CAMA Land Use Plan Update-1981

EXECUTIVE SUMMARY
[MITLI� ���:1:i:f:VZTAj7 T�u� l�
LAND USE PLAN UPDATE
WINDSOR, NORTH CAROLINA
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 COASTAL ZONE
MANAGEMENT, NATIONAL OCEANIC AND ATMOSPHERIC
ADMINISTRATION.
1981

The following is s summary of the Town of Windsor's CAMA Land Develop-
ment Update. The update is consistent with the requirements of the Coastal
Area Management Act. It was written in accordance with the amended Land
Use Planning Guidelines effective as of September 1, 1979, Thus, the
update and the original 1976 Plan will serve as a "blueprint" for future
development in the Town of Windsor.
The CAMA Guidelines state that the major purpose of periodic updating
of local land use plans is to identify and analyze emergingcommunity
issues and problems..
The guidelines further give the following objectives the update
should meet:
1) to further define and refine local policies and issues;
2) to further examine and refine the land classification system
and the land classification map;
3) to assess the effectiveness of the existing land use plan and
its implementation;
4) to further explore implementation procedures; and;
5) to promote a better understanding of the land use planning process.
What follows arethe issues .that were defined, in the update, possible
policy alternatives, the community's chosen policies, and a description
of how the adopted policies will be implemented.
A. ISSUE - RESOURCE PROTECTION
Certain natural resources within the coastal area contain unique features
that give them particular environmental value. The Coastal Resources
Commission has designated these unique features as areas of environmental
concern. The only Area of Environmental Concern within the town is the
Public Trust Waters. These waters are defined as all navigable waters

within the town and its planning area. A full description of these waters
can be found in the original CAMA Plan (p. 87.) Local officials feel that
recreational uses are appropriate for this AEC. Officials stress activities
such as fishing, boating and wading for this area. Activities the town
will prohibit in these waters include use as a drinking water supply and
for culinaryor food -processing purposes.
Turning from Windsor's only AEC an examination of the town's other
resources must be made including a description of their. constraints. The
constriants •land suitability section of this plan indicated that Windsor
had two types of physical constraints to development. The first
constraint is a man-made hazard involving the town's storage areas for
oil and.petroleum. Development surrounding these storage areas is
directed by the Windsor Zoning Ordinance. The use of this ordinance to
direct. future development close to these areas will assure compatible land
uses. The second constraint is a natural hazard.in the form of a flood
hazard area. This area is located within the.Cashie Flood Plain. Develop-
ment is.directed by use of the town's floodway ordinance. Windsor is
also under the.Emergency Flood Insurance Program.
Windsor's elevation and frequent flooding have caused a problem for
some soil associations within the planning area.' Therefore, the soils
in the planning area can also present a constraint to development. Refer
to the constraints and.land suitability section in the update for a full
description of the problem concerning the soils. Local officials have
indicated. that they will use the completed soils survey report to help
local residents make better.land use decisions.
other natural resources found within the Windsor Planning Area
include the agricultural and forest lands These lands are dominate in
land use and also have a significant impact on the :town's economic base,
2

as the economy and population section of the update denotes. Therefore,
the proper management and protection of these resources is important
concerning the economic well-being and social stability of the Town
of Windsor.
Windsor contains approximately twenty-three (23) historic structures
of significance. These historically significant structures have helped
the town realize the need for establishing a district for the protection
of the town's only historic resources. The establishment of such a
district indicates concern regarding the town's past history.
Presently, the County prepares hurricane and flood evacuation
plans for all municipalities within the County. Therefore, Windsor
officials do.not have to prepare such.documents for the town. The needs
for such plans are obvious and continued participation with the County
in such plans will assure adequate protection for the town.
Policy Alternatives
(1) The Town could choose.not to protect its natural resources.
This alternative should be unacceptable because of the important
role natural resources play in the overall economy of the
Town.
(2) The Town could plan facilities so that they will not impact
historically significant properties. As mentioned earlier, the
town is establishing a historic district which will contain the
majority of the town's historic sites. Preserving and
protecting this area could bring tourist dollars into the
town.
3

(3) The Town could allow no development in AEC. It is not clear
under this alternative whether the Town has the statutory
authority to allow no development at all in AEC.
(4) The Town could allow limited development in its designation
AEC such as: piers and wharfs. This alternative is consistent
with the CANA Guidelines and is considered to be more
feasible than the preceding alternative.
(5) The Town could support all federal and state programs aimed
at protecting fragile environmental areas.
(6) The Town could or could not develop its own hurricane and
flood evacuation plans or continue to be a part of 'the
County's plan.
Policy Choices
(1) ,The Town will discourage development that is found to be
non -compatible, to the local soil.characteristics.
(2). The Town will not support development that negatively
affects -hazardous or fragile land.areas such as AEC and
historical and archeological properties.
(3) The Town will allow limited development in its designated
AEC's consistent with 15 NCAC 7H, W, 7K, and 7M.
(4) The Town will continue to be included in the County's
Hurricane and Flood Evacuation Plan.
4

