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HomeMy WebLinkAboutWaterfront Conservation & Development Plan-1993 1 � WATERFRONT CONSERVATION AND DEVELOPMENT PLAN IThe Town of Swansboro, North Carolina L Prepared by Swansboro Coastal Initiative Committee aid The Cox Company ' Urban Planners • Landscape Architects Development Consultants • Civil Engineers Charlottesville, Virginia ' The preparation of this report was financed in part through a grant provided by the North Carolina Coastal Management Program, through funds provided by the Coastal Zone Management Act of 197Z as amended, which is administered by the ' Office of Ocean and Coastal Resource Management, National Oceanic and Atmospheric Administration. ' 1994 Watediont Plan Slvansboro • NC Table of Contents I. Introduction General Introduction and Planning Process 1 Coastal Area Management Act (CAMA) 2 Public Participation in the Planning Process 2 Definition of Study Area 3 MAP: Project Boundary 3 II. Existing Conditions (inventory and analysis) Existing Transportation 1 Existing Land Use 1 ' Historic District 2 Zoning Designations 3 MAP: Existing Transportation 4 MAP: Existing Land Use 5 MAP: Historic District 6 MAP: Zoning Designations 7 ' III. Planning Issues and Opportunities IV. Goals and Objectives V. Conceptual Waterfront Plan (Master Plan) Plan Description: Concept Plan 1 ' Project Components and Priority Actions 2 MAP: Concept Plan 5 ' VI. Commercial Waterfront District Plan Description 1 Cost Estimates 3 ' Vll. Implementation Action Plan Strategies and Tools 1 State Funding Sources 7 Case Studies 9 Waterfront / Esplanade Implementation Strategy 13 VIII. Detailed Plans and Implementation Methods Bicentennial Park 1 Town Square 1 Town Square Illustrative Plan 4 ' Town Square Conceptual Plan 5 Town Square Perspective 6 Bicentennial Park Improvements 7 The Cox Company Confents • I Chapter L Introduction [1 Swansbow Waterfront Conservation and DevelopmentP/an • IM F IRN Wofedront Plan Swansboro • NC CHAPTER k Introduction and Process Outline General Introduction & Planning Process The purpose of the 1994 Waterfront Development Plan is to guide the physical development of the Swansboro waterfront and adjoining areas. The general directive of the plan is to recommend the development of a safe, healthy and economically sound living and working environment along the waterfront areas of the Town. The Plan's responsible imple- mentation will provide a means resulting in the efficient management of the most productive lands within Swansboro. The Waterfront Plan focus- es on those factors which contribute to, or hinder proper growth and de- velopment from an environmental and design sensitive orientation. The 1994 Waterfront Plan is organized into six major sections which in- clude: 1) existing conditions analysis, 2) planning issues and opportuni- ties, 3) goals and objectives, 4) conceptual waterfront plans, 5) imple- mentation strategies and 6) detailed plans and implementation meth- ods. The goals and objectives are considered to be the most critical written section of the document. This section comprehensively ties future development potential to present issues and opportunities resulting in a goals directed approach which will provide efficient growth strategies to guide the Town's development over the next five to ten year planning period. The conceptual waterfront plans and detailed plans and imple- mentation methods are considered to be the most informative and ap- plicable graphic presentations within the document. ' The Swansboro planning process incorporated a range of citizens' input and participation opportunities which enabled all interested parties to ex- press their visions and expectations for the future of the Town. The Coastal Initiative Committee received and consolidated findings when making the final recommendations for the Plan. This effort complied with the requirements of the Coastal Area Management Act and other State guidelines affecting area -wide land use goals, objectives and imple- mentation strategies for environmentally sensitive areas of the Town's ' wetlands and Areas of Environmental Concern (AECs). As is typical of most waterfront communities. Swansboro is undergoing ' pressures for competing use of the waterfront areas. Historically, the wa- terfront of the Town has been developed in a piecemeal, haphazard The Cox Company Introduction • I-1 IRR4 Waterfront Plan Swansboro • NC 1 way resulting in no real design cohesiveness or understandable orienta- tion of existing uses. A comprehensive planning effort and citizen in- volvement in this effort are critical elements of the Plan. The Town is cur- rently at a crucial juncture which could lead either to improved cohesive- ness of developed uses, or continued haphazard development. The Waterfront Plan will provide a comprehensive vision for the future and specific recommendations or implementation suggestions to achieve that vision. It will also provide a public forum, directed by the Coastal Initiative Committee and the Town Commissioners, for input and consen- sus building for the future development of the waterfront. The Coastal Area Management Act The Waterfront Development Plan is funded, in part, through the Coastal ' Area Management Act (CAMA). This legislation was instated in 1974 and establishes a multi -tiered planning and regulatory system. The first sec- tion of CAMA involves a state and local planning process involving the ' Coastal Resources Commission (CRC), a policymaking body created by CAMA. The CRC adopts general guidelines that each locality must in- clude in formulating its own land -use and waterfront oriented plans. Plan ' content, however, is left specifically to the locality. Another major aspect of the system is the designation by the CRC of seven major types of Areas of Environmental Concern (AECs): coastal wetlands, estuarine waters, re- newable resource areas, fragile or historic areas, public trust lands or wa- ters, natural hazard areas, and areas that are or may be affected by key facilities. The drafting of the Swansboro Waterfront Plan incorporates all ' necessary management strategy methods required by CAMA as imple- mented via the CRC. Public Participation in the Plannin Process u P 9 aPublic participation is the cornerstone of the planning process. In com- plying with CAMA planning guidelines, the Waterfront Plan must docu- ment the means by which public involvement in the drafting of the Plan was accomplished. As a minimum, the Coastal Resource Commission rules for planning mandate that the Town's Plan must address the follow- ing public participation issues: • a description of means to be used for public educa- tion on planning &ues,- The Cox Company Introduction • 12 i IPP4 Waterfront Plan Swansboro • NC • a description of means to be used for continuing pub- ic participation in planning,- and • a description of means to be used for obtaining citi- zen input in de veloping Waterfront Plan goal and ob- jective statements In fulfilling these Coastal Resource Commission rules for public involve- ment, the Town leadership has prepared policies based upon data anal- ysis, land use inventories as well as detailed citizen input related to the best possible alternative for each waterfront land use issue. The Waterfront Plan includes a description of the methods by which the Town intends to implement its policy choices. In summary, all policies adopted by the Town as a part of the Waterfront Plan are designed to maintain consistency with the overall policy adopted by the Coastal Resources Commission. Definition of the Study Area The Waterfront study area consists primarily of commercial and residen- tial streets as well as a substantial section of vacant land to the north east of the downtown. For reference purposes, the study area has been bro- ken into several planning areas. WATERFRONT CONSERVATION & DEVELOPMENT PLAN Town of Swanabaro - North Carolina The Cox Company Inboduction • I3 Chap ter Existing Conditions r I 1 fl 1 1 r Swansbow Waterfront Conservation and De veiopment Plan • 19P4 1 1 1 L 1 1 IM Waterfont Plan Swansboro • NC CHAPTER A. - ,Existing Conditions Narrative This section of the Waterfront Development Plan briefly describes the man-made existing conditions within the Town. The four general cate- gories outlined below are graphically depicted on the following pages. Existing Transportation The existing transportation system is established on three levels within the Town. These include: 1) the Primary Roadway which is limited to Route 24 and the adjoining corridor, 2) the secondary roadways which include all other roads within the study area, and 3) the sidewalks or pedestrian inter- action level. The roads are generally in satisfactory condition. A major expansion is planned for Route 24. This will place additional emphasis on design and plan coordination with the North Carolina Department of Transportation and the Town of Swainsboro. Discussion on issues such as entrance -way details and pedestrian crossing points are critical issues during the preliminary and construction phases of the Route 24 highway improvements. Highway 24 improvements which would increase the ex- isting highway to five lanes is estimated to be completed by the year 2000. The secondary road system consists of small scale, usually rural roads designed in a gridular layout with no curbs or gutters. Small pock- ets of on and off street parking exist throughout. The primary pedestrian interaction occurs along the commercial corridor and extends into Bicentennial Park. Existing Land Use The existing use analysis has been broken down into five categories. These include: 1) Public/Institutional, 2) Residential 3) Commercial, 4) Public Open Space and 5) Vacant Land. The public and