conditions within Washington County. The comparison reveals
that Washington County fares equally as well as Plymouth in most
categories when compared to its neighbors, and that the county economic
situation does not adversely affect Plymouth.
The major economic base is in the industry located in and nearby the
town. The next largest categories in terms of employment are
professional services and retail trade which have a combined employment
equal to those employed in manufacturing. For the town to grow in
population there will have to be an increase in the amount of industry
located in Plymouth as well as an expansion of its retail and service
sectors. There is great potential for this to occur and, should the town
effect a course of planned and sustained growth, Plymouth could become a.
major sub -regional center of trade.
In general, the Town of Plymouth shows a population and economic
situation shared with many small towns across the United States. A
population that is relatively static or slightly decreasing, and the
continuing dilemma of low income and public assistance for far too many
families. Plymouth is more fortunate than many towns, in that
unemployment is lower than the.average, and it has the potential to
improve.

I
I
III. EXISTING LAND USE
A survey and analysis of existing land use provides another element
necessary for good community planning. Like the population and economic
base of the town, the existing land use helps to discern the overall
pattern of settlement and the relationships between the different land
uses. During March of 1986 a land use survey was completed for the
Town of Plymouth. The result of the survey for the town is mapped in
Figure 1. Land use was divided into eight functional categories as
follows: 1) single family residential, 2) multi -family residential, 3)
commercial, 4) office and institutional, 5) industrial, 6) recreational
open space, 7) vacant or undeveloped, and 8) utilities. The compatible
and incompatible uses of land show up clearly in Figure 2 (i.e. where
industrial and residential uses are located beside one another without 'a
buffer zone). This comprehensive view of current land use makes it
possible to devise efficient policies which will encourage conformance to
desired standards. This ability is needed to provide the Town of
Plymouth with a frame of reference for future land use.
Growth Patterns
The pattern of existing land use is easily understood. The central
business district is located at the river where in the past the major
commercial activities have been located. Surrounding the central
business district (CBD) are the older homes in the town, many of which
are of historical and architectural significance. The railroads on the
upland generated industrial activities in the latter 18001s, and housing
filled in between the railroads and the CBD. Since World War II and the
relocation of U.S. 64 near the railroad, many commercial activities have
been generated supplying needs of travelers and residents of Washington
County. Now roads leading into the countryside are being lined with
additional housing and some scattered businesses. Still, there is much
vacant land in the Town of Plymouth and its surrounding area available
for development.
Residential Land Use
Residential land use in Plymouth occupies about twenty-seven percent
of the town, with about twenty-three percent in single family and almost
four percent in multifamily respectively (see Table 4). There are ten
residential neighborhoods in the town which are rather compact units.
Additional residential areas are in subdivisions outside of the town and
along roads. There are five multifamily areas which are mostly public
housing units. These units are usually near commercial areas. It should
be noted that some residences are being converted to businesses,
particularly near the downtown and along the highways.
Commercial Areas
The central business district of the town is concentrated within a

41
• .
• •
• \ \ • • BEN TIE COUNTY
• ' • • • • • ROAROKE
Ifi
1 �C66�
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1,
j •
•
•
•
•
•
•
•
•
•
• tz-X I ST I NG
LAND USE
•
• Commercial/Office/Institution
• Residential
Recreational
J
•
•' Industrial
.•
• ❑ Vacant or Undeveloped
FIGURE 1
._.,.. W....<..............�.., ...,.. °'
• • • 0
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• . . • • • • ' ..... s... r..w

LAND USE BY
CATEGORY
Land Use
Area 1
Area 2
Area 3
Single Family Residential
23.1%
13.0%
11.3%
* 561.8 acres
Multi -family Residential
3.7%
1.4%
1.2%
89.9 acres
Commercial
6.4%
2.9%
2.5%
155.6 acres
Office and Institutional
4.5%
2.2%
1.9'_
109.4 acres
Industrial
0.8%
0.5%
12.4%
19.5 acres
Recreational
4.2%
1.4%
1.2%
102.1 acres
Vacant Land
57.3%
78.6%
71.5%
1393.5 acres
Area 1 - Area within Plymouth Town Limits.
Area 2— Area approximately within one mile of the town limits in
Washington County.
Area 3 - Areas 1 and 2 combined including section within Martin
County.
* Acreage figures apply only to areas within town limits.
Table 4.
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few blocks of the river. In several locations the CBD has encroached
into nearby residential areas. The CBD, which contains the Washington
County Court House and other county administrative buildings, is an
important function in the downtown area. Another important downtown
activity in addition to the businesses is the Town of Plymouth
governmental activities including the police and fire departments. In
many respects the CBD continues to be the center for many functions and
activities. The U.S. 64 highway commercial area generates local and
regional customers. By far, most of the county's commercial activity is
located along the highway. In addition to the highway oriented business
activity, farm service establishments, two small shopping centers and the
Washington County Hospital are located on U.S. 64. Other commercial
activities are usually the individually owned and operated businesses
located in a number of neighborhoods throughout the community. In all,
about six and a half percent of the town is occupied by business
activities.
Office and Institutional Land Use
'
The office and institutional land uses include banks, business
offices, governmental offices, churches and schools. These types of land
uses occupy about four and one half percent of the town. Most of this
category is located in the CBD or along the major roads; except for the
'
schools.
'
Industrial Land Use
The industrial land uses comprise less than one percent of the area .
in the town. There are only a few parcels of land devoted to industrial
use in the town. They are located near the river or along the highway.
'
Recreational Open Space
There are several public and private recreational areas in the
community which comprise a little over four percent of the land. The
'
privately owned golf course is by far the largest parcel. Several
neighborhoods have open space such as little league fields and small
parks for recreational purposes. An inventory and assessment of
'
recreational areas in Plymouth has recently been completed and is
available at the municipal building.
Vacant Land
Vacant land in the town amounts to about fifty-seven percent of the
'
total area. A considerable amount of the vacant area is in floodable
areas, taken up by farm use, or not being used. "The large amount of
vacant land within the city allows for a considerable amount of
'
"infilling" in the event of new development.
-12"

I
IUtilities and Streets
This category of land use is part of the vacant land,
percentage -wise. There are numerous places in the town being used for
water, sewer and electrical lines including pumping stations, electrical
substations and treatment facilities, as well as streets and highways.
' This is an.important use in the communities as it provides for the
distribution of people, goods and services.
Summary
' The existing land use in Plymouth appears to be distributed in a
logical fashion similar to other small communities. With more than fifty
percent of the town being vacant or undeveloped, there is room for
compact and more intensive development in the future. The future
' development, however, should be guided by an informed citizenry. To this
end, the land use plan for 1986 is part of the continuing planning
process.
-13-

fl
IV. EXISTING PLANS, REGULATIONS AND CONSTRAINTS
This section contains a summary of the conditions, plans, and
policies related to land use. Items included in this section contribute
to the overall town land use planning process. This part of the land use
plan should provide the citizens with an idea as to how plans and
regulations are related to land use. A broad range of regulatory powers
are available to the town, however, most of the regulations that have.a
major impact on land use are enforced at the state or federal level. The
following is an outline of the regulations that are currently enforced.
State and federal regulations which are enforced in the town are listed
in Appendix B.
Transportation Plans
The Town of Plymouth has a thoroughfare plan dated 1971. This does
not include all the necessary elements of a transportation plan.
Further, the street plan is obsolete. At the present time, the U.S. 64
bypass is being scheduled for widening and improvement. The input by the
planning commission on this project has been minimal if not nonexistent.
There is no other aspect of land use planning as'important as
transportation. Consequently, the town must make every effort to
coordinate the town's plans with those of the North Carolina Department
of Transportation.
The major highway connecting Plymouth with other towns is U.S. 64.
This highway is the major east -west highway with its eastern terminus on
the outer banks and its.western terminus at Fort Smith, Arkansas. From
north to south, N.C. Routes 32.and 45 connect Plymouth with towns and
cities along the Atlantic coastal plain. In' addition to land
transportation routes is the Roanoke River. The Roanoke is a major water
course in North Carolina, although Plymouth makes little use of it
today. The potential use of the Roanoke River for recreation as well as
carrying commercial watercraft is excellent The Town of Plymouth owns
and somewhat meagerly supports an airport. This aspect of transportation
also has excellent potential if properly supported.
' Public transportation is not readily available for the Town of
Plymouth. Some limited transportation access is provided by bus to other
-towns, and taxicabs are the major source of internal transport.
Schools
' The Washington -County Board of Education currently operates the
schools in the county. Consequently, the Town of Plymouth, as a viable
force, plays a small role in school planning. Of major concern is the
lack of interaction between the school board and the town. An urban
community has different educational needs.than the rural areas of the
county. Not only does the physical facilities and programs of the
schools in -Plymouth need to be improved, but additional land must be
obtained for the schools, particularly the high school. Finally, the
-14-

Town of Plymouth should increase local post high school or adult
education opportunities.
'
The Town of Plymouth must make every effort to be involved in school
planning. A school plan should be a part of the Plymouth comprehensive
plan so that an adequate financial base and land is available for use by
'
the school when needed.
A new elementary school has recently been completed outside the town
limits but within the extra -territorial jurisdictional area. This school
'
replaces the old elementary school located on Washington Street in
Plymouth. No plans have yet been proposed as to what use can be made of
the old facility.
Community Facilities Plan
The Town of Plymouth does not have a community facilities plan. A
community facilities plan is concerned with town services and buildings,
including water.and sewer service, recreational facilities, and police
and fire protection.
Recreation'Prokram
The Town of Plymouth does not have a recreation program per se, as
1 recreational activities are not funded or provided by the town.
Washington County, however; pays a pro rata amount for recreation to all
towns. While there are land parcels devoted to recreational use, funding
for recreational activities are provided and coordinated by individual
organizations.
. Capital Budget & Capital Improvements Program
The Town of Plymouth currently administers capital budget and capital
improvements programs. These programs have been adopted since the 1981
land use plan update.
Housing Ordinance
Plymouth has adopted and is implementing a minimum standards housing
ordinance, which was called for in the 1981 land use plan update.
Solid Waste Collection/Disposal
Plymouth operates a solid waste system collection system. The
disposal is located at the Washington County Landfill. The landfill is
approximately nine acres in area and is located one mile north of SR
1300, northeast of Westover. It is utilized by Washington County,.Roper,
Creswell, and Plymouth. The site is expected to last until 1991 unless
peat mining operations in the eastern part of the county begin before
' then. The ash waste from the activity would be stored at the county
-15-

landfill thereby shortening the life of the facility considerably. There
are currently three sites within the county under consideration and it is
' expected that a new site will be chosen well before the current facility
is full.
Prior Land Use Plans
The Town of Plymouth utilizes the 1981 CAMA Land Use Plan for
references on land use policies. Policies regarding land use in the town
are outlined in that plan. Once the 1986 land use plan is adopted, it
will supercede the 1981 plan including the policies therein.
Floodway Ordinance
This ordinance is currently enforced in Plymouth as certain areas
have been designated as flood hazard areas. In 1977, a flood insurance
rate map prepared by the National Flood Insurance Program was adopted by
Plymouth.
Building Code
The Town of Plymouth presently enforces a building code. This is
accomplished by a permit letting procedure through the Washington County
Building Inspector.
Septic Tank Regulations
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.
Subdivision Regulations
The Town of Plymouth has recently enacted subdivision regulations and
are enforced by the town at the present time.
Zoning Ordinance
The Town.of Plymouth enforces a zoning ordinance at the -present time
which includes the town and a one mile extra -territorial jurisdictional
area.
Implementation and Enforcement Ordinance
The CAMA minor permit issuing system is enforced in the town. This
system governs development within designated AEC's.
-16-