Description of the Proposed Implementation Procedures
(1) The town council and town administrator will make the recently
completed Soil Survey an important part to the town
development process by 1982.
(2) The Town will not provide services to projects that could
have a negative impact on fragile or hazardous environmental
areas. These services include water and sewer services,
solid waste disposal, and recreational facilities.
(3) The town administrator (permit letting officer) will continue
to enforce the CANA minor permit letting system in
designated AEC's.
B. ISSUE - RESOURCE PRODUCTION ANDMANAGEMENT
As mentioned earli.er, natural resources in and within close proximity
to the town include the productive agricultural and forest lands. Windsor
also has one designated AEC. All of these resources impact on the local
community in some way, thus; they should be properly managed to assure
continued benefit to the town. What follows here is a discussion of
these resources and their impact on the Town of Windsor.
Productive agricultural lands encompass approximately 1,858 acres
and are located throughout the .town Is one -mile area. All agricultural
lands are currently devoted to crop production or have crop production
as their primary function. Presently, twelve percent (12%) of the local
firms are involved in agricultural activities.
Forest production also has a positive impact on the local economy.
These land uses are also located throughout the town's one -mile area.
5-

Presently, sixty-three percent (63%) of Bertie County's manufacturing
firms are located in Windsor'and are related to forestry activities.
When we combine forestry with agriculture the.economic impact is very
significant. Together they comprise seventy-five percent (75%) of
the local firms involved in forestry and agriculture. However, the
adverse affects of the operations of both activities should be weighed.
operations such as draining and ditching should be watched because
of the possible effects it could have on another industry or resource,
namely fishing. However, Windsor has no vast amount of commercial
or recreational fishing. Thus,improved agricultural and forest
programs and proper management could increase the yielding production
of these resources..
As aforementioned, Windsor has no commercial fisheries. The
Towm does have an AEC, Public Trust Waters. Public trust areas are all
waters in the coastal zone in which the public has acquired rights by
prescription, custom, usage, dedication or any other means. In
Windsor's case,these waters are used.for recreational -fishing and other
uses.as prescribed by the CAMA Guidelines. Proper management should.
continue to be given to this'area because of the aesthetic value and
potential for economic development.
Off -road vehicles have not caused any problems in Windsor, there-.
fore the Town has no policy regarding this issue.
Policy Alternatives
(1) The Town could not be involved in any resource production or
management activities. This alternative should be unacceptable
because of the economic impact those resources have on the
Town.
6 .

(2) The Town could support all federal and state programs dealing
with the management of commercial and recreational fisheries.
There is no commercial fishing occurring within the town,
however, there is a need to protect the little recreational
fishing that currently exist.
(3) The Town could support all federal and state programs that
deal with the management of commercial forest. Of the
fifteen (15) firms located in Windsor, sixty-three percent
(63%) of the firms have activities that involve forest
related projects. This denotes the importance of forestry
to the Town.
(4) The Town could support all federal and state and programs
that deal with the management of agricultural lands in
its planning area. .'
(5) The Town could choose not to utilize the soil survey reports.
This should be unacceptable because the purpose of the
on -going soil survey is to help landowners make better
land decisions, thus bringing about better management of
one of the.town's valuable resources (its soils.)
Policy Choices
(1) The Town will use the soil survey because of the importance
in maintaining productive agricultural lands and providing
information for land use decisions.
(2) The,Town will support all federal and state_programs that'
deal with the management of commercial forest and agricultural
lands.
7

(3) The Town will support when feasible, all federal and state
programs dealing with the management of commercial
fisheries and recreational fishing.
(4) The Town does not have -any known mineral production areas
at the present time. However, if any are found, they will
be developed in a manner such that their production will
be consistent with all other resources protection and
production policies.
(5) The Town.does not have a policy on off -road vehicles because
the issue does not concern Windsor.
Description of the Proposed Implementation Procedures
(1) The town administrator and clerk will utilize the completed
Soil Survey Report as a base for -providing information
concerning land use decisions by 1982.
(2) The town administrator and clerk with the aid of county,
state,'and federal agencies will provide information for
proper forest'and agricultural management to.local residents
by 1982.
(3) The Town will continue to utilize its adopted Zoning Ordinance,
Subdivision Regulations and CAMA permit issuing powers to
help manage its land resources.
C, ISSUE • ECONOMIC AND COMMUNITY DEVELOPMENT
The economic and community development issues of the 1976 Plan are
still significant today. Local residents realize the importance of both
issues as related to job opportunities and improved housing conditions.