institutional uses are limited to the school and Town office complex. The Residential land use category makes up nearly eighty percent of the total land area in this study sector, which is primarily located two blocks landward of the water- front continuing to the northwestern border of the Town. The Commercial use is confined to the waterfront and small sections of Elm Street, as well as on the causeway, as indicated under the existing zoning analysis. Areas designated as Public Open Space are confined to four sites, which include Bicentennial Park, the Ward Shore and two separate lots newly acquired by the town along Route 24 just east of the school. Finally, the The Cox Company Existing Conditions Malrofte • II --I 11 1994 Waterfront Plan Swansboro • NC vacant land, which represents possibly the most valuable asset to be used for future development, is located along the waterfront just east of Ward Shore. Historic District The Town of Swansboro is fortunate to have a well established and de- fined historic district. This boundary encloses nearly nine blocks including sections of Water Street, Elm Street, Walnut Street, and Webb Street. Just over fifty historic structures are located within this district. The Town has an active Historic District Commission which reviews applications for ex- terior changes to properties within the Historic District area. Not all build- ings located within the Historic District are considered "Historic Structures". The Cox Company Existing Conor"tions Narrative • 112 I1994 Wctedront Plan S►yansboro • NC iZoning Designations Currently, four zoning designations exist within the study area of 1 1 1 Swansboro. These include: 1) R6-SF Single family residential, 2) 87 Highway Business, 3) 82 General Business and 4) Government/Education. The single family residential is by for the most extensive designation. The area in which this category is assigned lies to the northwest of the com- mercial district and encompasses nearly 20 blocks within the study area. The Highway Business category is limited to the causeway. The general business area is located along Water Street and small sections of Elm Street. This area, also referred to as the Commercial District in this docu- ment, is bordered by the waterfront on its south side and the residential ' district on its north. The Historic District is considerably larger than the commercial area and encompasses the B2 and R6SF zoning designa- tion. The government/education section includes the Town office build- ings, parks and school buildings. The Planning Board is currently reviewing the existing Zoning Ordinance and map for amendment. Completion is expected in the Fall of 1994. The Cox Company Existing Conditions Narrative • 11--3 ZONING DESIGNATIONS R6-SF: Single Family Residential ® Bl: Highway Business B2: General Business ® Government/Education .. — ►+ Tb T.-- .� ML p — Apr Tf C— cL 7L t NA �r O.rW—abk VA mm WATERFRONT CONSERVATION & DEVELOPMENT PLAN Town of Swansboro - North Carolina d I d �i ❑ ❑ I- _ ❑ o : o WATERFRONT CONSERVATION & DEVELOPMENT PLAN Town of Swansboro North Carolina HISTORIC DISTRICT e EXISTING LAND USE Public/Institutional Residential Commercial Public Open Space Vacant WATERFRONT CONSERVATION & DEVELOPALI.ENT PLAN Town of S wansboro • North Carolina a r U ro 8 I WATERFRONT CONSERVATION & DEVELOPMENT PLAN Town of Swansboro • North Carolina EXISTING TRANSPORTATION ��■ Sidewalks Secondary Roads ! Primary Road ..... 0- T. T.w r b.r1..� ML M.i r Caw p-p—da BXM ao i wn s.- 1 I Chapter ///. P/arming Issues and Opportunities swansboio waterfront Conservation and Development P/an • IRP4 IRM Waterfront Plan SWMsboro • NC Chapter///. - Planning Issues and Opportun/t/es IIntroduction 1 The initial tasks in undertaking a conservation and development effort are (1) to clearly identify the critical issues that influence the integrity and well- being of the community and (2) to identify specific opportunities where existing resources can be utilized with the greatest effectiveness. The following issues and opportunities related to the Swansboro Waterfront have been defined through deliberations with the Coastal Initiative Committee, the Town Commissioners and local citizens. A thor- ough analysis and inventory of physical and visual challenges was also carried out. Specific issues addressed in this analysis include the follow- ing: • Community Characteristics • IntillDevelopmentPotentlol • Streetscape, Open Space and Landscape Architecture • Historic Character and Bui/ding Appearance • Implementation Capabilities The issues and opportunities discussed below have been subsequently translated into an action -oriented program. This program will be imple- mented by way of specific policies, which outline the type and extent of public and private participation and what will be necessary to transform recommended actions into vital and effective results. Community Characteristics Strengths • An established tradition as a stable water -oriented community. • A strongly defined, distinctive and authentic town image which is supported by many valuable cultural and historic resources. • A compact and attractive waterfront of historic signifi- cance and intimate human scale. • A stable, cohesive, and attractive residential district. • Close proximity to the Intercoastal Waterway and neighboring recreation -oriented ocean access. The Cox Company Issues and Opportunities • /// -I 1 1 u n D 1 IPP4 Watelftnt Plan Swansboro a NC • Direct access and potential visibility from Route 24. • Significant interest and support from citizens, the busi- ness community and local and state government in the planning and design process. • A positive mix of businesses and services concentrat- ed along the waterfront. • Visually impressive setting with a highly visible water- front. • Significant opportunities for building rehabilitation, adaptive use and infill development. Weaknesses • Weakly defined entrances. • Auto -oriented influences and impacts occasionally create an uncomfortable pedestrian environment. • Unclear central focus. • Occasionally inconsistent architectural character, scale and materials. • Seasonal auto -oriented impacts with little centralized parking. • Increased division between the eastern and western portions of the Town due to the proposed widening of Route 24. • No clear orientation linking the Town's important desti- nations and attractions. • Inadequate parking access to important destinations and attractions. • Limited opportunities to experience scenic areas and significant views. • Inadequate public waterfront access points. The Cox Company Issues and Oppoitund/es • //I 2 1994 Waterfront Plan Swansboro • NC Potential Infill Development Strengths • Potential for redevelopment of vacant sites, underde- veloped parcels and the adaptive use of existing structures. • Potential for encouraging pedestrian -oriented , water- front -focused uses. • Potential for strengthening town character through de- velopment and defined public open space. Weaknesses • Trends toward auto -oriented uses (such as drive-in restaurants) and the impacts of traffic and parking. Streetscape and Open Space Strengths • Small scaled narrow streets with grass edge in the neighborhood district. • Human scaled, pedestrian -oriented streets and side- walks in the waterfront district. • Existing and potential parks and open space primarily along the waterfront. • Some existing visually effective shade trees and land- scaping. Weaknesses • Inadequate sidewalk system in the waterfront district. • Inadequate street trees and public landscaping as well as large paved areas. • Inadequate or poorly designed amenities such as pedestrian lighting, benches, water fountains, trash re- ceptacles and public art in the waterfront district. • • Obtrusive overhead utilities. Inadequate existing parking with limited opportunities for improvement. • Several parking areas with insufficient landscaping and screening. • Occasional inadequate maintenance. The Cox Company Issues and Opporfunifies - /// 3 1 1 1 1 IPP4 Wateifront Plan SWansboro • NC Historic Character and Building Appearance Strengths • Visually attractive structures of historic importance which lie within the Historic district.. • Consistent building setbacks create a strongly defined street edge and, therefore, help to provide a "village" character in the waterfront district. • Architecturally unified appearance in the residential district characterized by a continuity of style, scale, materials and color. • Smaller, distinctive, pedestrian -oriented signs and win- dow displays in waterfront district. Weaknesses • Mix of building types and excessive diversity of char- acter, siting and scale in the waterfront district. • The potential for inappropriate construction, remodel- ing and additions outside the Historic District. • Some oversize signs which are of inappropriate mate- rials, or are poorly situated, particularly along Route 24. • Insufficient maintenance on some buildings. The Cox Company Issues ana'Oppoifunlwes • /// -4 1 1 1 C IMI Waterfront Alan SWansboro • NC Implementation Capabilities Strengths • Designated and a Governor's Coastal Initiative Community. • Commitment and active involvement by citizens, the business community and town government. • Effective land use regulations including a Comprehensive Plan, Zoning Ordinance and site plan review process. • Protection of historic resources through Historic District designation and the design review process applicable within the Historic district. Weaknesses • The limited resources of the community occasionally make the implementation of desired initiatives difficult. • The lack of jurisdiction over important visual and his- toric resources outside the Historic District. The Cox Company Issues and Opportunities • N/ 5 VJardS thucfark I=0441 Point -- \ crIJTFAl. FOwS \ IMPX-,7)1• VILLA$ -64 R1'24 jQ�� S Re, f14A[IVt USe and ISSUES AND OPPORTUNITIES vlew3 krom R+" Poftrhal iw Visual Pcdcj+njn Imvroven 4- 1 � 24 and waia-{roKi" �— Pofafial wArawizoNr WALK f Legend rn,.a a...i.