Constraints Related to Town Facilities
Most types of development are d6pendent upon the location and
capacity of sewer and water facilities. These basic necessities in an
urban area are often the controlling factor in the location of growth,
along with streets and highways. Expansion of water and sewer lines into
undeveloped areas typically promotes development. Plymouth does not
serve all of the land within its corporate boundary, nor are there plans
in the foreseeable future for construction of such. This should be
remedied as soon as possible.
At the present time the water plant has a capacity of 800,000 gallons
per day (GPD), but is being expanded to 1.2 million GPD. The wastewater
treatment plant, which was expanded in 1977, has a capacity of 800,000
GPD. Both plants are nearing their maximum capacity for use.
Soils Limitations•
IThe soil survey for Washington County indicate some poor to very
poorly drained soils in Plymouth. These soils are not suitable for
septic tank use. The soils that are not suitable for urban uses
'
generally conform to the areas in the floodable areas and the
conservation zones (see Figures 2 & 3). The soils existing in these
areas are listed below:
1) Argent silt loam
2) Augusta fine sandy loam
3) Dogue fine sandy loam, 0 to 3% slope
1
4) Dorovan muck
5) Muckalee loam
6) Roanoke fine sandy loam
7) Wahee fine sandy loam
The specific locations and characteristics of these soils are listed
I
and displayed in the Washington County Soil Survey. These soils are
generally considered to be unsuitable for urban development, therefore,
such uses should be avoided where they occur. Because these soils
generally lie within conservation zones and floodable areas within the
town, development on these types of soils has not been a problem.
However, some of these soils exist in areas subject to development both
'
inside and outside of the town limits and will need to be closely
monitored and/or regulated due to soil limitations. Every effort to use
soils for their best possible use should be made.
1
Limitations Due to Areas of Environmental Concern (AEC's)
1 Of the two broad categories of statutorily defined Areas of
Environmental Concern (AEC's) and Ocean Hazards AEC's, only the estuarine
system is applicable to the Town of Plymouth. All of the AEC's in
Plymouth's estuarine system were listed in the 1981 Land Use Plan
-17-

Update. Although these AEC's have not changed, it may be useful to
define these important areas prior to listing them again in this Update.
' 1) Estuarine Waters AEC's and Estuarine Shorelines AEC's
Estuarine waters are defined in G.S. 113A-113(b)(2) as "all the water
1 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 Natural Resources and Community
Development."
I
Estuarine shorelines are those non -ocean shorelines which are
especially vulnerable to erosion, flooding, or other adverse effects of
wind and water and are intimately connected to the estuary. These
shorelines can be wetlands as well as dry land. They extend from the
mean high water level along the estuaries, sounds, bays, and brackish
waters for a distance of 75 feet landward; as set forth in an agreement
adopted by the Wildlife Resources Commission and the Department of
Natural Resources and Community Development.
As an AEC, estuarine shorelines, although characterized as dry land,
are considered a component of the estuarine system because of the close
association with the adjacent estuarine waters. Estuarine waters and
adjacent estuarine shorelines make up the most significant components of
the estuarine system in Plymouth. The significance of the estuarine
system is that it is one of the most productive natural environments of
North Carolina. It not only supports valuable commercial and sports
fisheries, but is also utilized for commercial navigation, recreation and
aesthetic purposes. Species dependent upon estuaries include menhaden,
shrimp., flounder, oysters and crabs. These species make up over 90
percent of the total value of North Carolina's commercial catch and must
spend all or part of their life cycle in the estuary. The preservation
and protection of these areas are vitally important. The Estuarine
Waters AEC's and adjacent Estuarine Shorelines AEC's in Plymouth consist
of the following:
a) The Roanoke River and its adjacent shorelines, extending
landward for a distance of 75 feet.
b) Conaby Creek and its adjacent shorelines, extending landward
for a distance of 75 feet.
c) Welch Creek and its adjacent shorelines, extending landward
for a distance of 75 feet.
2) Public Trust Waters AEC's
Public Trust Waters are partially defined as all waters of the
Atlantic Ocean and the lands thereunder from the mean high water 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
mark; all navigable natural bodies of water and lands thereunder to the
-18-

mean high water level or mean water level, as the case may be. In other
words, public trust areas are waters and adjacent lands, the use of
which, benefits and belongs to the public and to which the public has the
right of access.
Also, in the Town of Plymouth, all of the waters listed as Estuarine
Waters AEC's are defined as Public Trust Waters AEC's. Currently, all
development and development -related activities within their designated
AEC's in Plymouth are regulated by the CANA permit process and are guided
by local policy (local governments may develop its own use standards for.
AEC's if they choose to be more restrictive than the State's use and
performance standards).
-19-

V. STORM HAZARDS PLANNING AND MITIGATION
The 1986 land use plan addresses storm hazard mitigation and planning
issues for the first time. Storm hazards are far more serious than
commonly perceived, but the series of tornados which struck eastern North.
Carolina in March of 1984 may have raised attention to storm planning and
mitigation. This section of the land use plan is offered to help the
Town of Plymouth prepare for these hazards.
There are numerous natural hazards but, due to many factors, only a
few are likely to occur in'Plymouth. Of particular concern for Plymouth
is the potential for high winds such as hurricanes and tornadoes, heavy
rains bringing the flooding of lowlying areas and snow and ice storms.
Although Plymouth is located inland from coastal water, flooding of the
Roanoke River and its tributaries is not an unlikely phenomenon. In
order to effectively plan for storm hazards and their periodic
reoccurrence, a comprehensive approach is necessary. This involves the
combined efforts of the local planning commission and the Emergency
Management Coordinator in the Emergency Operating Center of Washington
County.
There are typically four parts of a comprehensive emergency
management plan. One part includes the land use plan. The four parts
are defined as:
1. Mitigation - the activities which actually eliminate or reduce
the probability or occurrence of a disaster caused by a hazardous event.
It also includes land use planning and other long term activities which
reduce the effects of hazardous events.
2. Preparedness - the activities that are necessary when mitigation
measures have not, or cannot, prevent disasters caused by a hazardous
event. This phase involves the emergency management team to assist in
saving lives and.property and to enhance response operations.
3. Response - these activities follow an emergency or disaster. Of
primary concern is emergency assistance to casualties. Also, the
emergency management team seeks to reduce secondary damage and to speed
recovery operation.
4. Recovery - these activities involve short and long term
operation. In the short term, the' emergency management team attempts to
restore all systems to normal operation. This includes vital life
supporting systems. In the long term, recovery involves return to life
at normal or improved levels. This step should involve the town planning
process.
In general, mitigation and long term recovery require the town
planning process, while preparedness, response and short term recovery
fall within the responsibility of the Emergency Management Coordinator.
Coordination between emergency management and the town planning officials
is mandatory for a successful mitigation of hazards.
-20-

A post disaster reconstruction plan is designed to operationalize
clean up procedures after the storm. This involves the immediate clean
up plans for long term redevelopment. A recovery task force should be
established to schedule priorities for redevelopment. Repair and
reconstruction guidelines should be established. This phase of the plan
requires coordination of the local government and emergency management
officials.
The local government is required to evaluate the adequacy of
' evacuation routes used in emergency situation. The routes should be
critically assessed for their efficient use. If the required evacuation
time exceeds the standard warning time as provided by the National
' Weather Service, officials should consider adopting policies which would
improve the adequacy of the routes. This step may involve coordination
with the Division of Emergency Management and the Department of
Transportation.
' Mitigation of Hazards
' There are three steps of hazard mitigation: 1) to identify the
frequency and magnitude of the hazards in the community, 2) to conduct a
vulnerability analysis, and 3) to generate measures for minimizing damage
that is'likely to occur.
Plymouth has three major areas which require mitigation action: 1)
the Roanoke River.shoreline and wetlands, 2) Welch Creek and adjoining
' lowlands, and 3) Conaby Creek and adjoining lowlands (see Figure 2).
These areas, on the average, can reach flood levels -every 1.2 years, and
flood their stream banks every 2.33 years. However, damaging floods
causing erosion and inundation of occupied areas will occur less
frequently.
The potential level of damage to life and property in the hazard
areas of Plymouth is considered relatively small (see Table 5). The
Roanoke River has controlled flow because of several dams upstream of
Plymouth, therefore, inundation can occur both naturally with high wind
' tides from the east or man induced flooding from the west. The Town of
Plymouth would receive some damage from hurricanes powerful enough to be
rated above a Force 3 on the Saffir/Simpson Hurricane Scale. These
storms would have wind speeds in excess of 130 MPH and storm tides in
' excess of ten feet above mean high tide. These areas of storm water
inundation are identified in Figure 2.
It is likely that some roads would become flooded where they bridge
streams. It is also likely that the basements of the stores on the north
side of Water Street will be flooded. Generally, there are very few
structures in Plymouth that would be flooded.
The people of Plymouth have been wise in their use of land through
the years. Most development has occurred on the high ground except for a
' few instances. With increasing.population and economy in the area there
will be a demand for intensifying water oriented land uses. While
Plymouth is.not in the mainstream of coastal development, it should be
anticipated.that development in and near hazard areas will occur. At the
' present time there are few mitigation policies and regulations in
-21-

r� . �■■� i■r r rr rr r� � r r ri r� r r � � r � �
SEVERITY OF RISK
Wave
Severity Erosion/ Action/ High
Hazard Area Rank Scour Battering Flooding Wind
Wetland 2 0 0
A -Zone Flood Zone 3
N Remainder of Town 4
N
Risk levels: High (0), Moderate (0), Low ( )
Table .5
0
0
0
( 0
0

W-.R
0
0
• • • • • • • • • • • •
•
FIGURE 2
FLOODABLE
AREAS
® 100 year flood zone
Im 500 year flood zone