Town officials realize that economic development can assure the maintenance
of a strong local tax base and help provide an upgrade in services. They
also know that.new community development suggest the need for more
public services in areas experiencing growth. what follows here is a
discussion on the economic and community development issues that face
Windsor.
All types of development are encouraged within the Windsor Planning
Area. The 1976 Plan suggest (p. 58) that the Town wishes to.continue
the existing developmental patterns occurring in town excluding
incompatible land uses.
Patterns of economic development,'commercial and industrial have
not changed since the original CAMA Plan. .Concentrations of commercial
establishments are still centered in the Central Business District (CBD.)
However, physical deterioration is still a problem for the CBD coupled
withthe competition of neighboring.plazas and shopping centers. To
help this situation the town had the East Carolina University - Regional
Development' Institute prepare a redevelopment plan for the CBD. This
plan included architectural designs for all of the establishments in
the downtown business area. The town officials and local merchants hope
that the renewed interest in this area will.help generate more economic
activity. The development of the Historic District should also aid in
the CBD revitalization. - -
Industrial growth has been steady in the Windsor Planning Area.
As mentioned earlier, state and local officials have suggested future
industrial development occur in the industrial park site. The proximity
to major northeastern routes and a twelve (12") inch water line serving
the area add to the attraction of industrial prospects. The most
recent of these prospects is the June Day Manufacturing Company,

a bathing suit manufacturer. The Town will continue to provide public
services when feasible to help expand the commercial and industrial
development near the town. Turning from Windsor's economic development
issues we look ar the community development issues that exist in the
town.
As the existing land use section of the update suggest Windsor has
been characterized by steady residential development. Presently, steady
growth patterns are occurring in several communities and subdivisions
within the town. Communities experiencing residential growth include
Spruill Park Development, Hillcrest Development, Powell Stokes
Community, the Thompson Development and the Windsor Oaks Community.
A previous problem concerning residential development involved land
use compatibility. This issue concerned conflicting land uses of
residential and industrial properties near the Windsor Oaks Community.
The strict enforcement of the Windsor Zoning Ordinance resolved this _
issue and has been important in directing development in Windsor.
Town officials and area residents are also concerned with preserving
the local.housing stock. The Town currently administers a federal
housing program. The program is.funded through the Department of Housing
and Urban Development (HUD) under their Small Cities Community Development
Block Grant Program. In addition to housing improvements, local officials
also understand that some public improvements can be made under this
grant program. Thus, we see the redevelopment of older or distressed
residential neighborhoods is an issue the town is working to resolve.
10

Local officials have encouraged development in and within close
proximity to the town's corporate boundaries. The officials feel that
clustering developmental patterns will lessen service extension cost
is e., water and sewer lines. The constraints -capacity of community
facilities section of the update suggest that the present facilities
will be capable of any additional demand anticipated by an increased
population.
The Town of Windsor does not have a policy on energy facility
sitting. However, such facilities would have to adhere to the Windsor
Zoning Ordinance, if they are located within the Windsor Planning
Jurisdiction.
The Town does not have policies on tourism, beach or waterfront
access. However, the town should create a policy concerning tourism
since it is in the process of establishing a historic district.
Creation of such a policy can add dollars to the local economy.
Another issue of local concern is annexation. As the population
and economy section of the update notes,.Windsor's present growth can be
attributed to recent annexations. Presently, the town is considering
two (2) new areas near the town for.possible annexation., These areas
include. (1) an area on U. S. 17.North beginning at the town limits
and running approximately 3,800 from U. S. 17 and (2) an area on U. S. 13
beginning at the tows limits and running to the Cashie River. The town
council has requested and received a grant commitment under the N. C.
Clean Water Bond Act to help in the extension,of services to areas of
proposed annexation. Other grant funds are currently being pursued for
service provision. From the preceding paragraph it can be seen that the
Town of Windsor is pro -growth. Thus, it is the town's policy to annex
areas.close proximity of the present town limits according to
11