� ........ r..r 8iten}pini7l Perk and Landmark_ TA. T.— .r S..mM... N.C. e...a .r C—.,;.—. w.w.d+f T1�e� p.nr Y'0 L H.rh S�ml Cb.Aw,—G'.• VA 2m" R White Oak River -to VWcr{roni' and I-V l VitwS BiceN"cranial Park I March Line ..�'1;MKANGE to $wans6oroa WATERFRONT CONSERVATION & DEVELOPME-NT PLAN Town of SNvansboro • North Carolina M.ww� .�. r.y... ..r. y.w�r+1 N.. a Chapter /V. Goals and Objectives Swansboio waterfront conservation and De velopment p/an • 1994 1 ' 1994 Wafeifiont Plan Swansboro • NC CHAPTER/V. Waten`ront Conservation and Development Plan Goals & Objectives 1. Encourage increased vitality along the waterfront. ' •. Increase waterfront activities such as boating and fish- ing. • Protect the integrity of existing neighborhoods. • Attract intercoastal waterway users. • Enhance employment opportunities by expanding commercial activity. • Capitalize on existing historic resources. 2. Establish waterfront uses which are linked to, and supportive of exist- ing uses within Swansboro. development • Pursue mixed -use patterns which may include residential, service, office, retail and recre- ation. 3. Provide for ordered growth in areas along and adjacent to the water- front. • Ensure that the implementation of development is sen- sitive to established community patterns. • Phase development in an effort to synchronize with planned growth strategies. ' 4. Establish a design theme and strategy unique to Swansboro. • Complement existing patterns of historic and cultural resources. ' Avoid a false historic impression when designing and developing public spaces, streetscapes and build- ings. 5. Create and enhance public spaces which strengthen the identity of the Town. • Assure that the streetscape remains compatible with the image of the existing historic town center which in- cludes a strong sense of human scale and history. ' 6. Encourage the preservation, restoration, and adaptive use of existing historic structures. ' 7. Ensure that new construction is compatible with existing buildings and streetscape details. The Cox Company Goals and Objecfives • /V-7 IPPQ WWfeifionf Plan Swansboro • NC • Ensure that the new construction take into account character, scale, materials and details contained with- in older structures. 8. Provide efficient vehicular access and adequate parking for citizens and visitors. • Place a priority on clear and safe pedestrian accessi- bility to waterfront amenities. 9. Devise a clearly defined orientation system to be used throughout the Town of Swansboro. • Develop designs which are clear to both pedestrians and vehicles while concurrently being sensitive to es- tablished streetscape and structural detailing. 10. Initiate efforts to strengthen east -west linkages across Route 24. • Establish substantial entrance gateways to the Town. Assure that traffic signals and pedestrian crossing points are synchronized with these gateways. 11. Establish and maintain pedestrian focal points such as the Town Square and Bicentennial Park • Pursue the acquisition of land as needed to develop the Town Square. • Identify sites for renovation along the waterfront and adjoining residential and commercial blocks. • Identify possible methods of land acquisition accept- able to the public to be dedicated as a pedestrian promenade along the waterfront. • Ensure that phasing and construction timing are in se- quence with the overall plan for the Town. • Continue to pursue funding for waterfront improve- ments via the grant sources as outlined and explained in this document. 12. Establish a public participation plan which will ensure comprehensive citizen involvement in the planning and design process. • Accommodate public contributions, and engender support for neighborhood participation. The Cox Company Goals and Objecfives • /V2 1 1 11 Chapter V. Conceptual Waterfront Plan Swansboio Waten`iont Conservation and De veiopment P/an 1 19P4 ' IRW Waterfront Plan $Wansboro • NC i� CHAPTER V.- Conceptual WateifrontPlan Concept Plan ' Based upon the issues and opportunities identified above as well as the goals and objectives set forth for the project, the following conceptual approach has been proposed and is illustrated on the following pages. It is guided by supporting principles of effective community revitalization and conservation. The major elements of the concept are: • Maintaining and protecting the residential neighbor- hoods and the retention of strong boundaries. • Strengthening the role of the waterfront in the commu- nity by establishing continuous public access along the waterfront with pedestrian amenities and direct ac- cess to the downtown. • Creating a central Town Square located at a point along the waterfront which would allow for boat and pedestrian access to the commercial corridor. • Strengthening the integrity and viability of the commer- cial area and downtown streets by providing public im- provements and encouraging appropriate infill devel- opment. ' • Creating a strong "sense of entry' by making gateway improvements and ensuring a visually compatible highway entrance corridor, developed in concert with ' Route 24 improvements. • Linking together the various disconnected areas of the downtown and ensuring a strong connections with the northeast sector, potentially divided by Route 24. • Ensuring an architectural image and streetscape char- acter of Swansboro, which contributes to a collective "sense of place' at a waterfront town scale. New ar- chitecture should be influenced by the vernacular wa- terfront tradition prevalent in Swansboro. This new de- sign should have its own integrity and should not pre- sent a false historic image. Similarly, streets should maintain a pedestrian oriented scale in order to en- courage the use of public facilities and walkways. Improvements should include sidewalks, street tree plantings, street furniture, and pedestrian scale lighting. I The Cox Company Conceptual Waterfont Plan • V- I I 1 ' IPP4Wotediont Plan Swansboio • NC Project Components Following is a listing of possible project components in sequence of im- plementation based upon the above concept. The phasing and associ- ated priorities should be interpreted as flexible, as outside and unantici- pated forces as well as presently unforeseen funding opportunities will have a major effect on the timing and outcome of some of the planned ' improvements. The Town has received parts of the department grants manual that identifies various projects the Town might apply for. Also, the Town will pursue additional information sources as the needs arise. A generalized illustration of these project components are shown on the Concept Plan graphic. The entire plan is organized into Sectors, as shown in Roman numerals, which can guide the grouping of activities as well as the phasing of implementation. The project components incorpo- rate both public and private efforts and are grouped into three cate- gories: A. Priority One, Immediate and on -going projects: Those pro- jects which, because of current efforts, are of a high priority. B. Priority Two, Primary projects: Those projects that are basic to the success of the overall concept which are early or mid- range in nature. C. Priority Three, Long-range and supportive projects: Those pro- jects that might be expected to follow and extend the primary project. Many of these will be areas of future redevelopment potential. A Priority One A.1 Bicentennial Park is planned and implementation is currently being scheduled. Conceptual design drawings have been is- sued and construction drawings are pending. This project is primarily a public capital improvement project supplemented greatly by grant support. A.2 The Route 24 Corridor should be completed simultaneously with projected highway improvements. This should include "Gateway" improvements at the north and south entrances to Swansboro as indicated schematically on the Bicentennial Park Plans. A concerted effort should be made on the part of the Town Manager and consultants with the NC Department of Transportation so as to arrive at a mutually agreeable set of design standards. These standards should include signage, street tree programs and other streetscape amenities. The Cox Company Conceptual Waterfront Plan • V- 2 C 1 fl IRN Waterfront Plan SWansboio • NC A.3 The Town Square and Pier is a potential major catalyst project which can serve as a central public space providing access to the waterfront as well as a focal point for visiting boaters. B. Priority Two B.1 Riverwalk Esplanade in sector II linking Town Square and Bicentennial Park. B.2 Streetscape improvements along Front Street Sector II and im- proved connections to waterfront. B.3 Streetscape improvements along Water street in Sector II connecting the Town Square and Route 24. B.4 Marina Pier and floats in sector II providing visitor moorage and pedestrian access to waterfront. B.5 Riverwalk Esplanade in sector III linking Town Square and com- mercial marina. B.6 Streetscape improvements along Water street in Sector III connecting the Town Square and commercial marina at Broad Street. B.7 Riverwalk Esplanade in sector III linking commercial marina and Wards Shore park. B.8 Streetscape improvements along Water street in Sector III connecting the commercial marina with Wards Shore park. B.9 Wards Shore improvements as overlook park. B.10 Riverwalk in Sector I providing access along marsh edge and access to Route 24 and connecting with future development. B.11 "Entrance to Swansboro" including landscape and sign des- ignating entrance on the island in Sector IV. B.12 Riverwalk along island edge of sector IV allowing pedestrian access. B.13 Highway edge improvements along commercial uses in Sector IV. B.14 Streetscape and landscape enhancements throughout resi- dential area with an emphasis on connections between the Municipal Center and the Town Square along Church Street. The Cox Company Conceptual Waten`ront Plan • V- 3 1 IPP4 Waterfront Plan Swansboro • NC C. Priority Three C.1 Commercial Infill development on large vacant or underuti- lized sites in Sector III. C2 Commercial Infill development on large vacant sites in Sector I adjacent to Route 24 and the waterfront. The Cox Company Conceptual Waterfront Plan -, V- 4 1 1 1 t 1 1 1 1 1 i 1 1 1 1 1 1 ❑ -, � J� d p Q ice., 1 ,- - - Sao. I a o_: c 0 1 1 �!, � �� 0 !3' _ �• tar fi.r3•�y.;; A trK l White Oak River UQU 4 a.. ..