Plymouth. There are state and federal regulations in effect, but the
Washington County Disaster Relief and Assistance Plan is the only major
document to mitigate hazardous threats. Other mitigation measures
'
include, but are not limited to the following:
1) Building Codes
2) Zoning Ordinance
'
3) Tax Incentives/Disincentives
4) Land Use Management
'
5) Safety Codes
6) Preventative Health Care
7) Public Education
8) Building Use Regulations, and
'
9) Resource Allocations
Several of the measures indicated above are currently in operation in
Plymouth. Others are functioning, but need improvement. The town has
'
chosen to incorporate other measures into their current regulations as
indicated in the policies section of this plan.
'
Storm hazard mitigation requires coordination of many agencies for
successful operation. A comprehensive effort is necessary to fully
realize a mitigation plan and its relation to the overall emergency and
town planning processes. Appendix C includes the Post Disaster
'
Reconstruction Plan for Plymouth.
' Adequacy of the Disaster Relief Plan
The purpose of the Disaster Relief Plan is to prevent or lessen the
' effect of disasters on the people and property in Plymouth. The plan for
Washington County adopted in 1983, of which Plymouth is a part, is
considered adequate in its intent, scope and composition.
' Adequacy of the Hurricane Evacuation Plan
' The purpose of the evacuation plan for Washington County is to
provide for an orderly and coordinated evacuation to minimize the effects
of hurricanes on residents and visitors. The plan's scope, organization,
' concept of operation, warning and alert system, increased readiness
action checklist, evacuation areas, routes and shelter location, reentry
procedures, responsibility groups, communications and public information
activities, are considered adequate. It must be realized, however, that
' this is a plan for Washington County as a whole, and not a specific plan
for Plymouth: Further, it is a plan for local use and not a plan to
shelter an excessive number of visitors or evacuees from other areas..
-24-

fl
VI. ISSUES, POLICIES AND IMPLEMENTATION
'
Land Use Issues
'
Land use issues are related to the concern for, or that which
affects, the welfare and the happiness of the citizenry. The people
should have a continuous interest in how the land is used, both now and
t
in the future. Some issues revolve around how to protect the Town's
natural resources. Other issues are concerned with economic and town
development. How to protect the Town's natural heritage while attempting
to sustain or increase economic growth and improve the community is of
particular importance to the future of Plymouth. Many of these issues
evolve from a difference of opinion as to how the land is to be used.
The resolving of these and other issues can be accomplished through
continuous public participation.
The issues to be addressed in this land use plan have been generated
by the Planning Board after considerable thought and deliberation. Many
of the issues are concerned with economic and town development. The
issues are as follows:
'
1) U.S. 64 bypass congestion.
2) Lack of controlled growth.
3) Poor streets and lack of parking.
'
4) Lack of economic growth.
5) Lack of public owned recreation areas.
6) Lack of curb and gutters downtown.
7) Housing renovation needed.
'
8) Lack of progressive leadership.
9) Downtown redevelopment needed.
10) Mass transit needed to other towns.
11) Better police protection.
12) Train blocks access to hospital.
13) Conaby and Welch Creeks needs improvement.
'
14) Protection of prime farmland.
• 15) Poor drainage systems and outlets.
16) Water and wastewater system needs improvement.
'
17) Roanoke River and waterfront needs improvement.
These issues can be resolved through strategies or policies developed and
implemented by the town. This provides a basic approach and a guide for
'
solving land use issues before they materialize or become unsolvable. At
the center of policy formulation is the town planning effort. The
reasoning here is that the town planning board has the necessary
resources to be the major source of data and information which is
essential in determining issues and policies. Further, it is equally.
important to solicit public views on issues and -related policies. The
'
planning process allow this to occur most effectively.

1
I
n
n
n
Land Use Policies
The formulation of policies in this plan is based on an open process
of consultation, negotiation and compromise. Generally, policies can be
designed so as not to take action on an issue or to delay resolution of
controversial issues. The planning board decided against these options
wishing to resolve each of the issues. Thus, a policy and a means of
implementation is articulated for each issue.
To successfully accomplish this land use plan there must be a course
of action. Through the policy statements, which indicate how it is
intended to solve land use issues, the planning policies are divided into
five categories: 1) resources production, 2) resources protection, 3)
economic development, 4) hazard mitigation, and 5) public participation.
Resources Protection Policies and Implementation
The citizens of Plymouth are concerned for the protection of the
Town's natural resources. Protection of natural resources provides for
the Town's long term economic viability. The protection mechanism is
largely one of properly managing the resources. Non-renewable resources
must be protected for economic purposes and for the public good. The
resources protection policies herein are to improve, maintain and limit
uses of the.natural resources for the public good..
Because of the different physical characteristics that exist
throughout the 20 county CAMA jurisdictional area, there are often
several issues that do not directly apply to a given community. In the
case of"Plymouth, these issues include beach erosion and nourishment,
damage due to wave action, channel maintenance, maritime forests, island
development, off -road vehicle use, marina and floating home development,
use of package treatment plants, or protection of potable water. Though
marina and floating home development could occur in Plymouth, there has
never been any pressure for such development in the past and none is
expected in the near future. Plymouth maintains a town sewer system,
therefore the use of package plants are not a concern. The town's water
comes from a well approximately 800 feet deep and there has never been
any problem with quantity or quality of its water supply. There is no
known land use within the town that could potentially damage the water,
therefore protection of potable water is not an issue.
The Town of Plymouth desires to use the natural resources which are
available in a manner consistent with the best conservation and resources
management practices. Certain uses are acceptable -even while protecting
the environmental resources. The policies generated show how to use the
resources while they are being protected.
Policy and Implementation Related to Soils
It is the.policy.of the Town of Plymouth to use the Washington County
Soil Survey for land use planning purposes. In order to implement this
-26-

Ipolicy the following will be accomplished in the next two years:
' 1) 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 this plan.
' 2) Allow septic tanks and nitrification fields to occur on
suitable soils through actions by the local sanitarian.
3) Allow the best farmland soils to remain through zoning
and/or tax incentives.
Policy and Implementation Related to Floodable Areas
It is the policy of the Town to minimize development in flood prone
areas, specifically, areas delimited by the federally designated 100 year
flood zone. Such development that does occur within this flood zone must
meet all federal, state, and local standards before the issue of any
permits by the town. The Town of Plymouth currently participates in the
Federal Flood Insurance Program, and enforces a municipal flood
ordinance.
Policy and Implementation Related to Fragile Areas and AEC's
The Town recognizes the importance of protecting environmentally
fragile areas and is committed to the maintenance of the areas within its
jurisdiction. The areas currently viewed as environmentally fragile by
the Town of Plymouth are: 1) the CAMA Areas of Environmental Concern
(AEC's) which includes the estuarine waters of the Roanoke River, Conaby
Creek, and Welch Creek, and their estuarine shorelines (these same water
bodies are also by. definition Public Trust Area AEC's); 2) Federal (404)
wetlands as designated by the Army Corps of Engineers; and 3) the areas
within the one hundred (100) year flood zone as designated by the Federal
Flood Insurance Program.
It is the policy of the Town of Plymouth that any development
' occurring within these fragile areas must conform to all federal and
state regulations and local ordinances regarding development. For
purposes of CAMA land classification, the aforementioned fragile areas
shall be included in the conservation class and shall be subject to all
criteria that are associated with the conservation class. To facilitate
protection of these environmentally sensitive areas, the following shall
be accomplished within the next five years:
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.
' Policy and Implementation Related to Stormwater Runoff
Stormwater runoff is one of the most serious.issues facing coastal
' North Carolina. Runoff carries contaminants from both urban and rural
_27_

'
areas alike into our rivers and estuaries killing both plant and animal
life. The problem is not isolated to a few key areas, rather, it occurs
everywhere there is intensive urban or agricultural activity. The policy
'
of the Town of Plymouth is to manage stormwater runoff in the most
efficient and effective way. In order to implement this policy the
following items will be accomplished in the next five years:
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. -
Policy and Implementation Related to Cultural or Historic Resources
Plymouth is a historic town with several areas containing culturally
significant resources. First, the floodplain of Welch Creek is an area
of high probability for archeological resources. Second, the Roanoke
'
River and its south bank (the town side) contains shipwrecks and wharf
sites. Lastly, the downtown area between the railroad and the river is a
archaeologically sensitive area. The architectural or historically
significant structures identified in the most recent (1976) survey are
'
listed in Appendix D.-
The.policy of the Town of Plymouth is to protect the cultural or
historic resources in the community. In order to implement this policy
the following items will be accomplished in the next five
years:
1) Identify all cultural or historic resources
in the community.
2) Establish and zone historic structures and/or districts
in the community as appropriate.
Policy and Implementation Related to Environmental Impact
'
It is the policy of the Town of Plymouth to protect its environmental
integrity. In order to implement this policy the following will be
accomplished in the next five years:
1) To seek and support legislative action for more stringent
regulations with respect to air and water quality.
Resources Production Policies and Implementation
'
There is a need by the Town of Plymouth to maximize the production of
its natural resources. Agricultural production, forestry, fishing and
'
recreation are desired. 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.
-28-

The resources production policies attempt to improve the continued
use of the natural resources in the coastal zone. The following policies
have the purpose of protecting the resources to ensure a future economic
return as well as to safeguard the environment from degradation.
Policy on Public Access to the Waterfront
Beach access does not apply to Plymouth; however, tourism and
waterfront access are two areas that are of great importance to the
future development of Plymouth. The Roanoke River is one of Plymouth's
greatest assets and every effort should be made to provide more and
better access to the river. The Town of Plymouth will pursue cooperation
of downtown waterfront property owners in revitalization of the
waterfront as well as working toward establishment of additional public
access areas for the river. The Town will request funds from the N.C.
Division of Coastal Management to conduct a survey of present points of
public access to the river. The Town will also prepare preliminary plans
on better utilization of existing areas and recommendations and
implementation strategy on development of additional river access areas.
Policy and Implementation Related to Farmland
It is the policy of the Town of Plymouth to protect the prime
farmland within its jurisdiction. In order to implement this policy the
following items will be accomplished in the next five years.
1) Protect prime farmland
ordinance.
2) Allow prime farmland to
land.
through the zoning
be taxed as agricultural
Policy and Implementation Related to Forests
'
It is the policy of the Town of Plymouth to protect forests. In
order to implement this policy the following will be accomplished in the
next five years:
1) To protect trees and forests in the town by enacting an
arbor ordinance.
2) To maintain the trees and other flora on public lands and
rights of way.
'
3) To minimize commercial forestry activities within the
town.
Policy and Implementation Related to Fisheries
Commercial fishing is not a significant economic activity in the Town
'
of Plymouth. Figures -for the value of catch for Washington County are
available in the Washington County land use plan. Recreational fishing
is much more widely practiced and is a valuable recreational resource for
-29-