G. S. 160A-36. This annexation policy is contingent upon the town
receiving funds to decrease the cost of the service provision.
Policy Alternatives
(1) Do not seek additional economic or community development
in the Town. This alternative would be impractical since
the town council has taken a pm -growth position concerning
this issue. .
(2) To commit the Town to such programs as Community Develop-
ment Block Grants and Highway programs and other federal
and'state programs that could aid the town in its
economic 'and community development.
(3) To encourage development and redevelopment in and within
close proximity of the town's corporate limits. .This
policy would serve to lessen the cost of infra -structure
extensions (i. e., water and sewer.)
(4) To investigate funding sources for the redevelopment of the
'Central Business District(CBD.)
(5) The Town could or could not develop policies on energy
facilities sitting.
(6) The Town could or could not develop a policy on tourism and
waterfront access.
i
(7) To investigate state and federal agencies concerning funding
for annexations.
(g)' The Town does not have a policy on channel maintenance since
it is the responsibility
of
the Corps of
Engineers or beach
nourishment since there
are
no beaches in the planning area.
12

Proposed Policy Choices
(1) The Town will be committed to state and federal programs
mentioned in the policy alternatives. This commitment
will be shown by inviting the appropriate state and
federal officials to educate the town about such programs.
(2) The Town will encourage development and redevelopment in
and within close proximity of the town's corporate limits.
(3) The Town will allow energy generating facilities -power
plants, both nuclear and conventional, electrical
switching substations and other energy related facilities
only in those areas away from population clusters.
(4) The Town will continue to apply for state and federal funds
for the town's community development needs.
(5) The Town Council supports tourism in the Windsor area.
(6) The Town Council supports limited access to the Cashie
River.for recreational purposes'.
(7) The Town Council will support revitalization efforts for
Windsor Central Business District (CBD6)
Description of the Proposed implementation Procedures
(1) The Town will continue to participate in state and federal
programs by applying for both state and federal community
development funds by 1982.
(2) The Zoning ordinance and subdivision Regulations will
continue to be used to direct development and redevelopment
in and within close proximity to the corporate limits.
(3) The Town will.utilize service provision as a means of
13

implementing a cluster development pattern by 1982.
(4) The Town Council will investigate methods of educating the
general public about its historic district by 1982.
(5) The Town will investigate developing a feasibility study
on locating a public boat ramp within the Windsor Planning
Jurisdiction by 1983.
(6) The Town Council will work with local merchants in coming up
with proposals for downtown redevelopments.
D. ISSUE - CONTINUING PUBLIC PARTICIPATION
The present CAMA Guidelines encourage public involvement in the
planning process: Consistent with -this belief, the governing body of
officials appointed a planning board to serve as.a vehicle for citizen
participation. This board being.an extension of the town commissioners
is charged with the_responsibility of researching, studying, surveying
and discussing planning matters of significance to the Town of Windsor.
All planning board meetings. are open to the general public and provide
the opportunity for public involvement.
Policy -Alternatives
(1) The only alternative to one of public participation is one
of non -participation by the public. This alternative is
totally against the foundation of our Democratic idealogy.
(2) The Town could continue to expand public participation
mechanisms to educate and inform its residents. This
alternative would be the ideal choice. It calls for the
development of mechanisms to get more people involved in the
planning process. By doing this a broader perspective can be
14

obtained and translated into policy by the governing body.
Policv Choice
(1) The Windsor Planning Board has recommended to the Town
commissioners to implement, improve and expand its
public participation efforts in reference to land use
issues. .
.Description of Proposed Implementation Methods
(1) The Planning Board will develop a questionnaire that will
be administered every five (5) years to gauge citizen
opinions about land use issues.
(2) Announcements of all planning board meetings will be
placed on radio as a public service announcement.
(3) The Clerk to the planning board will work with local
news media personnel in developing relevant news items
concerning planning board meetings as a means of public
education.'
15

E. OTHER SPECIFIED ISSUES
The Coastal Resources .commis sion has specified that certain issues
be addressed in the Windsor Land Use.Update. These issues include,
(1) Downtown Revitalization and (2) Water and Sewer problems. The
following summarizes the town's efforts under each issue:
(1) Downtown Revitalization
The Town of Windsor has embarked upon a program for the revitalization
of the Central Business District (CBD). This revitalization project is
aimed at halting the physical deterioration that has plagued the CBD
and to make the downtown area more attractive. A few years ago the
East Carolina Carolina -University - Regional Development Institute
assisted in preparing a Fascade Plan for the downtown. Some merchants
have made suggestions for improving the ECU proposal. Currently, the
town is taking the following steps to continue the CBD revitalization
efforts:
(A) Putting brick sidewalks in the Central Business District
(B) Planting holly trees in the CBD
(C) Development of a downtown park and petting zoo
(D) Establishing a Historical District which encompasses the CBD
(E) Moving a structure of historic significance located within
the CBD to a new location for rehabilitation purposes. This
structure will be used by the Chamber of Commerce.
16