�... ...�................. @9101MM"rlW 1IRLAWM—K' I I WATERFRONT CONSERVATION & DEVELOPMENT PLAN Town of Swansboro • North Carolina CONCEPT _PLAN Legend hyw R..." ........ .-r. ti ✓.11.r V�-tiV Chapter VZ Commercial District Swansboro Waterfront Conservation and De ve%pment P/an 1994 1 IRR4 Waterfront Plan SWansboio • NC CHAPTER VI: Commercial WateffrontDiS ct This section serves to briefly outline the phasing approach recommended along the immediate commercial waterfront district. This narrative is supported by the accompanying graphic depicting the four phases and their vicinity in relation to the waterfront. Further discussion of these phases as well as the priority approach for the entire study area can be found in chapter V, Conceptual Waterfront Plan. The phasing approach is based on several factors which place the least stress on public infrastructure, zoning and other existing conditions. The most prevalent of these factors is the time frame involved when securing private land for public use using equal compensation measures and other tools as indicated in the Implementation Action Plan, Chapter VII. Phase L• This phase encompasses primarily existing design/development projects. These include Bicentennial Park and the Route 24 improvements. Much of the design work has been completed for Bicentennial Park and the construction drawing phase will begin in the near future. The Route 24 improvements are in the construction drawing phase and construction is also slated to begin directly. Phase A- The majority of this phase may be accomplished utilizing existing public openspace and property. The greatest effort should be placed on the design/build process resulting in the proposed Town Square. This Square will help to unite the pedestrians with the boaters. It will also encourage the users of the intercoastal waterway to stop along the waterfront of Swansboro, and interact with the commercial district. Completion of the remainder of the phase would see new street improvements including street tree plantings and outdoor fumiture to be located at critical pedestrian intersections and meeting places. The 1 terminus of the public rights -of -way located on the shoreline should be improved by extending piers, providing waterfront resting places such as pavilions or viewing areas, and generally improving public interaction 7 L with the shoreline. These improvements should be followed by a comprehensive advertising campaign. The Cox Company Commercial Waterfront Dishict • V1--1 IIM Wolelfront Plan Swansboro • NC 1 Phase ///- I r� This phase would serve to connect the terminus points of the public rights -of -ways resulting in a pedestrian promenade extending along the Swansboro waterfront beginning at Bicentennial Park and ending at or near Wards Shore. The achievement of this phase would strengthen the focus of the Town Square by linking it to the activity generated by the waterfront pedestrian interaction. Phase /V While this phase is the least involved based on scale and materials, it relies almost totally on the completion of the previous three phases. Phase IV calls for the installation of a town pier which would serve to further the slip access for overnight marine visitors. The largest of the two proposed piers would extend out from the terminus of a public access point, and would be directly linked to the commercial district and waterfront promenade. The smaller pier would extend to the west of the Town Square and could possibly be used for water -dependent activities such as fishing. The Cox Company Commercial Wotelfronf Dist ci • V/ 2 IRW Wotelfront Plan Cost Estimates I. Town Square Swansbaro , NC r. To Be Determined Land ition Total S u Urvey Total $1,000.00 all Earthwork/Demolition Total 3,000.00 Utilities (ElectricVphone) Utilities Total 1,000.00 Sidewalks .de SF 3.00 5520 16,560.00 Curbs/Gutters Cu SF 15.00 700 10,500.00 Paved Plaza Pa SF 3.00 1500 4,500.00 Plants/Ground Cover SF 1.25 4000 5,000.00 Crushed Rock Surfaces SF 0.70 10700 7,490.00 Trees Each 350.00 9 3,150.00 Bulkheading (81 LF 125.00 250 31,250.00 Piers and Dock Each 30.00 4800 144'000.00 InGazebos Each 15-25,000.00 2 —40,-00-0-0-0m Cod&O"Oldw IL Bicentennial Park K" iz x�. ................... . . . . . . . . . . ­+` Fishing Pier SF 30.00-40.00 660 $19,800-26AOO Pier Shelter SF 15.00-20.00 225 3375-4= Bulkhead Repair 1-1— - - 6DOO-8= Restore Facilities I SF 90.00-110.00 444 40D00-50.000 Sanitary Sewer F.M. Total - 3D00-4= Sidewalks (Brick) SF 6.00-7.00 3350 20.]OD-23A50'* Landscape — Total - 4DOO-5.000 Plamhg/Engineering Aciministration and Project Mgmt. Total 8D=OD-10 Total Edmalod Cost. 104,275- 131,360 • Inckides overhead & profit PoWe assumes that to rrK#oft of onsite brick pavers can be reused Includes plantings, benches. and 3eeclir4 — Estirnate based on 8%-1 OIL of total ccndrLcfim cosh. All foxes are based on prekninory design/development studies. The Cox Company - Commercial Watelfront Dishict , V/-j 1 1 Ll 1 M41 Waterfront Plan Cost Estimates Ili. General Improvements SWansboro • NC is rT: :iil{ry4�::'{':.::?�j(�MSJt: rii{• {.:f:ii'�•T r{•}}T:•:ivv.:•.:.:.:w::. ':•':{.:•; v T. M1. \+ f:�F1vv.{ :anti �i+++�ii.•. . �.... •}"T+>;•'�}�'ii �r1+\ „{>i,:f\'f}•i•:.{v.{ri•?}:}}T} }:;r y:•?' y4.:�y'i; '•,:i:ti �� ::?::.:�•{•}nfr: •:T{: {:'r{f': •}•i; :.y., v.;{:: f•fi}:f: •.i^�i?•:�\'.{•:• ��yy�� ..aa..rr.. {.Y�NI•.v• n:( r�•:: 'i1:GTi:1�1t.7♦. : f+:.:}}; : . >Tt::i:;::;�:};y:5:'•:\ .,#isi��\''t`•�'•S}}.T�:}\{:;}T�....v . Y.•. , : •l.::... ..{•\v: n•}.r{r\.•:f :•:f:•}'fT'r:•}}}: \•: v:.v.:• •?.}{\':\ •T •.vT:; }::}: •: }; •? }; •: ,+2,;•nb:x.}.+�.}}:xn•.f::,y;f}?nv�,:•:J�;:'•Ri'\::,ri.+\`,<n-i:•:i$:�ii{.'+,:;: :; \... ,:.\„2P •: •:+T••:f:8}?'r,J\,::{:}}::•: Q}}•�::.v::v}:•i:::{U•,: }::f}}:{•{i{??.v: Street Trees Each $300.00 with grate Eash 700.00 Sidewalks (concrete) SF 3.00 Curbs and Gutters SF 15.00 Plants/Ground Cover SF 1.25 Paving (brick) SF 3.00 Lighting Fixtures Each 1,500.00 Street Furniture Benches Each 700.00 Trash Bins Each 400.00 Tables Each 500.00 Bulkheading/Walkways/Railings LF 125.00 Piers and Docks SF 30.00 The Cox Company Commercial Woterfront District • 141--4 ' V11.. Chapter Implementation A coon Plan I I 1 Swansboro Waten`ront Conservation and Development P/an , IM 1� 1 1 1 k 1 I I 1994 Waterfront Plan Swansboro • NC CHAPTER I/ii,- imp/ementation Action Plan A Strategies and Tools Planning and growth management tools: • fie Comprehensive Plan The Comprehensive Plan is a document that discusses the principal is- sues and problems of growth or decline facing the community within a long range time frame. It is the framework in which all functions and duties of the local government are coordinated and unified for the purposes of guidance and decision -making. Intensive study and analysis of popula - tion trends, economic development, community facilities, land use and other factors contribute to the formulation of recommendations, policies and means of implementation for the improvement of the community within its regional environment. The Plan includes maps, charts, statistics and other information which aid decision -making for local officials. *CA MA Land Use Plan Updates The coastal area of North Carolina has experienced a quickening pace of development since the late 1960s, development which has in many cases threatened the integrity of natural systems and the historical, so- cial, economic and cultural balance of the area. Growing public con- cem over the effects of such development led to the adoption of the Coastal Area Management Act (CAMA) in 1974, which established a comprehensive resource management program for the twenty counties in the coastal area. Under this law, local governments are required to pe- riodically assess local land use regulations and policies and to plan for the protection of sensitive environmental areas and for orderly growth and development in their community. With this "tool," localities can join the regional consensus in ensuring growth that is best for the interests of local citizens and for the natural community affected by rapid change. •Specific Area or District Plans A municipality will periodically need to examine certain areas of the community in closer detail, in order to identify more specific needs, prob- lems, and improvements in keeping with the general policies of the Comprehensive Plan. The scale of a specific area or district plan typical- ly warrants a strong urban design focus and gives attention to problems of housing, traffic circulation and pedestrian movement, use of struc- tures, landscaping and overall beautification. The district plan also ex - Me Cox Company Implementation Action Plan • 141I--1 1 IPP4 Waterfront Plan Swansboro • NC amines the relationship between the specific area and the community or regional context in terms of circulation, open space, natural resources, economic health, and public uses and