the town. It is the policy of the Town of Plymouth to protect the
P
fisheries and nurseries in the area. In order to implement this policy
the following will be accomplished in the next five years:
1) Seek better regulation of upstream flow on the Roanoke
River.
2) Support efforts to improve water quality on the Roanoke
River and all its -tributaries.
3) Conduct implementation tasks related to stormwater
runoff policy.
Economic and Town Development Policies and Implementation
The Town of Plymouth is largely dependent upon one industry which is
located just outside the town corporate boundary, and in another county.
While Plymouth is the commercial hub of Washington County as well as the
county seat, this industry is, by far, the most important for the flow of
'
family income in Plymouth, but not a source for town revenues. The
purpose of town development is to generate additional jobs, income, a
larger tax base, and a favorable climate for additional.gr.owth and
development.
The Town of Plymouth desires to diversify its tax base by promoting
industrial and commercial development in a well managed and planned
manner. It seeks new corporate partners, while wanting to rejuvenate its
existing business activities. And the community wishes to improve its
services to its partners in the private sector of the economy. To do
'
this and still maintain its "small town" atmosphere is challenging, but
well worthwhile and within the capability of the community.
Policy and Implementation for Town Revitalization
The Town of Plymouth is currently very active with regards to town
revitalization. Since 1976 the Town Housing Authority has successfully
obtained over two million dollars in Community Development Block Grant
funds for housing revitalization. The four areas where the funds have
been utilized are:
1976 - East Water Street, $500,000.
1977 - West Main Street, $500,000.
'
1979 - Thomas Street, $500,000.
1986 - Madison Street, $650,000..
'
Since 1969 there have been three public housing projects constructed
in the town. The projects are located on West Water Street with 32
units; Plublee Court with 108 units; and Paylor Court with 50 units.
These projects have done a great deal in alleviating poor housing
conditions in Plymouth. Though housing revitalization has been very
successful, the town is in need of extensive downtown redevelopment and
'
infrastructural improvements.. These goals will be actively pursued by
the town during the next five
years.
-30-

Plymouth has also been active in improving shoreline access. A
riverfront park has been established in the east downtown area that
includes a public dock. State grant funds were used in the construction
'
of the park. The town will continue to develop available areas of the
riverfront for public access to the river. Though a riverfront plan was
previously developed by the town, it is now considered out of date and
1
needs to be revised.
It is the policy of the Town of Plymouth to revitalize the community
through downtown redevelopment, housing renovation, improvement in
streets, sidewalks and parking areas, decreasing congestion on U.S. 64
bypass, incorporating better growth management controls, improving
recreation and riverfront development. In order to implement this policy
the following items will be accomplished in the next five years:
1) Organize town revitalization committee.
2) Devise and adopt revitalization plan.
3) Devise and adopt transportation plan.
4) Devise and adopt recreation plan.
5) Improve the zoning regulations.
'
6) Install new street lighting and improve
streets, sidewalks and parking.
7) Adopt a new riverfront/downtown plan.
8),Improve enforcement of the housing code.
Policy and Implementation Related to Growth
It is the policy of the Town of Plymouth to improve growth including
industrial and commercial development. Industries desired are allowed
' for in the town zoning ordinance. In order to implement this policy the
following items will be accomplished in the next five years:
1) Organize economic development commission.
'
2) Devise and adopt economic development plan.
3) Devise and adopt a capital improvements program.
4) Organize town beautification committee.
5) 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.
Policy
and Implementation Related to New Development
It
is the policy of the Town of Plymouth to resist development
contrary to A small town. In order to implement this policy the
following.will be accomplished in the next five years:.
'
1)
Refuse to allow hazardous waste dumping sites in and near
the -community.
2)
Refuse to allow energy facilities siting and development
'
in the town.
3)
Adopt performance zoning standards for industry and
commerce.
-31-

'
4)
Conduct an annexation study and proceed to annex areas
adjacent to the existing town limits where necessary.
Policy
and Implementation Related to the Commitment for Planning and
Management
It
is the policy of the Town of Plymouth to increase its commitment
to town planning and management. In order to implement this policy the
'
following is to be accomplished in the next five years:
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.
4)
Conduct a carrying capacity study.
5)
Devise and adopt a five year comprehensive town planning
program.
Hazard Mitigation Policies
' Existing policy permits development to occur in hazard areas. It is
expected that development will likely occur in the future, and if it
does, it should be hazard proof. Where and what kind of development
should occur in Plymouth, and how this development should be constructed
so as to minimize damage in the event of a major storm are the two issues
facing the community. It is the policy of the Town of Plymouth to
protect its inhabitants against storm hazards. The Federal Flood
1 Insurance Program and town zoning are already in effect. In order to
further implement this policy the following will be accomplished in the
next five years:
1) Adopt a hazard area redevelopment ordinance.
IPolicy and Implementation Related to Public Participation
During the completion of this land use plan update, the maximum
amount of public participation was sought (See.Appendix E).
Advertisements in the newspaper were issued, public announcements were
made, and there was the regular forums of the Town Council and the
Planning Board. Unfortunately there was not a great deal of public
participation from the general citizenry of the town.
There is a need to increase citizen participation in Plymouth.
Though the town officials attempted to stimulate -public input toward this
plan, very little input by citizens other the planning commission were
used during the course of this update. It. has been known for some time
1
-32-

that there is a direct relationship between successful planning and
development and citizen participation. For an effective planning
process, citizen participation is necessary.
It is the policy of the Town of Plymouth to maximize citizen
' participation in governmental affairs. In order to implement this policy
the following will be accomplished as soon as possible:
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 town revitalization committee.
The Town Council shall be responsible for initiating these actions.
1

VII. THE LAND USE PLAN
The information for this update has been collected and analyzed, the
' issues have been listed and studied, the policies have been formulated,
the implementation for the policies have been stated, and time frames for
effectuation of the implementation tasks have been set. The final task
of this update is to devise a land use plan (see Figure 3). At this
point, the future is brought to the present by assigning different land
uses to certain areas. This distribution of the land uses reflect
population distribution, economic trends, existing land use, soils and
other natural resources, community services, storm hazards, and other
town plans.
Land Classification
The land use plan uses a land classification system recommended in
the Land Use Planning Guidelines (Subchapter 7B) which is part of the
State's administrative code. The land use categories are: 1) developed,
2) transition, 3) community, 4) rural, and 5) conservation.
Developed Land Use
' Developed areas provide for continued intensive development. These
areas have been and continue to be developed for urban areas including:
1) residential, 2) commercial, 3) industrial, and 4) institutional.
Usually, these uses are served by streets, water, sewer, police and fire
protection.
Transition Land Use
Transition areas provide for future intensive development. These
areas are considered appropriate for urban growth in the future and
should be scheduled for the necessary urban services as development
occurs. These areas should not be developed until most of the land in
developed areas has been urbanized.
Community Land Use
Community areas provide for clustered development in rural areas.
These areas allow for additional housing, shopping and public services.
They are considered to be crossroad communities and tend to serve the
immediate community and nearby rural areas. This category is not
appropriate or used in this plan.
Rural Land Use
Rural areas provide for agriculture, woodlands, mining or quarrying,
-34-

As
The preparation of this amp was financed in part through a grant provided by
me Norm Carolina coastal wmgement progren through fonds provided by the
coastal gone Nsnaaenene Act of 1972, a amended. which is edmmtstered by the
r
office of coastal Nonage nr, National Oceanic and Atmospheric Admtnfstratton.
•[II T,[ COVXTT
• • • :OANOKE p, eFA.
•As
as 0 is
• • • • • • • • • • • •
u
as
As
FIGURE 3
LAND
CLASSIFICATION
® DEVELOPED
El TRANSITION
µr CONSERVATION
❑ RURAL

and low density residential uses. These areas allow for the usual rural
land uses which include farming, forests, farmsteads, passive recreation,
processing of farm and forest products, farm and forest services,
' schools, churches, community centers scattered non -farm residences and
general stores.
Conservation Land Use
1 Conservation areas provide for the management or the protection of
natural resources. These areas allow for the protection of AEC's,
unique, fragile or hazardous areas. While agriculture and forestry may
occur in certain situations such as floodplains and pocosins, they are to
be managed so that the impact on the environment is minimal.
iSpatial Arrangement of Land Uses
The land use plan shows how land use in the Town of Plymouth will be
distributed in the next five to ten years. It is the intent of the plan
to maintain the small town character of Plymouth while allowing for
industrial and commercial land uses to occur in and near the town.
' Developed Areas
The developed areas in the land use plan correspond to the existing
incorporated and urban spillover areas. Developed areas include
residential, commercial, industrial and large parcels related to
'
educational and medical land uses. All of the areas have land available
for additional development. However, past growth rates show little
promise for substantial development. Still, these developed areas have
the more desirable land for commerce and industry. Most of the developed
1
areas have the urban services expected for growth. But, the town must
plan to solidify their infrastructure and to fill in the available
developable land, particularly in the existing open spaces.
Transition Areas
The transition areas in the land use plan are bordering the developed
areas of the town. These areas have land available for development to
occur. The transition areas along the highways leading into Plymouth are
expected to be sufficient to handle increased commercial growth. And
along the railroads there is sufficient land for increased industrial
growth. The land in between the highways and railroads will be suitable
for increased residential development.
Community Areas
The community land use category is not appropriate for the Plymouth
area and is omitted from the.land use plan.
-36-
1

Rural Areas
The rural areas correspond to the existing rural land uses, which are
usually located between the poorly drained soils and on the most
productive upland soils. There is a tendency to change rural land uses
in favor of urban development. This has been kept to a minimum level in
the plan.
Conservation Areas
The conservation areas are the town's poorly drained areas along its
water courses and floodable areas. These are areas that have critical
habitats or are designated areas of environmental concern.
It is these areas that are set aside because of their natural
characteristics and their long lasting contribution to the citizens of
the community. These areas can be considered greenways or buffer areas
which allow a separation of land uses without conflict between them.
Consequently, they are to be protected or managed so that they will
remain essentially unaltered for generations to come.
Relationship of Policies and Land Use Categories
There are several policies which have been generated in the land use
plan. These policies are summarized according to resources production,
resources protection, and town and economic development as they are
1 related to the land use categories (see Table 6).
Resources Production Policies as Related to Land Use
The policies related to resources production are formulated to aid in
improving water quality of the water courses in the town. Water draining
' the land, no matter what its use, is commonly of poor quality. By
improving storm runoff, water and sewer lines, and improving legislation,
resources production will improve with respect to fishing, farming and
forestry.
Resources Protection as Related to Land Use
' The policies related to resources protection are formulated to aid in
managing.and conserving our natural heritage. By protecting water
' resources and prime farmland the town assures improved water quality in
the environment and the best possible management of the best farmland.
tEconomic Development as Related to Land Use
The policies related to economic development are formulated to aid in
improving the social and economic well being of the town and its
citizens. The policies set forth should revitalize the town, improve its
1
-37-