Thus, there is still a commitment on the town's part to help
revitalize the Central Business District (CBD.) The town council will continue
its efforts to revitalize the CBD by any means possible.
(2) Water and Sewer -
The capacity of community facilities section of the update
identified no current or future water and sewer problems for the
Windsor area. The only problems foreseen -with the provision of
these services is related to extending them to possible areas of
annexation. 7he'town realizes that due to the rising cost of -
construction the town may have to delay some of its planned annexation.
Since the town has taken a pro -growth stand -those areas proposed for
annexation will only be annexed when funds are available for the
provision of water and sewer services.
17

F. PROPOSED FIVE-YEAR WORK PROGRAM
This proposed work program has been developed and incorporated
into the. planning process to monitor and update the progress being
made toward achieving the goals and objectives outlined in
the update. This evaluation procedure should measure progress toward
achieving a proposed five-year work program. It is recommended that
the planning board make progress assessments at the end of each fiscal
year; and forward all recommendations to the town council. The
major evaluation goal is to accomplish those stated objectives within
a five-year time period. In some instances, it may be necessary to
reprioritize objectives; and, in other instances, implementation of
the stated objectives may be ahead or behind schedule. The
following is a proposed five-year work program for Windsor's CAMA
Land Use Update.
FY 1981 - 82
1) Begin utilizing the completed soil survey to make land use decisions
2) .Make needed revisions to Windsor's Subdivision Regulations
3) Continue to apply for State and Federal Community Development Funds
4) Develop detail enforcement and evaluation criteria for'.the Historic
Properties Commission
5) Educate general public about. Windsor's Historic District
18

FY 1982 - 83
1) The Town Administrator and clerk will seek the aid of State and
Federal agencies on proper forest management practice when called
to do so by town citizens.
2) Develop a brochure for the adopted Historic District
3) The Town will develop a feasibility study on locating a public
boat ramp within the Windsor Planning Jurisdiction.
FY 1983 - 84
1) The Town will continue to apply for Community Development Funds
2) The town's Historic Commission will institute a slide
presentation program concerning Windsor's Historic District
3) The Town will conduct a electrical consumption study (on
residential: usage.)
FY 1984 -i 85
1)' Continue -to apply for Community Development Funds
2) The Town will conduct a water system study
3) The Town will develop a Community Facilities Plan.
FY 1985 - 86
1) Update the Land Use Plan
2) Develop a Citizen Opinion Survey and distribute to general public.
19

0
THIS REPORT HAS BEEN PREPARED FOR THE RESIDENTS
OF
WINDSOR,.NORTH CAROLINA
TOWN COUNCIL
L. T. LIVERMON, JR., MAYOR
0. Wint Hale
J. F. Hoggard, III
Alice Pittman
Lawrence Carter
E. E. Moore, Jr.
David Overton, Town Administrator
PLANNING BOARD
Technical Assis.tance Provided By:
The Mid -East Commission
P. O. Drawer 1787
Washington, NC 27889
PROJECT STAFF
Ricky McGhee, Project Planner
Kenneth Thompson, Project Planner
Emma S. Payne, Secretary
Barbara Dunn, Draftswoman
T. R. Shaw, Jr.
J. Andrew Walker
John Phelps
Jack Curlings
Mary Willoughby
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 Coastal Zone
Management, National Oceanic and Atmospheric
Administration

TABLE OF CONTENTS
. Page
I. INTRODUCTION ................................................. 1
II.DATA COLLECTION AND ANALYSIS ................................. 2
A. Present Conditions ....................................... 3
1) Population and Economy ............................... 3
2) Existing Land Use ................... 11
3) Current Plans, Policies and Regulations ............... 14
B. Constraints: Land Suitability ........................... 22
1) Physical Limitations ................................. 22
2). Fragile Areas ........................................ 23
3) Areas of Resource Potential .......................... 23
C. Constraints: Capacity of Community Facilities.....:..... 24
1) Existing Water and Sewer Systems Analysis............ 24
2) Existing School System Analysis ...................... 26
3) Existing Primary.Road System Analysis ................ 30
4) Existing,Solid Waste Disposal, Police and Fire
Protection ........................................... 32
• D. Estimated Demand ....... ..................................... 35
.. ..........................35 1) Population and Economy
2) Future Land Needs .................................... 37
3) Community Facilities Demand .......................... 39
E. Summary of Data Collection and Analysis .................. 41
F. Major Conclusions from Data Summary..... ................. 42
III. POLICY STATEMENTS ............................................ 46
A. Resource Protection ...................................... 48
B. Resource Production and Management ....................... 52
C. Economic and Community Development ....................... 55
D. Continuing Public Participation ......................... 61
E. Other Issues ............................................. 63
F. Proposed Five -Year Work Program .......................... 65
IV. LAND CLASSIFICATION .......................................... 67
A. Developed ................................................ 68
B. Transition ............................................... 69
C. Community ................................................ 72
D. Rural .................................................... 72
E. Conservation .............................................. 73
0