facilities. Such a focus on a spe- cific area allows the locality to assess resources and development op - portunities at a much more refined level and to achieve a greater de- gree of implementation for improvement projects. ' -Zoning ?OgVIOAOns Zoning is the most commonly used tool for regulating the use of land and structures. Zoning typically promotes the separation of commercial, resi - dential and industrial uses so as to prevent incompatibility among uses and make land use patterns predictable and orderly. Zoning ordinances regulate building dimensions as well as building placement on a lot, land - scaping, signage, traffic circulation, and storm -water management. I-Performance Zoning A zoning ordinance based on performance criteria requires an applicant for rezoning to demonstrate that the current functions of the .resource of fected by the rezoning will be preserved, protected or improved. The standard in performance zoning generally depends upon the examined and measured capacity of the resource and also the wishes of the com- munity in regards to how they view the value of the resource, or how the resource" performs' its function for the benefit and health of the commu nity. Such a "data -based" approach typically gives the municipality a firmer ground for zoning decisions and regulations than is obtained under conventional zoning practices. At this time no performance zoning exists in North Carolina. i •Over/ay Zones An overlay zone applies a common set of regulations and standards to a designated area which may cut across different preexisting convention- al zoning districts. Two common examples of an overlay zone are flood zones and historic districts. An overlay zone provides additional require - ments for land uses, densities and design standards to promote compat- ibility between existing conditions and new construction and use. •Condition/Zoning and Deve%pmenfAgreemenfs Under conditional zoning, a local government may make rezoning con- ditional on the applicant's acceptance of conditions that are not otherwise imposed in the proposed zoning district. Development agree- ments are typically enforceable agreements between the developer f and the local government which specify the land uses and densities a developer may place on a parcel and the public benefits the developer The Cox Company /mp/emenfaf/on Acf/on Plan • K/-2 1 IM Waterfront Plan Swansboro • NC must provide as a condition of approval. This "master approval" ap- proach provides developers and lending institutions with the certainty of knowing early in the development process the degree of authority for the project. *Subdivision Regulations Subdivision regulations are generally used to regulate the conversion of land into building lots, but they also articulate design standards, materials used for streets and utilities, sidewalks, curbs and gutters, open space, recreational facilities and general landscaping. These ordinances aim to improve the design and engineering of public improvements and pub lic services. especial Use Permits Special use permits are widely used by local governments to allow for in - dividual review and approval of development projects, with the intent to mitigate or avoid problems of incompatibility or nuisance. I] I - Cooperative Arrangements: •Cooperative Agreements A local government operating under tight fiscal constraints may not be able to construct capital facilities required by new urban development or redevelopment. An increasingly popular method of constructing im- provements is to negotiate with the developer of the development pro ject to voluntarily provide certain improvements. The local government has no legal right to demand such an arrangement, but often it is the only way a project can be approved and implemented. *Public -Private Partnerships For development projects conducive to such arrangements, local gov- ernments and private developers can enter into joint efforts to develop a particular property or amenity. Such a partnership entails a joint pledge of financial support as well as administrative support and -collaboration of design and program; the specific nature of each project determines the extent to which various partners may participate. Partnerships are an in- creasingly popular method used by local governments to achieve pub- lic improvements while stimulating the local economy and minimizing the use of public tax dollars at the same time. fie Cox Company Implementation Acfion Plan • V/l-3 1 Ll 1 I IR94 Waterfront Plan SWansbom • NC Local Spending and Taxing Policies: -Capital Improvements Programming Capital improvements planning refers to the planning of major local facili- ties such as sewer, water, transportation systems and public buildings. Policies in the comprehensive plan should govern the maintenance and expansion of these facilities in accordance with the needs of the local community, the capacity of the land and natural resources, and the bud geting of local funds for public improvements. •Preferential or Use -Value Property Tax Assessment With preferential or use -value assessment programs, property taxes for a parcel are based upon the value of the parcel as it is currently used, rather than its value based upon the property's development potential. Reduced property tax assessments encourage the continuance of land used for agriculture and forestry and can lessen the pressure to sell or de- velop land because of high property taxes. *Special Assessment While not technically a tax, a special assessment is a method of raising revenue in which all or part of the cost of a facility is charged to a landowner who derives a special benefit from the use of the facility. Special assessments are often used for road improvements, street light- ing, off-street parking, sewers and water systems, and the fee is usually proportionate to the value added to the land served by the facility or a similar measure of value. •Special Improvement Districts Special improvement districts can be created in a variety of forms to raise revenue for traffic circulation improvements, aesthetic improve- ments, and other public improvements within a limited and defined area. Landowners within a specified district are levied a special tax or assess - ment which is used to make public improvements that benefit that district. Ii 1In s Nnanc a Incentive A variety of financial incentives can be offered by the local government, according to their powers of government, which can encourage deve+ opers and private enterprises to invest in redevelopment projects in des- ignated areas. Common methods used by local governments, with varying results and effects, include tax abatement, tax reductions, and review and requirement waivers for site plan and subdivision approval. I The Cox Company Implamentofion Action Plan • V11--4 1 IM Waterfront Plan SWansbOA0 • NC Local governments should carefully analyze which methods will best benefit their fiscal and economic policies before creating incentive schemes that might later burden the locality. •Tax Increment Financing 11 1 1 1 Tax increment financing is a tool that can be used to provide front-end funds for redevelopment activities within a designated district or area. Such a district or area must first be proposed and assigned a tax base equivalent to the value of all the property within the district. During the life of the project, the area is redeveloped with the proceeds from the sale of tax increment bonds. These bonds are sold by the municipality or by a specially created tax district for acquisition, relocation, demolition, ad- ministration, and site improvements. Once the redevelopment is com- pleted, the newly developed property has a higher assessed value and yields more tax revenue; the tax "increment" gained is used to retire the bonds. Once the bonds are retired, the tax revenues from the enhanced tax base are generally distributed. *Impact Fees and Exactions Localities are increasingly using the land use control process to exact additional charges and fees to help pay for capital facilities. As an ex- ample, traditional land subdivision regulations might require a developer to install facilities at his private expense, costs which are passed along in the purchase prices of residences or in rents to business occupants. Communities have also exacted fees to pay for off -site or oversize im - provements, to help mitigate the spin-off effects of development pro jects. Land Acquisition: ,Fee Simple AcquisiNon The ownership of land is often characterized as the ownership of a "bun- dle of rights," each right being subject to reasonable police power regu- lations. When one person owns all the rights associated with a parcel, this person is said to own the land "in fee simple." Local governments can acquire fee simple ownership for parks and other property needed for municipal uses. This method provides the greatest amount of control over the use of a parcel; however it is generally the most expensive method of land acquisition as well, for in addition to the initial cost, the ' property is removed from the tax rolls and can result in maintenance costs. 