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RELATIONSHIP OF LAND USE POLICIES AND THE LAND CLASSIFICATION CATEGORIES
1) To manage the use of soils in the most efficient and effective way
Possible.
2) To minimize development in Floodable Areas
3) To prohibit development in fragile areas, freshwater swamps and marshes.
4) To manage storm runoff in the most efficient and effective way possible.
5) To improve and upgrade the water and sewer systems of the community.
6) To protect the cultural and historic resources of the community.
7) To protect the prime farmland within the jurisdiction of the town.
8) To protect forest land within the jurisdiction of the town.
9) To manage the town's water resources .in the most efficient and effective
way possible.
10) To protect the fisheries and nurseries in the area.
11) To revitalize the community including downtown redevelopment, housing
renovation, improved streets and parking areas, improving U.S. 64 by-
pass congestion problems, better growth management controls, improve
recreation and riverfront development.
12) To maximize citizen participation in governmental affairs.
Table 6

character, protect its citizens from storms, and increase citizen
participation. For the Town of Plymouth this is a formidable task, but
well worthwhile.
-39-

I
VIII. CONCLUSION
IOrganization and Management for the Land Use Plan
1
The successful completion of the land use plan does not occur with
its adoption. The land use plan is merely the continuation of the
planning process. Its success can only be measured years from now, not
1
today or next month.
In order to effectuate the plan a considerable amount of work is
required. Further, it will require energetic leadership and a
'
substantial amount of citizen participation. A list of the committees,
task forces and civic groups are indicated below according to the policy
categories. Each of these groups must -be in place if they do not already
exist.
Production - Town Planning Board
Town Riverfest Committee
Town Council
Washington County.Soil and Water
Conservation District
N.C. Wildlife Resources Commission
N.C. Legislature
U.S. Congress
Protection - Town Planning Board
Town Council
N.C. Legislature
U.S. Congress
Town Riverfest Committee
N.C. Wildlife Resources Commission
Town Historical Society
N.C. Air and Water Resources Division
I
N.C. Environmental management Division
N.C. Health Services Division
Washington County Emergency Management Office
'
Development - Town Council
Town Planning Board
N.C. Department of Transportation
Town Beautification Committee
'
Town Revitalization Committee
Town Riverfest Commission
Town Annexation Committee
Town Economic Development Commission
This involvement will create a movement toward an on -going
revitalization effort, planning process, and growth management in
Plymouth. It must be realized that the involvement must be well
organized. Further, numerous plans and documents will be needed to aid
' in achieving a fully operational planning process and revitalization
effort by the the town.
-40-

Conclusion
To fully realize the importance of the land use plan and the planning
' process will take years. This means leadership by the planning board and
participation by the citizens of the town. It also means the willingness
and commitment to achieve or work for the common good in an organized
' manner. In five years an assessment of how successful the Town of
Plymouth has been will be made. It is hopeful that the citizens of the
Town of Plymouth will be better off then than now.
1
I
-41-

I
IX. AMENDING THE PLAN
Special and changing circumstances may sometime require a change in
the land use plan. A certain policy or land classification may need
amendment to suit a peculiar situation within the county. The land use
' plan may be amended as whole by a single solution or in parts by
successive resolutions. The successive solutions may address
geographical sections, county divisions, or functional units of subject
matter. To change all or some part of the land use plan, the amendment
process must be in accordance with a series of procedures. These include
a local public hearing, a notice to the Coastal Resources Commission, and
approval by the CRC.
Ll
Public Hearing
The land use plan may be amended only after a properly held public
hearing. Notice of this hearing must appear at least 30 days prior to
the date of the hearing and must list the date, time, place, and proposed
action. This should be available for viewing at a particular off ice.in
the county courthouse and must appear at least once in the local
newspaper. Copies of the proposed amendment should be made available at
the time of the public hearing.
Notice to the Coastal Resources Commission
The local government proposing a land use plan amendment shall
provide information to the executive secretary of the CRC. This.
information should include a notice of the public hearing, a copy of the
proposed amendment, and the reasons for the amendment. This should be
delivered to the executive secretary or his designee no less than 30 days
prior to the public hearing.
Adoption Procedures
After the hearing, the locally approved amendments should be
delivered to the executive secretary of the CRC in the form that they
will appear in the land use plan. The CRC will review the changes at the
first regularly scheduled meeting held after the executive secretary has
received notification of the amendment. After review -of the changes, the
CRC shall approve, disapprove, or conditionally approve the land use plan
amendments.. Should the amendments be disapproved, the CRC will provide
an explanation of the reasons for its disapproval and offer suggestions
as to how the amendment might be changed so approval could be granted.
Final amendments to the text or maps shall be incorporated'in context in
the land use plan and shall be dated to indicate the date the amendment
became final. The amended land use plan shall be maintained as required
by G.S. 113A-110(g).
-42-

References
The Planning Commissioners Guide APA Planners Press Allor, David J., 1984, a ing Co , _ ,
Washington, D.C.
Clark, John R., 1977, Coastal Ecosystem Management, John Wiley & Sons,
New York, N.Y.
' Federal Emergency Management Agency, 1983, Preparing for Hurricanes and
Coastal Flooding, U.S.G.P.O., Washington, D.C.
Federal Emergency Management Agency, 1985, Flood Insurance Study, Town of
Plymouth, N.C., Community Number 370249, Washington, D.C.
' McElyea, William D., et al., 1982, Before the Storm: Managing Development
to Reduce Hurricane Damages, Center for Urban and Regional Studies,
University of North Carolina, Chapel Hill, N.C.
N.C. State Data Center, 1984, North Carolina State Government Statistical
Abstract, Office of State Budget and Management, State of North
Carolina, Raleigh, N.C.
The Conservation Foundation, 1980, Coastal Environmental Management,..
U.S.G.P.O., Washington, D.C.
' U.S. Soil Conservation Service, 1981, Washington County Soil Survey,
U.S.G.P.O., Washington, D.C.
Westman, Walter E., 1985, Ecology, Impact Assessment, and Environmental
Planning, John Wiley & Sons, New York, N.Y.
t

I
APPENDIX A
I
Assessment of 1981 Land Use Plan Policies and Objectives
'
In order to determine the amount of progress made toward achieving
the stated objectives of the previous land use plan update, it is
necessary to review the previous plan and evaluate what has been
accomplished. The following is a review of the previously adopted
'
policies and what measures have been implemented. Most policies have
been carried out, however, some have not as yet and will need to be
'
evaluated in the future.,
1) Estuarine Waters and Public Trust Areas
'
Policy
The Town of Plymouth shall have a policy to do all in its power to
protect public rights for navigation and recreation and to assist Federal
and State agencies in preserving and managing the public trust waters and
estuarine waters in an effort to safeguard and perpetuate their
biological, economic and aesthetic .value.
Assessment
Implementation has been achieved and continues to be an on -going
'
process.
'
2) Estuarine Shorelines
Policy '
The Town of Plymouth shall have a policy to ensure shoreline
development is compatible with both the dynamic nature of estuarine
shorelines and the values of the estuarine system.
'
Assessment
Implementation has been achieved and continues to be an on -going
process.
3) Hazardous or Fragile Land Areas
'
Policy
a) It shall be the policy of Plymouth to continue to work with. the
Corps of Engineers in having Welch's Creek and Conaby Creek cleaned out
periodically (to minimize flooding).
b) The Town of Plymouth shall have a policy of enforcing the current
law pertaining to the length -of time a train may block vehicular traffic.
Assessment
a) This policy has not been.carried out in the past, however,. recent
contact with Corps of Engineers and other State -agencies should ensure
A-1

1 that this policy is within the next 90 days.
b) This policy needs to be reevaluated. The Town has an ordinance
1 which prohibits the length of time a train may block intersections,
however, this ordinance is not strictly enforced. It should be noted
that a new satellite fire station was erected two years ago on the south
side of town so this problem will no longer be experienced by the
1 Plymouth Fire Department.
' 4) Hurricane and Flood Evacuation Needs and Plans
Policy
1 It shall be the policy of Plymouth to review the Flood Evacuation
Plan on an annual basis and make citizens aware of the plan's contents.
Assessment
The Town does participate in the National Flood Insurance program and
the public, through news releases and public hearings, are made aware of
the program.
1
5) Commercial and Recreational Fisheries
1 Policy
The Town of Plymouth will support the continued monitoring of water
' quality and assist state and federal agencies in correcting any point or
non -point sources of pollution that may be adversely affecting the
river. The Town will also pursue establishment of more and better access
points to the River to make it more readily available to the general
' public. The Town will promote the recreational use of the River.
Assessment
1 The Town is currently working on providing better public access
points to the Roanoke River, including a public pier and parking area on
east Water Street which is scheduled for completion by January 1987.
' 6) Types and Location of Industries
1 Policy
The Town of Plymouth shall continue to work toward establishment of
an industrial park. The Town shall continue to work with Washington
1 County in securing federal or state funds to Town, in cooperation with
the County, will pursue industries that adequately served with water and
sewer facilities.
1 Assessment
An Industrial Park has been established and recruitment efforts for
1 industries are underway.
7) Policy on Local Commitment to Provide Services to Development
1 Policy
The'Town Council has established a committee made up of Council .
1 A-2

�I
Lam'
' members, and they are preparing a policy on utility extension with
assistance from the Department of Natural and Economic Resources staff in
Washington, N.C. The Council is currently considering a policy of
reimbursement to developers if development takes place in designated
transition areas and no reimbursement if development takes place outside
designated transition areas.
Accaccmant
A detailed policy on the extension of utilities has been adopted.
8) Policy on Types of Urban Growth Patterns
Policy
The Planning Board shall have a policy of reviewing the official
zoning map on an annual basis and shall make recommendations for changes
to the Town Council if changes are needed to permit a higher density
multi -family development inside the Town limits.
The Town of Plymouth will discourage high density single family
development and encourage high density multi -family development inside
the Town limits where such development would be appropriate.
The Town shall adopt a subdivision ordinance that would require site
review and.approval for all developments proposed in the planning
jurisdiction of Plymouth.
The Town shall prepare a detailed study of existing land uses along
U.S. 64 including curb cuts, location of existing streets and vacant land
suitable for future development to determine how to guide future growth
along this major thoroughfare.
Assessment
No subdivision ordinance has been adopted to date, though one is
being prepared for the town council's consideration and adoption.
9) Policy on Redevelopment of Developable Areas
Policy
The Town of Plymouth shall continue to pursue any and all state and
federal funds that can be used to revitalize older areas of the
' community. Plymouth shall continue a code enforcement program to prevent
other housing units from deteriorating to the point that redevelopment or
demolition is necessary.
Assessment
No efforts have been made to revitalize.older areas of town. A
Minimum Housing Code Ordinance has been adopted and is enforced.
10) Policy on Commitment to Federal.and State 'Programs
' Policy
It shall be the policy of Plymouth to cooperate with state and
federal agencies in the assessment of proposed projects sponsored by such
agencies which will impact directly or indirectly on the residents of
A-3