Page
V. RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION............ 75
• VI. INTERGOVERNMENTAL
0
0
AND IMPLEMENTATION........... 78
VII. PUBLIC PARTICIPATION ........................................ 81
VIII. APPENDICES .................................................. 83
A. Recent Growth Areas in Windsor
B. Historic Sites in Windsor
C. Annual Evaluation Form '
ILLUSTRATIONS
Table
1
Population Trends .......................................
3
Table
2
Yearly Annexations Since 1976...........................
4
Table
3
New Residential Tax Listing, Bertie County
Townships ...............................................
5
Table
4
Building Permits Issued, Windsor Planning Area..........
6
Table
5
Estimated Population by Age Group, Windsor, NC..........
7
Table
6
Manufacturing Firms, Bertie County 1980..............L..
9
Table
7
State Development Regulations ...........................
18
Table
8
Federal Development Regulations .........................
20
Table
9
Monthly Annual Average Water Demand - Windsor...........
25
Table
10
New Residential Sewer Hookups - Windsor Planning Area...
26
Table
11
Bertie County, North Carolina, Public School
Facilities ............................................
27
Table
12
Bertie County School Reorganization Plan ................
28
Table
13
Primary Roads, Windsor 1980 .............................
31
Table
14
Population Projections, Town of Windsor .................
35
Table
15
Bertie County and Windsor Population Projections
1980 - 1990.............................................
36

I. INTRODUCTION
•

I. INTRODUCTION
The Coastal Area Management Act of 1974 establishes a cooperative
program of Coastal Area Management between local governments and the
state. Land use planning lies at the center of local government's
involvement, as it gives the local leaders an opportunity and
responsibility to establish and enforce policies to guide the development
of their community. Therefore, this update along with the original
CAMA Land Use Plan will serve as a "blueprint".for future development
in the Town of Windsor.
The Land Use Planning Guidelines suggest that periodic updates
of local land use plans be made to identify and analyze emerging
community issues and problems.
. The guidelines further give the following objectives the update
should meet:
(1) to further define and refine local policies and issues;
(2) to further examine and refine the land classification system
and the land classification map;
(3) to assess the effectiveness -of the existing land use plan
and its implementation;
(4) to further explore implementation procedures and;
(5) To promote a better understanding of the land use planning process.
These objectives reflect a refinement of the original CAMA 1976
Plan, therefore, the original plan should be utilized as a base for this
update.
• This seems logical since some of the data in the original plan is
still applicable today. Thus,.this update will periodically refer to
Windsor's 1976 CAMA Plan.

II. DATA COLLECTION AND ANALYSIS

II. DATA COLLECTION AND ANALYSIS
A. Present Conditions
1. Population and Economy
The population trends for Windsor have not altered greatly since
the original CAMA Land Development Plan was written in 1976. Table 1
shows the population trends for the Town of Windsor from 1976 to
1980. Although no major changes have occurred during this period the
1980 projected estimate shows a decrease from the 1976 population
estimate. Compared to Bertie County, as Table 1 indicates, Windsor's
proportional share of the County appears to be stable with slight
• fluctuations.
TABLE 1
POPULATION TRENDS
1970 1976 1977 1978 1979 1980
Windsor 2,199 2,380 2,320 2,330 2,410 2,378
Bertie
County 20,528 20,900 21,000 21,300: 21,200 21,840
8 of County
Residing 10.7 11.3 11.0 10.9 11.3 11.4
•
Source: North Carolina Department of Administration
' Division of State Budget and Management.
3

As the 1976 Plan indicated, most of Windsor's pre-1976 population
increase was attributed to annexations. Table 2 shows the yearly
annexations since 1976. It can be seen that 130 people have been annexed
during this period. More recently, Windsor did an Annexation Feasibility
Study with the help of the NRCD Field Office in Washington, North
Carolina. As of this writing, none of the proposed areas have been
annexed, but here again we see annexation possibly accounting for
population growth of the town.
TABLE 2
YEARLY ANNEXATIONS SINCE 1976
Annexed
1976
1977
1978
1979
1980
Acres
0
14
10
0
0
Housing Units
0
4
s0
0
0
Number
of Citizens
0
10
120
0
0
Source: Town Administrator, Town of Windsor, 1980.
Table 1 indicates that the Town of Windsor's 1970 population accounted
for 10.7% of the total 1970 Bertie County population. By 1980 that
percentage is estimated to have increased to 11.4%. This shows a 0.7%
increase which suggest marginal growth occurring and the the trend of
inward migration mentioned in the original CAMA Plan may still hold true
today. However, Windsor's recent growth is likely attributed to its recent
annexations.
•
4