1-1 The Cox Company Imp/ementofion Acfion Plan • 141I-5 1 1994 Wofeifront Plan SWansboro • NC •Acquisition by Eminent Domain If the acquisition of real property interests is proven to serve a legitimate ' public purpose, the parcel may be obtained by the local government by its power of eminent domain. Compensation is given to the landowner for the property. •Acquisition of Easements Easements are among the distinct property rights that may be sold apart from the bundle of rights. Easements are effective devices for preserving sensitive lands, providing public access along rivers or greenways, and ' allowing landowners to obtain income, estate and property tax benefits for land stewardship while they continue to occupy the land. Most states have specific rules governing the sale or donation of easements, espe- cially for the purposes of conservation and public use. Conservation and Open Space Dedications: • Local Land Tivsts The local government can work in concert with private and state organi• zations dedicated to the preservation and conservation of open space and landscape to protect noted areas of historic, cultural or aesthetic significance or areas that would benefit the community for recreation and parks. Typically, easements are donated to or purchased by such land trust organizations which stipulate that development rights are limit- ed or canceled for specific properties under the easements. The local government may elect to provide maintenance services for such prop- erties if the land can be used for public purposes or negotiate an agree- ment with the land trust to maintain the land, thus saving tax dollars. Land trusts can be beneficial to local governments by their ability to obtain land for potential public purposes without spending public monies. ' • Private Donations The donation of private land to a public entity or private land trust organ+ zation is obviously the most desired way of obtaining land for public pur- poses. Local governments should encourage the donation of limited and specific parcels deemed necessary for public improvements by creating incentives and tax breaks for private owners. As the donation of an unwanted parcel can create a maintenance burden on the locality, donations should be carefully accepted. The Cox Company fi»p/ementofion Action Plan • V//-6 n i L 1 IPP4 Waterfront Plan Swansboro • NC •Purchase of Development Rights The local government can choose to purchase development rights from parcels which complement the design plan for open space, preserve a visual access to the Town's prominent features or waterfront amenities, or which contribute to the preservation of significant structures and spaces in the Town and historic district. This is not a fee simple purchase, but a limited purchase of development rights, a transaction which might save government dollars and achieve the same purchase of preserva- tion or, with certain conditions, public access. Design standards: •Design Guidelines and Architectural Review Process Maintaining design quality and a cohesive image are important con- cerns for a community, especially a community with a visible heritage and an established sense of place. Design guidelines can help to ensure that new construction and redevelopment activities are compatible in scale and character with the existing fabric of the Town and the historic district. Such guidelines help Town officials, the local building industry and private citizens in making decisions about improvements, and the guidelines provide indirect instruction as to the understanding and awareness of the Town's unique character and the making of an overall quality environment. The architectural review process enables the guidelines to be implemented in actual design and construction. -Historic Preservation Facade Easements The donation or purchase of facade easements aids the local preserva- tion organization in keeping the historic character of the streetscape rela- tively intact. The facade easement only dictates the treatment of the ex tenor of an historic building, and any alterations or improvements to such a facade must be approved by a local Board of Architectural Review. Local governments do not typically hold facade easements, but efforts to encourage easement activity in conjunction with the local preserva- tion organization can be beneficial to the preservation of the historic character with little government maintenance or financial support. B. State Funding Sources • North Carolina Division of Coastal Management Coastal and Estuarine Water Beach Access Program This program helps local governments provide adequate public access The Cox Company Anp/ementation Action Plan • V11-7 ' 1994 Wofeifionf Plan Slvansboio • NC to the ocean and estuarine beaches and to non -estuarine rivers in North Carolina's coastal zone. Matching funds are available only for land ac- quisition and construction projects that are consistent with the state's shorefront access policies, and all public access facilities must be handi- capped accessible. Solicitation packages are available to local governments in March of each year, and funds are awarded in October of each year. Average grants range from $39= to $48,000, and the maxi mum award has been $150,000. • North Carolina Department of Transportation ' Highway Beautification Program Grants for landscaping, sidewalks and other roadway improvements can be obtained from the Department of Transportation. The Town receives information about the State Beautification Plan annually and the Town of Swansboro Parks and Recreation Board will include this item within their annual program consideration as well as with the long range program that the Board will be preparing in the near future. The Town is located within District 3 of the Highway Beautification Council. Parks Recreation • North Carolina Division of and Land and Water Conservation Fund ' These matching funds are for the purpose of acquiring and developing land, water and facilities for public outdoor recreation. The local govem- ment applicant must hold fee -simple title to the property, involve the public in developing the project, and comply with federal non-discrimi- nation laws. Each proposal is evaluated on the following criteria: 1) the degree of need based on the statewide outdoor recreation plan; 2) site ' considerations (e.g. slope and soils); 3) program planning (e.g. citizen in- volvement and local staff support); 4) administrative considerations; and 5) miscellaneous considerations. The grants have ranged from $35,000 to $75,000, with an average of S48=1 for 1991. • North Carolina Division of Marine Fisheries Coastal Public Fishing Access Program Under this program, matching funds are available to provide access to coastal fishing waters for land based recreational hook and line fisher- men. Local governments must be located in coastal estuarine waters as defined in NCGS 113-132 and N.C. Marine Fisheries Commission Rule NCAC 3Q .0200. Selection is based on need to provide new access points and the amount of unobligated funds available for such a project. Grants range from $10= - $40,000, with an average grant of S20A00 for fiscal year 1991-1992. fie Cox Company /mp/ementofion Action Plan • V//,B 1 IPPQ Waterfront Plan Swvansboro • NC ' North Carolina Department of Cultural Resources Certified local Government Program and Other Development Grants The Department of Historic Resources is allocated approximately ' $130,000 per fiscal year for non -construction grants (e.g. resource surveys and research services), although nearly $70,000 of this fund can be given to qualified development projects involving outstanding or severely threatened historic resources. Local governments with historic district, historic preservation or historic landmarks ordinances are more likely to be approved as a "Certified Local Government;" funds are extremely difficult to obtain from the Department of Cultural Resources if the local government is not eligible for this program. In addition, Certified Local Governments (CLGs) are also able to direct federal Historic Preservation Fund grant money toward projects relating to physical restoration and stabilization, preservation planning, architectural and archaeological surveys, design guidelines and architectural feasibility studies. CLG grants are for projects that can be completed within one year. ' North Carolina Department of Environment, Health and Natural Resources, ' Division of Water Resources Water Resources Development Project Grant Program The purpose of this program is to assist local governments to pay for the ' construction of high priority water resources projects. Matching funds are available for the non-federal share of the following project purposes, not to exceed the percentage of non-federal share indicated: general navi- gation (80°k); recreational navigation (25%); water management (66 2/3 U stream restoration (66 2/3 OQ; beach protection (75%); water -based recreation (50%); and aquatic weed control (50%). Projects are reviewed and ranked based on the economic, social and environmental benefits, regional benefits, the financial resources of the local government, the environmental impact and the direct benefits to ' state-owned lands and properties. Benefits resulting from project im- provements must accrue to more than a single landowner or parcel of land. Average grants are approximately $32,000. C. Case Studies iA few localities in North and South Carolina with characteristics similar to those of Swansboro have been selected to illustrate methods and strate- gies that have been successful in the implementation of local waterfront conservation and development efforts. Such efforts were generally un- dertaken to improve public access and enjoyment of the waterfront and to protect natural resources for the benefit of the community at large and the health of the resources. These case studies will show how the select- ' ed localities dealt with the problems of acquisition, development, private . investment, funding sources, and maintenance. The Cox Company Implementation Action Plan • V//-P rl L� 1 1994 Wateitronf Plan SMMsboro • NC 1 • Southport, North Carolina The officials of this small town of approximately 2300 persons completed ' a Waterfront Development Plan with the assistance of an Urban Design Assistance Team (UDAT) in 1991 to support Town efforts in waterfront con- servation, public