'
Plymouth. Through the A-95 review process the Town will prepare
appropriate comments about any proposed projects, stating their
consistency with locally adopted policies or plans.
Assessment
Implementation has been achieved and continues to be an on -going
process.
11) Policy on Assistance to Channel Maintenance and Beach Nourishment
iPolicy
Plymouth shall cooperate with Washington County in pursuing
assistance from federal or state agencies in cleaning both creek beds to
improve storm drainage.
Assessment
This policy has not been carried out in the past, however, recent
contact with the Army Corps of Engineers and other State agencies should
ensure that this policy is carried out in the near future.
12) Policy on Energy Facilities
' Policy
•It shall be the policy of Plymouth to review the impact on Plymouth
of any proposed energy facilities on a. case by case basis.
Assessment
This policy has been implemented and is on -going.
13) Policy on Tourism and Waterfront Access
Policy
The Town of Plymouth will pursue cooperation of downtown waterfront
' property owners in revitalization of the waterfront as well as downtown
businesses. The Town will continue to work toward establishment of
additional public access areas for the river. The Town will work toward
establishment of a local historic district. The Town will work to
promote the heritage of Plymouth in an effort to secure more tourist
dollars in the local economy.
' Assessment
Downtown revitalization and waterfront revitalization needs to be
reevaluated. There has been little effort to establish a local historic
' district.
' 14) Continuing Public Participation Policy
Policy
.It shall be the policy'of the Town of Plymouth to give citizens an
' opportunity to be involved in local planning for the future. The Town
will, therefore, annually review these policy statements and
' A-4

implementation strategy.
An evaluation will also be made on an annual
'
basis to see if progress
is being made and to request additional input
from citizens on progress
being made.
'
Assessment
This policy has been
implemented and is an on -going process.
i
1
i
1
i
1
1
A-5

IAPPENDIX B
ISTATE DEVELOPMENT REGULATION AGENCIES
'
I. Department of Natural Resources and Community Development (DNRCD)
- permits to discharge surface waters or operate wastewater
treatment plants or oil discharge permits; NPDES permits (G.S.
'
143-215)
A. Division of Coastal Management
- permits to dredge and/or fill in estuarine waters, tidelands,
'
etc. (G.S. 113-229)
- permits to undertake development in Areas of Environmental
'
Concern (G.S. 113A-118)
B. Division of Land Resources
- permits to alter or construct a dam (G.S. 143-215.66)
'
- permits.to mine (G.S. 74-51)
- permits to drill exploratory oil or gas wells (G.S. 113-381)
- permits to conduct geographical exploration (G.S. 113.-391).
- sedimentation erosion control plans for -any land -disturbing
activity over one acre (G.S. 113A-54)
C. Division of Environmental Management
- permits for septic tanks with a capacity over 3,000 gallons/day
(G.S. 143-215.3),
- permits for withdrawals of surface or ground waters in capacity
'
use areas (G.S..143-215.15)
- permits for air pollution abatement facilities and sources
(G.S. 143-215.108)
- permits for construction of complex sources; e.g. parking lots,
subdivisions, stadiums, etc. (G.S. 143-215.109)
- permits for construction of a well over 100,000 gallons/day
'
(G.S. 87-88)
D. Secretary of NRCD
- permits to construct an oil refinery
' II. Department of Administration
- easements to fill where lands are proposed to be raised above
the normal high water mark of navigable waters by filling (G.S.
146.6c)
1 IV. Department -of Human Resources
approval to operate a solid waste disposal site or facility
(G.S. 130-166.16)
approval for construction of any public water supply facility
' that furnishes water to ten or more residences (G.S.130.-160.1).
B-1

FEDERAL DEVELOPMENT REGULATING AGENCIES
' I. U.S. Army Corps of Engineers
- permits that are required under Section 9 and 10 of the Rivers
and Harbors Act of 1899; permits to construct in navigable
waters
- permits that are required under Section 103 of the Marine
Protection, Research and Sanctuaries Act of 1972
- permits that are required under Section 404 of the Federal Water
' Pollution Control Act of 1972; permits to undertake dredging
and/or filling activities
' II. U.S. Coast Guard
- permits for bridges, causeways, pipelines over navigable waters;
required under the General Bridge Act of 1946 and the Rivers
and Harbors Act of 1899
- deep water port permits
1
' III. Department of the Interior Geological Survey Bureau of Land
Management
permits required for off -shore drilling
- approvals of OCS pipeline corridor rights -of -way
' IV. Nuclear Regulatory Commission
licenses for siting, construction and operation of nuclear power
plants; required under the Atomic Energy Act of 1954 and Title
• II of the Energy Reorganization Act of 1974
V. Federal Energy Regulatory Commission
- permits for construction, operation and maintenance of
interstate pipelines facilities required under the Natural Gas
' Act of 1938
- orders of interconnection of electric transmission facilities
under Section 202 (b) of the Federal Power Act
- permission required for abandonment of natural gas
pipeline and associated facilities under Section 7C (b) of the
Natural Gas Act of 1938
.1
I B-2

Ir--
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I
APPENDIX C
Post -Disaster Reconstruction Plan
A post -disaster plan will permit Plymouth to deal with the aftermaths
of a storm in an organized and efficient manner. The plan provides the
mechanisms, procedures, and policies that will enable the town to learn
from its storm experiences and to rebuild the town in a wise and
practical manner.
A post -disaster reconstruction plan encompasses three distinct
reconstruction periods:
1) The emergency period - the reconstruction phase
' immediately after a storm. The emphasis is on restoring
public health and safety, assessing the nature and extent
of storm damage, and qualifying for and obtaining
whatever federal and state assistance might be available.
2) The restoration period - the weeks and months following a
storm disaster. The emphasis during this period is on
restoring community facilities, utilities, and essential
business so the town can return to normal activities.
3) Replacement period - the period during which the
community is rebuilt. The period could last from months
to years depending on the nature and extent of the
damages incurred.
It is important that local officials clearly understand the joint
federal -state -local procedures for providing assistance to rebuild after
a storm so that local damage assessment and reconstruction efforts are
carried out in an efficient manner that qualifies the community for the
different types of assistance that are available.' The requirements are
generally delineated in the Disaster Relief Act of 1974 (P.L. 93-288)
which authorizes a wide range of financial and direct assistance to local
communities and individuals. The sequence of procedures to be followed
after a major storm event is as follows:
1).Local damage assessment teams survey storm damage within
the community.
2) Damage information is compiled and summarized and the
nature and extent of damage is reported to the North
Carolina Division of Emergency Management (DEM).
3) DEM compiles local data and makes recommendations to the
Governor concerning state actions.
4) The Governor may request a. Presidential declaration of
"emergency" or "major disaster." A Presidential
declaration makes a variety of federal resources
C-1

available to local communities and individuals.
5) Federal Relief assistance provided to a community after
an "emergency" has been declared typically ends one month
after the initial Presidential declaration. Where a
"major disaster" has been declared, federal assistance
for "emergency" work typically ends six months after the
declaration and federal assistance for "permanent" work
ends after 18 months.
Federal disaster assistance programs previously provided aid for
communities to rebuild in the same way as existed before the disaster
occurred. This policy tended to foster recurring mistakes. However,
recent federal policy has started to change the emphasis of disaster
assistance programs. Specifically, Executive Order 1198 (Floodplain
Management) directs all federal agencies to avoid either directly or
indirectly supporting future unwise development in floodplains, and
I
Section 406 of the Disaster Relief Act can require communities, as a
prerequisite for federal disaster assistance, to take specific actions to
mitigate future flood losses. Plymouth has been provided a comprehensive
listing of the Federal Disaster Assistance Programs that may be available
following a major storm.
Organization of Local Damage Assessment Team
A local damage assessment team should be in place and include
individuals who are qualified to give reliable estimates of the original
value of structures, an estimated value of sustained damages and a
description of the repairs. The logistics involved in assessing damage
in the town after a major storm will possibly necessitate the
organization of several damage assessment teams. The following are the
recommended teams and their members:
1) Public Property Survey Team
Town Department Head(s)
Professional Engineer (volunteer)
Architect (volunteer)
Sheriff's Deputy (driver)
2) Business and Industry Survey Team
Tax Assessor
Building Inspector
Industrial/Commercial Real Estate Broker (volunteer)
Chamber of Commerce Representative (volunteer)
Architect (volunteer)
Sheriff's Deputy (driver)
3) Private Dwelling Survey Team
2 teams - depending upon capacities and plans of
Plymouth and other towns
Tax Assessor
Building Inspector
Residential Real Estate Broker (volunteer)
Building Contractor (volunteer)
C-2