Table 3`examines the new housing inventory in Bertie County by
township from 1976 to 1980. This table indicates that most of the new
. development is occurring in Windsor township.
i
Table.4 (on next page) specifically notes new residential buildings
by housing type within the Windsor Planning Area. Examining the Table
One would think a substantial amount of multi -family development is
occurring, however, the fifty (50) units of multi -family dwellings are
attributed to the Mid -East Housing Authority project recently annexed by
the town.
TABLE 3
NEW RESIDENTIAL TAX LISTINGS
BERTIE COUNTY TOWNSHIPS
0 1976 1977 1978 1979 1980 Total
MH
SF
MH
SF
MH
SF
MH
SF
MH
SF
MH
SF
Windsor
63
22
15
29
19
33
16
35
12
24
125
143
Colerain
26
15.
0
11
7
16
9
17
5
9
47
68
Mitchells
39
10
14
3
10
10•
3
5
11
7
77
35
Roxobel
4
6
0
3
1
9
2
5
3
0
10
23'
Woodville
15
3
0
4
7
4
3
9
8
7
33
27
Whites
15
11
5
4
4
5
3
3
5
1
32 -
24
Snakebite
10
5
0
10
6
14
4
5
1
7
21
41
Merry Hill
In
7
7
5
8
14
5
8
2
5
32
39
Indian Woods
7
1
0
5
2
4
2
1
0
0
11
11
•
NOTE: MH = .Mobile Home
SF = Single Family
Source: Bertie County Tax Supervisor's Office, 1980.
5

TABLE 4
BUILDING PERMITS ISSUED
WINDSOR PLANNING AREA
Type 1976 1977 1978 1979 1980
Single
Family 6 15 8 10 5
Multi -
Family 0 0 50 0 0
Mobile
Home 2' 3 2 2 8
Total 8 18 60 12 13
Source: Town Administrator, Town of Wigdsor, 1980.
The age composition of the current population is estimated to have
. changed since .970. In 1970, Windsor had 505 persons in the 5-19 age
group. It is estimated that this age group has decreased as shown on
Table 5. It is anticipated that this trend will continue during the next
decade. This table also suggests that the 45 and over age groups have
steadily increased as mentioned in the 1976 Plan. This trend is anticipated
to continue and should become a larger segment of the total population.
Windsor currently has no seasonal population.that plays a significant
role in the town. Although Windsor is an inland community it is situated
relatively close to the coast. Therefore, the local government should be
aware of increasing service demands, if any, that may be brought on by
tourist and travelers during vacationing periods. These demands may come
in the form of: (1) an increase in service related
i
M

i
activities and (2) increased demands made on selected local governmental]
services such as solid waste disposal. However, since U. S. Highway 17
• and 13 both bypass the town, little real potential for increase service
demand exist unless added commercial development occurs on the bypasses
to attract the pass through traffic. /
More recently, the preliminary 1980 census count indicated that
Windsor has a population of 2,156. Compared with the Department of
Administration's projection of 2,378,the town is faced with a nine percent
(98) population loss. Comparing this preliminary figure with the 1970
census count of 2,199 the town is still faced with a -2% population loss.
Final census.counts for towns are not available as of this writing, and
town officials feel that the final count will indicate figures more in
line with the Department of Administration projections.
In summary, Windsor's population has experienced no net growth.
Its present growth can be attributed to recent annexations. The estimated
population composition indicates a decrease in the 5-19 age grouping and
an increase in the 45 and over age group since 1970. Both age shifts may
result in new and different service demands -on municipal services in the
future.
TABLE 5
ESTIMATED POPULATION BY AGE GROUP
BERTIE.CDUNTY0 WINDSOR, NC
Bertie County
Windsor
Under 5
1,514
139
5-19
5,652
400
20-34
4,591
560
35-44
1,888
310
45-54
2,151
311
55-64
2,388
324
65-over
2,906
334
• Total
21,090
2,378
Source:
Mid -East Commission Computations, 1980.
7