access to water amenities, and the preservation of the historic district. Citizen concern over the failing economy of the Town in the mid 1980s, due to the removal of County offices from the Town and the decline in the commercial fishing industry, stirred action towards an eco- nomic revitalization program, which was begun in 1988. ' The waterfront was unanimously seen as the Town's most important and vital asset, for both the citizen and visitor populations. A diverse mix of water -related and retail uses that promoted the 'fishing village" atmo- sphere was a chief goal in the development efforts. Features such as the unique and flexible street grid, the wide streets, the waterfront views and ' access, and an architecturally diverse residential and commercial his- toric district were documented to provide a means of defining the Town's special character. Initial efforts specified in the Development Plan included select land ac- quisition, street tree planting along major streets and entrance corridors, the strategic placement of attractive and unobtrusive signage, the re- moval of minor City -owned structures which detracted from waterfront views and pedestrian connections, and the installation of pedestrian pathways and edge treatments in the Town's Franklin Square Park. ' Other future actions recommended by the Urban Design team included: The establishment of a Downtown's Merchants Association, to work in partnership with the Town government for revital'¢a- tion efforts. The reevaluation of the Town's Zoning Ordinance to ensure provisions, for recommendations in the Development Plan. • The encouragement of the local Historical Society to develop tours and brochures to generate more interest in the Town's history. • The upgrading of dock facilities, including the linkage of the ' improved pier to the downtown with a pedestrian walkway. The creation of a gateway entrance to the Town and historic district, with land acquisition for the gateway location. • Continued landscape improvements and the preservation of ' significant trees and vegetation. The Cox Company /mp/ementotion Acfion Plan • VII-70 n 1 J 7994 Wofelflont Plan SWansboro • NC • The active interaction with the North Carolina Department of Commerce to identify potential firms to invest in economic development in the Town. • The provision of appropriate and adequate urban services by the City to support new economic activity and overall growth. • The active identification of the types of businesses needed to serve the downtown residential neighborhoods and the tourist traffic from the water, and the encouragement of a Town mar- ket to be a cohesive center of activity for residents and visi- tors. • Manteo, North Carolina The Town of Manteo has been fortunate in recent years to attract the at- tention of the preservation community as well the development commu- nity because of its unique and successful approach to revitalization. The Town was the focus for studies in the 1980s on small town development and preservation by the Rouse Company, a development firm noted for its "festival marketplace" development projects, and also by North Carolina students and prominent historian and preservationists Randy Hester. Throughout the late 1970s and early 1980s, the local government of Manteo assembled small parcels along the waterfront, through pur- chase, donation and "trade" for other municipally -held parcels. The conglomerated properties were marketed and leased to developers, and waterfront amenities were constructed largely through private initia- tive and funding. Waterfront amenities included a public boardwalk, a condominium and retail complex and a lodging facility. The construc- tion of the boardwalk was financed through matching grants from CAMA, and also the Land and Water Conservation Fund, as administered by the state Division of Parks and Recreation. Private funds realized the rest of the facilities. A major goal of the Manteo Waterfront Redevelopment Plan was to retain certain "sacred places" that were important to Town residents so as redevelopment occurred, the Town's scale and special character would be retained. The local government accomplished certain goals for the project with- out too many compromising incentives for the developers; no tax abate- ments were given, and no impact fees were forgiven during the negotia- tion process. • New Bern, North Carolina ' The waterfront area along the Trent and Neuse Rivers in the City of New Bern is similar in its programmatic features and general layout to the Town of Swansboro, despite a moderate difference in size, scale and density The Cox Company Implementation Action Plan • VII-11 r -� ' IPP4 Wofediont Plan Swansboio • NC 1 of historic structures. The construction of New Bem's Union Point Park, lo- cated at the confluence of rivers much like Swansboro's Bicentennial Park, was initiated by the local downtown redevelopment corporation, who obtained a donation of 3 acres of prime yet abandoned waterfront ' property for the Park. Much of the waterfront property was already City property, which made implementation much easier. The City also stipu- lated the retention of a 30 foot easement along the River for new devel- opment. The amenities of the waterfront also include a pedestrian promenade for the entire length of the waterfront, some residential opportunities, com- mercial redevelopment opportunities linked to the pedestrian prome- nade, and traffic and road improvements for easier access and the en- couragement of private reinvestment. At Union Point Park, boat ramps and fishing piers, along with pleasant views to the Rivers and a large pub- lic open space, are other amenities for waterfront recreation. ' In trying to implement their waterfront plan, New Bem planners discovered certain strategies which worked to achieve their goals and others which they should have used. The City found that they had to acquire some property in piecemeal cooperative agreements because they had ne- 'J glected to have a comprehensive land use policy to govern such activi- ty. As a result, a major land owner along the waterfront refused to give public access across his portion of the waterfront, hampering efforts for a continuous promenade. From this experience, New Bem knew it must in- clude policies in regards to waterfront development and conservation in its CAMA Land Use Plan and City comprehensive plan. Other strategies recommended by New Bem are listed as the following: •Adopt ordinances which reflect land use plan policies, with specific requirements and incentives for developers. - •Institute a "waterfront conservation district" to strengthen the purposes of redevelopment. •Specify needs for public access to the water, especially where there is a large amount of land owned by private indi- viduals along the waterfront. •Get the public involved immediately in the waterfront conser- vation and development plan, as to gain public opinion, input and support for action. . •Clarify incentives and governmental concessions for private investment, and streamline the administrative process to in- clude enough "checks and balances" without a too lengthy time frame. The Cox Company Implementation Acfion Plan • VII-72 I I IPW Wofediont Plan Swansboro • NC • Beaufort, South Carolina The Town of Beaufort, South Carolina has approached the improvement of its waterfront area from several interesting angles. A unique mixture of private and public efforts have nicely integrated the marina and natural shoreline with the central commercial district and historic residential area. The waterfront park has existed for at least 20 years, and is owned and fully maintained by the Town. The park and the surrounding marshland are zoned "preservation / conservation;" a local land trust has pur- chased the marshland and natural shoreline areas and holds these areas under protective covenants, while the Town maintains the land in good order. The Town owns the streets that lead to the marshland and the water's edge, so the Town is able to control visual and physical access and landscaping treatment. To avoid disputes with residents who sometimes assume they own this land at the end of the streets, discrete signs are ' posted which say, in effect, "enjoy the view, courtesy of the Town of Beaufort." Parking is provided by the Town in selected spots along with tourist centers and pavilions. 1 1 11 ri The central commercial district along Bay Street has little available land, and the Town encourages efforts towards redevelopment and historic rehabilitation. The Historic Beaufort Foundation has been a helpful part- ner to the Town in developing and preserving the Town's character and structures. Architectural review standards govern the design and con- struction of infill buildings, and trees can only be removed with an official permit. The Town will soon be enacting a comprehensive landscaping plan for the entire Town to ensure landscape standards. D. Waterfront / Esplanade Implementation Strategy In order for a successful short-term as well as long-term waterfront imple- mentation effort to be achieved, a well planned and orchestrated imple- mentation strategy is needed. The strategy should build upon a broad, conceptual image for the waterfront which this plan exemplifies, as well as a realistic, "nuts -and -bolts" level of attention to the details necessary to get it done. Above all, it should be a community supported public-pri- vote effort involving elected officials, citizens, business owners and wa- terfront property owners. The strategy should draw upon the planning and growth management tools and state funding sources outlined in this chapter. Based upon ex- periences in other communities, the following steps are suggested: 1. Publicly involve and communicate benefits to citizens and property owners. A steering committee, or other appropriate body should be or- ganized to oversee the effort and promote the project. The following ad- vantages should be stressed: The Cox Company Implementation Action Plan • VII-13 IPP4 Wofediont Plan Swansboro • NC • The increased attractiveness to tourists and boaters • An enhanced visual image of Swansboro • The increase of commercial and business activities • The provision of waterfront amenities to local citizens The Town should communicated its commitment to undertake a com- prehensive approach and program for its waterfront. Incremental pro- jects, such as the preparation of this Waterfront Conservation and Development Plan and the improvements to Bicentennial Park, should be promoted as part of the overall improvement strategy. 