Ll
ISheriff's Deputy (volunteer)
The Emergency Management Coordinator should immediately undertake a
recruitment effort to secure the necessary volunteers and to establish a
training program to familiarize the members of the damage assessment team
with required damage classification procedures and reporting
requirements. It is suggested that the county assume the responsibility
for developing and implementing a training program for both county damage
assessment teams and the town damage assessment teams. In establishing
'
the assessment teams, it might be very difficult to fill certain
positions, because the services of some individuals will likely be in a
great demand after a storm disaster. The Emergency Management
Coordinator should establish an active "Volunteer file" with standing
instructions on where to report following a storm. Damage assessment
forms and procedures should be prepared and distributed to volunteers as
part of the training program.
'
Damage Assessment Procedures and Requirements
Damage assessment is defined as a rapid means of determining a
realistic estimate of the amount of damage caused by a natural or
man-made. disaster. For a storm disaster, it.is expressed in terms of:
1) Number of structures damaged
2) Magnitude of damage by type of structure
3) Estimated total dollar loss
4) Estimated total dollar loss covered by insurance
After a major storm event, members of the Damage Assessment Team
should report for a briefing from the Emergency Management Coordinator.
In Plymouth, the Emergency Management Coordinator should establish field
reconnaissance priorities according to the extent of damage and where
landfall occurred. Because of the potentially large job at hand, the
limited personnel resources available to conduct the assessments, and the
limited time within which the initial assessment must be made, the first
'
phase of the assessment should consist of only an external visual survey
of damaged structures. A more detailed second phase assessment can be
made after the initial damage reports are filed.
The initial damage assessment should make an estimate of the extent
of damage incurred by each structure and identify the cause such as wind,
flooding, or wave action of the damage to each structure. This first
phase assessment should be made by "windshield" survey.
Damaged structures should be classified in accordance with the
'
suggested State guidelines as follows:
1) Destroyed (repairs would cost more than 80 percent
of value).
2) Major (repairs would cost more than 30 percent
of the value).
3) Minor (repairs would cost less than 30 percent
of.the value, but the structure is currently
uninhabitable).
'
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4) Habitable (some minor damage, with repairs
less than 15 percent of the value).
It will be necessary to thoroughly -document each assessment. In many
cases, mail boxes and other information typically used to identify
specific structures will not be found. Consequently, the damage
assessment team must be provided with tax maps, (aerial photographs with
property line overlays) other maps and photographic equipment in order to
record and document its field observation. Enough information to
complete the damage assessment worksheet must be obtained on each damaged
structure.
The second phase of the damage assessment operation will be to
estimate the value of the damages sustained. This operation should be
carried out under the direction and supervision of the Emergency
Management Coordinator. A special team consisting of tax clerks, tax
assessment personnel, and other qualified staff should be organized by
the Emergency Management Coordinator. this team should be incorporated
into the plan. In order to estimate total damage values it will be
necessary to have the following information available for use at the
Emergency Management Office:
1) A set of property tax maps -(including aerial
photographs) identical to those utilized by the
damage assessment field team.,
1
2) Town maps delineating areas assigned to each team.
3) Copies of all town property tax records.
In order to produce the damage value information required, the
following methodology is recommended:
1) The number of businesses and residential structures
have been damaged within the town should be summarized
by damage classification category.
2) The value of each damaged structure should be
obtained from the marked set of tax maps and
multiplied by the following percentages for
' appropriate damage classification category:
a. Destroyed - 100%
b. Major Damage - 50% .
c. Minor Damage (uninhabitable) - 25%
d. Habitable - 10%
3) The total value of damages for the unincorporated
areas of the county should then be summarized.
4) The estimated value loss covered by hazard insurance
should then be determined.
5) Damage assessment -reports should be obtained from -
each municipality and the data should then be.
consolidated into a.single county damage assessment
C-4
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I
report which should be forwarded to the appropriate
state officials.
6) Damage to public roads and utility systems should
be estimated by utilizing current construction
costs for facilities by lineal foot.
The damage assessment is intended to be the mechanism for estimating
overall property damage in the event of a storm disaster. The procedure
recommended above represents an approach -for making a relatively quick,
1 realistic damage estimate after a storm.
Organization of Recovery Operations
Damage assessment operations are oriented to take place during the
emergency period. After the emergency operations to restore public
health and safety and the initial damage assessments are completed, the
state guidelines suggest that a recovery task force to guide restoration
and reconstruction activities during a post -emergency phase which could
last from weeks to possibly more than a year. The responsibilities of
the recovery task force will be:
1)
Establishing an overall restoration schedule.
2)
Setting restoration priorities, in advance, by
I.
definition.
3)
Determining requirements for outside assistance
and requesting such assistance when beyond local
capabilities.
4)
Keeping the appropriate state officials informed
using situation and damage reports.
5)
Keeping the public informed.
6)
Assembling and maintaining records of actions
taken and expenditures and obligations incurred.
7)
Proclaiming a local "state of emergency" if warranted.
8)
Commencing cleanup, debris removal and utility
restoration activities which would include
coordination of restoration activities undertaken
by private utility companies.
9)
Undertaking repair and restoration of essential
public facilities and services in accordance with
priorities developed through the situation evaluations.
10)
Assisting private businesses and individual property
owners in:
a. obtaining information on the various types of
assistance that might be available from federal
and state agencies;
C-5

b. in understanding the various assistance programs,
and
c. applying for such assistance. When a major storm
does eventually hit the town and major damages
occur, consideration should be given to
establishing an assistance team to carry out the
above functions as long as there is a need to
do so.
A sequence and schedule for undertaking local reconstruction and
restoration activities is presented. The schedule was deliberately left
vague because specific reconstruction needs will not be known until after
a storm hits and the magnitude of the damage can be assessed. The
sequence of activities and schedule should be considered and revised as
necessary after the damage assessment activities are completed.
Recommended Reconstruction Policies
It is recommended that the Town Task Force consist of the following
individuals:
1) Chairman of the Town Council
2) Town Manager
3) Emergency Management Coordinator
4) Chief County Tax Appraiser
'
5) Town Finance Director
6) County Code Inspections Director
The following policies have been designed to be considered and
adopted by Plymouth and/or Washington County prior to a storm and
implemented,.as appropriate, after a storm occurs.
1) Building permits to restore structures located.
outside of designated AEC areas that were
previously built in conformance with local
codes, standards and the provisions of the
North Carolina Building Code shall be issued
automatically.
'
2) All structures suffering major damages as defined
in the Damage Assessment Plan shall be repaired or
rebuilt to conform with the provisions of the North
Carolina Building Code and other related ordinances.
3) All structures suffering minor damage as defined
in the Damage Assessment Plan shall be permitted
to be rebuilt to their original state before the
storm condition, provided non -conforming use
regulations are met.
4) For all structures in designated AEC's and for all
mobile home locations, a determination shall be made
for each AEC as to whether the provisions of the
North Carolina Building Code; the State Regulations
C-6

for Areas of Environmental Concern, or other
ordinances appeared adequate in minimizing storm
damages. For areas where the construction and use
requirements appear adequate, permits shall be
issued in accordance with permitting policies 1, 2
and 3. For AEC's where the construction and use
requirements do not appear to have been adequate in
mitigating damages, a Temporary Development
Moratorium for all structures located within that
specific AEC shall be imposed.
5) All individual mobile homes located in mobile
home parks sustaining some damage to at least
50% of their mobile homes in the park shall be
required to conform to current ordinances.
6) Permits shall not be issued in areas subject to
a Temporary Development Moratorium until such a
moratorium is lifted by the Town Council.
7) All damaged water and sewer systems (both public
and private) shall be repaired so -as to be.
elevated above the 100-year floodplain or shall
be flood -proofed, with the methods employed and
the construction being certified by a.registered
professional engineer.
8) All damaged roads used as major evacuation routes
in flood hazard areas shall be repaired so as to
be elevated at least one foot above the 100-year
floodplain elevation.
9) All local roads that have to be completely
rebuilt shall be elevated so as to be above the
100-year floodplain elevation.
Temporary Development Moratorium
Under certain circumstances, interim development moratoriums can be
used in order to give a local government time to assess damages, to make
sound decisions and to learn from its storm experiences. -Such a
moratorium must be temporary and it -must be reasonable related to the
public health, safety and welfare.
It is not possible to determine prior to a storm whethera temporary
development moratorium will be needed. Such a measure should only be
used if damage in a particular area is very serious and if redevelopment
of the area in the same manner as previously existed would submit the
residents of the area to similar public health and safety problems. The
community's policy regarding the proclamation of temporary development
moratoriums 'shall be to:
1 Require the community's Emergency Management Office to assess whether
a Temporary Development Moratorium is needed within one week after the
C-7

l
damage assessment process is completed. Such an assessment should
clearly document why such a moratorium is needed, delineate the specific
uses that would be affected by the moratorium, propose a specific
schedule of activities and actions that will be taken during the
moratorium period, and establish a specific time period during which the
moratorium will be in effect.
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P
IAPPENDIX D
List of Historic Places
1) Armistead House, 302 West Main Street. Mid -nineteenth century
two-story frame dwelling, five bays wide with exterior end chimneys
Greek Revival interior detail. Private.
1 2) Addie Brinkley House, 201 East Main Street. Handsome two-story
Victorian house with bracketed eaves and other ornaments. Private.
3) Dave Brinkley Cottage, 212 Jefferson Street. Mid nineteenth century
one-story frame cottage. Central entrance with transome and
sidelights, front shed porch with turned posts, interior end
chimney. Later addition at rear. Private.
4) David Clark House, 219 Jefferson Street. Built ca. 1811. Two-story
frame, side hall plan, Federal style dwelling. Private.
5) Fort Williams. North side of SR 1325, opposite junction with SR
1342. Site of Confederate fort captured by Federal troops early in
Civil War and recaptured by Confederate forces in April, 1864.
Private.
6) Grace Episcopal Church. Southwest corner of Madison and Water
streets. Established 1837, constructed after plans drawn by Richard
Upjohn. Brick Gothic Revival structure completed 1861. Private.
7) Hampton Academy. Across from 109 East Main Street. Two-story brick
building with hip roof and front cross gable,.round arched window
surrounds. Private.
8) Hornthall House, 109 West Main Street. Two-story frame house with
hip roof intersected by cross gables with sawn bargeboards and
' finials. Recent two story porch and altered central entrance. Late
nineteenth century. Private.
9) Latham House, 311 East Main Street. Ca. 1850. Two-story center hall
plan frame dwelling; Greek Revival style with bracketed cornice.
Built by Charles Latham, lawyer, state legislator and sheriff.
Private. Listed in the National Register of Historic Places.
10) Nichols House, 220 Washington Street. Ca. 1804. Two-story center
hall plan frame Federal style dwelling. Altered. Private.
11) Plymouth Depots (passenger and freight). Four one-story gable roof
structures; two of brick and two of frame.. Typical early twentieth
century railroad buildings. Private.
12)'Plymouth United Methodist Church. Southwest corner of 3rd at Adams'
Street. One-story brick veneered gable end church with one by five
bays. Two-story central bay tower. Built ca. 1832; brick veneered
1932. Congregation founded in 1832. Private.
1 D-1

13) Spruill House, 326 Washington Street. Late nineteenth century,
story -and -a -half cottage ornee. Frame structure with a hip roof
intersected by cross gables. Sawwork interior chimneys and an ornate
finial. Private. Listed in the National Register of Historic
Places.
14) Stubbs House, Winesett Circle. Ca. 1830. Large two-story Greek
Revival frame dwelling. Recent porch. Private.
15) Washington County Courthouse. Listed in the National Register of
Historic Places.
D- 2

IAPPENDIX E
' List of Meetings and Advertisements for Adoption of Plan
PlanningBoard Meetings
-
1/20/86 Introduction of Dr. Richard Stephenson and Bruce Payne of
Aquasystems, Inc., consulting planners for land use plan update.
Presentation of tentative outline, project schedule, and rough draft of
storm hazard and mitigation plan.
2/17/86 - Review on land use plan by Stephenson and Payne. Presentation
of data representing population trends, labor force and income
characteristics.
3/17/86 - Review of land use plan. Presentation of land use survey.
4/21/86 - Board presented with rough draft of first five chapters of land
use plan. Presentation of proposed land classification map, discussion
of resource.protection, production and management, economic and community
development and public participation in the land use plan.
5/18/86 - Review of land use plan and date set for work session.
6/14/86 -
Work session on land use plan held.
.6/16/86 -
Review of land use plan and date set for public hearing. Board
extends invitation to Town Council to attend public hearing.
7/8/86 -
Public hearing on rough draft of land use plan held.
7/23/86 -
Presentation of completed rough draft of land use plan.
7/30/86 -
Special meeting held to review completed rough draft of land
use plan.
12/15/86
- Board reviews CRC's comments regarding final rough draft of
land use
plan.
Town Council
Meetings
8/11/86 -
Approval by Town Council of rough draft of land use plan.
Planning
Board in attendance.
1/12/87 -
Adoption by Town Council of final rough draft of 1986 land use
plan
Advertisements
5/7/86 = Plymouth land use plan underway. Citizen participation is urged
(Spread ad).-
E-1

' 6/25/86 - Public Hearing on land use plan to receive citizen input.
12/10/86, 12/17/86 - Public hearing on final adoption of land use plan.
Date of public hearing 1/12/87.

wolloo
;ctautnooQ MaN
III
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PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
1q�g7
r
PLEASE DO NOT REMOVE
1
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Plymouth Waterfront Revitalization Plan

The preparation of this document 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.