2 Encourage cooperative efforts between property owners and the town. Public ownership or access to continuous portions of the waterfront is needed. The Town owns numerous street -ends but important parcels between such publicly owned parcels are in private hands. To provide public access: • Owners should be asked provide easements and/or owner- ship through donation, or purchase. Tax benefits should ac- crue to the owner through donations. The Town should use the power of eminent domain to obtain property only as a last re- sort. • The Town should be responsible for the planning, project de- sign, construction, maintenance, security and insurance for the project. • The Town should adopt land use policies and regulations to ensure public access to undeveloped waterfront parcels prior to construction by requirements in the permit process. 3. Mitigate problems for property owners on a case by case basis. The implementation of the plan will necessarily require changes from the ex- isting situation and may create hardships or inconveniences for some property owners. Cooperative and creative agreements to solve these issues should be worked out individually. Some solutions may involve: • The provision of substitute boat moorage • The provision of fencing, gates, landscaped screening or lighting as appropriate and necessary 4. Financing. Generating the financing resources to complete elements of the plan can come from numerous sources and should be tailored to the type of project and availability. • Capital funding entails designating on -going public funding in the town's Capital Improvement Program as part of a long range commitment to the effort. The Cox Company Implementation Acfion Plan • V11-74 IPPQ Waterfront Plan SWansboro • NC • A Special Assessment District can be created to fund all or part of any project with those land owners and businesses benefiting from the project and also bearing some of the cost. • Grants should be identified and applied for in support of indi- vidual projects. Some possible sources are noted in this chapter, section B. • User fees, such as moorage charges, can help offset project costs. These fees must be reinvested in operation and main- tenance of the facility being used. • Contributions from individuals and business can be solicited to support components of the project, in exchange for possible tax benefits. • Fund-raisers could be held to benefit waterfront improve- ments. • A "Gift Catalog' can be established so that individuals or busi- nesses can donate individual items to the project as part of an overall plan and receive a tax benefit. • A low interest loan program with the cooperation of local fi- nancial institutions, historic tax credits and tax abatement could be utilized to support appropriate private new construc- tion or the rehabilitation of historic structures. The Cox Company ir»piementation Action Plan • VII-75 ' Chapter V///, Detailed Plans and lmp/ementafion Methods Swansboro Waterfront Conservation and Development P/an • IM 1 ' IM Wafedront Plan Swx=sboio • NC CHAPTER 1////.- Detailed Plans and lmplementation Methods The following section serves to provide brief narratives explaining the design concepts and approaches to Bicentennial Park and the Town Square. The Route 24 corridor is noted as an important linkage and gateway for the Town. 1 Bicentennial Park The renovation of this half -acre, waterfront park is the result of the Town's commitment to providing a high quality public environment and improved access to the adjacent White Oak River. The fully handicap accessible improvements include a new pavilion and restroom building, a fishing pier, brick paving, benches, lighting and a civic statue which serves as the focal point for the park. Open areas of lawn including some shade trees provide for an attractive pedestrian space that will also accommodate a variety of public gatherings and festivals. The development program required that CAMA Area of Environmental Concern standards and requirements be addressed. As a result, the edge of the park was stabilized with a wooden bulkhead that was strategically located where it would not intrude upon the existing salt marsh. The design of the pedestrian sidewalk system included a porous gravel layer to reduce stormwater runoff and encourage recharging of the groundwater supply. The Town Square The Town Square, with associated waterfront and commercial facilities, is a high piioiily project which would serve to unite the pedestrian and boater at a location central to the commercial and residential district. The square may serve as a central public space providing access to the waterfront, a facility for public events and and a town pier for visiting boaters. The concept of the proposed Town Square Plan is described in the accompanying graphic. The following goals govern the implementation program for the overall Waterfront Development Plan: • Create a strong visual and functional "center" for the community, giving the downtown area a focus and location for public events and activities. The Cox Company Detailed Plans andlmolementation • Vlll--I I 1 1 The Cox Company IM Watediont Plan SWansboto - NC • Create a "sense of entry' and a visual focal point to the waterfront as seen by automobile travelers from the Route 24 entrance corridor as well as by boaters approaching the Town by water. Facilitate the accessibility of the waterfront to the community by creating improved public access along the waterfront with pedestrian amenities and direct linkage to the downtown area. Strengthen the historic integrity and economic viability of the commercial district and downtown streets by initiating public improvements, encouraging appropriate infill development and linking together the various disconnected sections of the downtown area by plan and design. Plan Description The proposed location for the Town Square is influenced by the terminus of Church Street at the waterfront. The terminus of Front Street also intersects the Town Square. The acquisition of the land potentially dedicated to the Town Square is enabled by the existence of the publicly owned and unused street right-of-way adjoining the waterfront. The potential to further expand the Town Square by incorporating the underutilized parcel in the southeast quadrant along the waterfront and/or a portion of the northeast parcel fronting Church and Front Streets also exists. The incorporation of the Southeast parcel presents an opportunity for the development of other parcels adjacent to the square and fronting on the water. The incorporation of these additional parcels is illustrated in the plan. The plan envisions two alternative Town Square uses. The first is the normal, everyday use as a waterfront park providing access and possible connections along the esplanade. Supportive parking can be provided as well. The second alternative use is a public space supporting seasonal festivals and public activities such as concerts markets and holiday events. When these events occur, parking and through traffic can be temporarily prohibited and the entire space can be fully utilized. The gazebo can be employed as a stage or other central focus. The gazebo as shown not only performs the functions above but provides a visual focus and defining landmark terminating the views along Front and Church Streets as well as serving as a landmark as viewed from the water. Detailed Plans and Implementation - 1/III2 ' 1994 Wateifiont Plan Swansboro • NC The town piers can provide short term moorage for visiting boaters close to Swansboro's downtown, thus encouraging increased support and activity for Swansboro's shops and restaurants, as well as creating a climate for local bed -and -breakfast establishments. Conventional marina functions would still be supplied at the existing marina. A companion gazebo located at the end of the pier can further denote 1 the "center' of Swansboro as seen from the water, and thus, with proper navigational lights, create a nautical "Gateway' to Swansboro. Other key components of the plan include distinctive lighting along the esplanade, providing a nighttime unity to the waterfront and large street trees, preferably native live oaks and crape myrtles. The early development of the Town Square can serve as a catalyst for numerous other elements within the Commercial District and along the Waterfront, especially the completion of the Waterfront esplanade. Lj The Cox Company Detailed Plans and lmp/ementotion • K113 1 III N Town Square: Illustrative Plan IVA i �,. AMP Town Square AM White Oak River Front Street Am 'GQ v a Town Square: ConceDtual Plan C I ITown Square: Persl2ective 11 mm I Existing Conditions X.T.S. OA Ri-- T. asra.Y.•d wart LwA Lr 0 Lrc LV w 40 Fishing Pier it fuz, 'Mrams nil I- MAI • Dm-M .. W b. aM W b. f. P— •1#341. 3n 4.9" A. �— W&wb" rP.M— --f— I.P— Proposed Bulkhead Fs Bicentennial Park Imptovements Proposed Fishing Pieiand Restroom Facility S.amaboro North Carolina N.