1
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PLYMOUTH WATERFRONT
REVITALIZATION PLAN
August 1987
Prepared for
Town of Plymouth, North Carolina
Prepared by
Howard T. Capps and Associates
Wilmington, North Carolina

■ I. Update of 1977 Waterfront Plan
In 1977 a Waterfront Plan was prepared using Coastal Area Management
Planning funds. Because of personnel changes in Town government shortly
' after completion of the 1977 plan, there was no real push to implement
the earlier plan, and the waterfront has remained unchanged during the
last ten years. In early 1987, local Town officials discussed updating
the Waterfront Plan, again using CAMA Planning funds, to bring the plan
into compliance with new CAMA regulations that have been adopted since
the first plan was prepared. Also, new leadership of the Downtown Mer-
chants Association wanted to see the downtown waterfront revitalized,
and this planning effort started in April, 1987.
II. Coordination with Downtown Merchants and Property Owners
In an effort to insure support of Waterfront Revitalization, the consul-
tant and President of the Downtown Merchants Association have coordinated
the planning process with adjacent downtown merchants and property owners.
When the draft plan was completed, it was reviewed and discussed during
a Downtown Merchants Association meeting. Following an additional two
week review period, the consultant received comments on the plan, and the
plan was revised to address concerns of both merchants and property
owners. Suggestions made ranged from placing all parking on the south
side of the proposed road to including additional boat docking facilities.
The plan has also been reviewed by CAMA officials for compliance with
current State regulations and a copy of the plan has been submitted to
the State to be incorporated into a pending CAMA Waterfront Access grant
request.
Hopefully this coordination will insure the early implementation of

Ithe plan.
III. Plan Elements/Cost Estimate
The Revitalization Plan includes approximatley 1,840 linear feet of
waterfront beginning at the Train Depot and ending at the existing pier
at Monroe Street. The primary goal of the plan is to provide a pedestrian
link between the Train Depot site and new covered pier near the Depot along
r the waterfront to the existing pier at Monroe Street. Also, the plan
would encourage more use of the waterfront for both active and passive
�. recreational purposes by providing boat docking and boat rental facilities.
Hopefully the plan will reorient Plymouth residents, merchants and visitors
to this attractive amenity. To accomplish this, the plan includes the
following features and amenities.
Beginning at the Train Depot is located a recently completed covered
pier. This facility was funded with Coastal Management Waterfront Access
Funds and includes parking in addition to the pier. Continuing along
the waterfront, the plan calls for a sidewalk linking the Train Depot
property to the existing waterfront park behind the Town Hall and a new
gazebo for resting, reading or simply relaxing on the waterfront. Existing
boat ramps on each end of the existing waterfront park would be upgraded
to provide better water access for boaters. Many of the proposed improve-
ments begin behind the Fire Department building and continue along the
riverfront to Jefferson Street. Improvements include a boardwalk with
boat docking facilities, a 16' wide asphalt drive with adjacent parking,
new sidewalks, landscape material and site amenities such as benches,
lighting and trash receptacles. Adjacent to the existing park and at the
waterfront is a boat rental building and waterfront gazebo with boat docking
and boat rental facilities. Continuing down the waterfront additional park-
ing, boardwalk, docking and landscaped open space is proposed.

IAt the extension of Jefferson Street and the waterfront an additional
pier and
covered sitting area
is provided on the
waterfront.
From Jefferson
Street to
the Elderly Housing
pier a waterfront
sidewalk with
landscaping
and waterfront seating areas is proposed, with an 18 car parking lot
proposed for the municipal property adjacent of Blackwood Used Cars.
IIn addition to these waterfront amenities, the merchants and property
owners along the waterfront are being encouraged to renovate the back
entrances to their businesses to allow entrance to their stores from the
waterfront. Proposed renovation suggested includes new steps and decks
with attractive lighting, canvas awnings to cover rear entrances, trellis
work to cover the lower portion of decks and to serve as screens for
mechanical equipment at rear entrances. Landscaping of rear entrances
with flowering trees and pedestrian scale lighting fixtures rather than
large street lights would give the waterfront area a very appealing and
attractive appearance to draw local shoppers and visitors to the downtown
Iwaterfront.
To accomplish the waterfront related improvements, we have prepared
a general cost estimate which is subject to refinement as more detailed
plans for implementation are prepared.
1;
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Preliminary
Cost Estimate
Plymouth Waterfront
Revitalization
Plan
August
31, 1987
Total
Description of Work Quantity.
Unit
Unit Cost
Estimated Cost
Tree Removal
2
ea.
300.00
$ 600.00
Unclassified Excavation/Grading
2,613
C.Y.
4.75
12,412.00
Silt Fencing
780
L.F.
2.85
2,223.00
Concrete Edging (6" wide)
2,600
L.F.
7.00
18,200.00
Concrete Curb and Gutter
285
L.F.
9.50
2,707.00
Concrete Sidewalks
1,833
S.Y.
12.00
21,996.00
Asphalt Base and Pavement
2,354
S.Y.
10.00
23,540.00
Base and Pavement for Parking Lot
667
S.Y.
10.00
6,670.00
Remove Existing Overhead Electrical
1,300
L.F.
Install New Electric Service
Underground
2,935
L.F.
Install New Pedestrian
Lighting Fixtures
63
ea.
600.00
37,800.00
Gazebo
400
S.F.
30.00
12,000.00
Boat Rental Shelter
400
S.F.
30.00
12,000.00
Shelter #1
500
S.F.
30.00
15,000.00
Shelter #2
400
S.F.
30.00
12,000.00
Boardwalk
A. 12" Timber Piles (Long)
928
L.F.
21.00
19,488.00
B. 12" Timber Piles (Short)
530
L.F.
21.00
11,130.00
C. Treated 2 x 4
1,440
B.F.
1.50
2,160.00
D. Treated 2 x 6
5,330
B.F.
2.00
10,660.00
E. Treated 2 x 10
2,740
B.F.
2.50
6,850.00
F. Treated 4 x 4
308
B.F.
3.00
924.00
G. Rip Rap under Boardwalk
855
S.Y.
15.00
12,825.00

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Description of Work
Piers
A. 12" Timber Piles
B. Treated 2 x 6
C. Treated 2 x 10
Benches
Fencing for Dumpsters
A. 4 x 4 Posts
B. 2 x 4
C. 1 x 8
Trash Receptacles
Landscape Material
A. Large Trees
B. Small Trees
C. Shrubs
D. Ground Cover
E. Grassing
Total
Quantity Unit Unit Cost Estimated Cost
3,560
L.F.
21.00
6,304
L.F.
2.00
4,354
L.F.
2.50
15
ea.
500.00
340
B.F.
3.00
460
B.F.
1.50
690
B.F.
3.50
250
ea.
20.00
48
ea.
200.00
24
ea.
50.00
1,000
ea.
10.00
2,000
ea.
4.00
32,000
S.F.
.08
Total
10% Engineering
15% Contingency
Total Estimated Cost (not including electrical work)
Cost estimate from North Carolina Power not available until
mid -October, 1987.
$ 74,760.00
12,608.00
10,885.00
7,500.00
1,020.00
690.00
2,415.00
5,000.00
9,600.00
1,200.00
10,000.00
8,000.00
2,560.00
$387,423.00
38,742.30
426,165.30
63,924.80
$490,090.10

IIV. Recommendations on Implementation and Funding Sources
Implementation of the Waterfront Revitalization Plan is directly
related to availability of funds and cooperation of adjacent waterfront
property owners. As discussed earlier, the President of the Downtown
Merchants Association has coordinated the planning process with adjacent
property owners and merchants. He has also secured signatures of property
owners expressing their support of the plan. The Town has also recently
submitted an application for CAMA Beach Access and Water Access funds
Lwhich is presently pending approval. To implement the plan, the following
additional steps should be taken.
A. Easements
Have Town Attorney prepare easement agreements for waterfront
property that would allow construction of public improvements on
private property as has been discussed during the planning process.
B. Detail Topographic Survey and Plans
Prepare detailed topographic survey of area and adequate detailed
plans to submit request for CAMA and other required construction
permits. Application to CAMA must include entire area from Train
Depot site to Elderly Housing pier to meet 30% impervious coverage
requirement. Permit approval will allow implementation of plan
in phases over a three-year period. If implementation is not
complete within three years, the Town of Plymouth would need to
renew the application.
C. Downtown Historic District
Continue process to establish downtown area of Plymouth as a
Historic District. Downtown Merchants Association, Chamber of
Commerce and Town officials should discuss benefits and availability
of 20% tax credits for Historic District Renovation.

D. Coordinated Improvements to Rear Entrances of Waterfront Businesses
Waterfront businesses and Merchants Association should establish
a coordinated look for the rear entrances of shops located on the
waterfront and then begin implementation in conjunction with the
Waterfront Revitalization.
E. CAMA Waterfront Access Funds
The Town of Plymouth should continue to coordinate implementation
efforts with CAMA office in Washington, North Carolina, and
continue to apply for CAMA Waterfront Access funds when available.
F. Private Sector/Civic Clubs/Local Government Support
The Downtown Merchants Association, Chamber of Commerce, civic clubs
and local government should all work together to raise needed funds
to help expedite implementation of the plan. County and Town
governments should allocate funds in future annual budgets to
help with plan implementation to help maintain and expand the tax
base of downtown Plymouth. Civic groups, local businesses and
individuals could be encouraged to donate funds or actual needed
amenities such as plant materials, trees, benches, trash receptacles,
lighting fixtures or maintain plant beds following implementation.
G. Local News Media
The local news media should be kept informed on plan implementation
and encouraged to do news stories and articles about progress.
V. Summary
The Plymouth Waterfront Revitalization Plan is an ambitious effort to
improve the appearance of Plymouth's waterfront, and at the same time
provide additional water -related active and passive recreational opportunities.
Implementation of the plan will create a new interest in Downtown Plymouth
and may serve as a catalyst for new business investment in the area. The

Iimproved waterfront should also encourage more visitors to stop and
Ishop in Downtown Plymouth.
11
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