The economic conditions within an area have a significant impact on
land use planning. The
character and extent of
economic growth and change
• ;
plays a critical role,
not only in terms of the
direct demands for
facilities by business
and industry, but also in determining the general
population make-up of the the area. Furthermore, the overall financial con-
dition of the area is a key determinant -in the ability of local governments
to finance the construction, maintenance, and expansion of vital public
facilities needed for future growth.
The employment status of an area also provides an important indicator
of the economic viability of an area. It can also point out those trends
and changes in the composition of the area economy which will have
significnt impacfs do the demand*for land.. -
Table 6 shows the major manufacturing firm in'Bertie County: 'Of.the
28 firms listed 15 or 54% are located in the Windsor Planning Area. This
• fact alone denotes Windsor's importance to the manufacturing economy of
the whole county.
Employment as Table 6 indicates in the Windsor area is dominated by
one firm, Lea Lumber and Plywood, a forestry related industry. This is no
surprise since forestry and agriculture are dominant land use activities for
Bertie County and since the town is the economic hub of the county. Analyzing
the table closely one can see that sixty-three percent (63%) of the firms
identified are involved in forestry related activities. Twelve percent (12%)
of the firms are related to agriculture and the remaining twenty-five percent
(25%) are diverse and related to activities ranging from chemical distribution
to sewing female dungarees. Table,6 also reveals most of.the manufacturing
firms in the Windsor area and Bertie County as a whole are low skill, low wage
type firms and provide little opportunity for increased personal income beyond
• those wages typical of those industries. This fact points to the need for both
the county and the town to increase their efforts to try to attract those
industrial firms that pay higher wages.
8

TABLE 1
MANUFACTURING FIRMS
•
1
BERTIE COUNTY,
1980 1
j
Product Employment
Firm
Location
Range
Blue Ridge Shoe Corp.
Aulander
Shoes 100-140
National Peanut Corp.
Aulander
Peanuts 34-140
Georgia Pacific Corp.
Colerain
Timber 10-19
Perry, Wynns Fish Co.
Colerain
Canned herring,
rock, other
fish 15-250
Kelford Coca Cola
•
Bottling Company
Kelford
Soft Drinks 10-19
H. E. Bunch Pattern
Works
Lewiston
Wood & Metal
Patterns, Non-
ferrous castings,
Models and mockups,
Special millwork
items 5-9
Harrington Manu. Co.
Lewiston
Farm'& Industrial
Machinery 150-499
Weyerhaeuser Company
Lewiston
Pine,Lumber• 130
'Perdue
Lewiston
Chicken Processing 1,050
Roxobel Garment Co.
Roxobel
Children & Women's
Apparel 85
*Williford Lumber Co.
Windsor
Whiskey Barrel
Staves 20-49
'Blue Bell, Inc.
Windsor
Female Dungarees 100-133
9

*Southeastern Timber Co.
Windsor
•
*Coulbourn Lumber Co.
Windsor
Dressed Pine
Lumber
133
*Gillam Bros. Peanut
/
Shellers
Windsor.
Peanuts
20-110
*Windsor Veneer Co.
Windsor
Rotary Hardwood
Veneer
46
*Lea Lumber & Plywood
Company
Windsor
Cut to Size
Plywood
301
*Metco
Windsor
American Buildings
Metal
10-19
*Windsor Wood Products,
Incorporated
Windsor
Furniture
Components
10-30
*Thompson & Company
Windsor
Cypress, Pine
Lumber & Chips
10-19
*Coulbourn Laminated
•
Products
Windsor
Laminated Board
Hard Board
40-50
*Red Bird Associates
(Cardinal Chemical)
Windsor
Chemical Dis-
tribution
5
Carter Metals
(Division of Metals,
Incorporated)
Kelford
Metal Fabrications 5-8
S & D Mfg. Company
Aulander
Sewing Plant
28
Eastern Carolina Lumber,
'
Incorporated
Windsor
Route 3
Lumber
32
Northeast Agri. Supply
Aulander
Fertilizer &
Chemicals
8
* Ross Logging Company
Windsor
Logging
8
*Workers owned Sewing
Company
Windsor
Sewing
25-30
•
NOTE: Single -figures denote
actual number
employed at time of
this writing.
*Denotes industries
located within
Windsor.p'lanning Jurisdiction.
10

II. DATA COLLECTION AND ANALYSIS
• A. Present Conditions
- - -- - - -- --- 2.-- Existing Land Use
According to the 1976 Plan forestry was the dominant land use in the
Windsor Planning Area. Following forestry were agriculture, residential
and barren (vacant) land uses. These land use patterns are still prevalent
today with slight changes.
The Town of Windsor's land uses are still dominated by residential
development as the 1976 Plan denotes. The majority of the development is
still single-family as Tables 3 and 4 indicate.
• Spruill Park Development which began in 1966 is still experiencing
residential growth. A precise description of locations is given in the
original CA4A Plan (p. 39.) This area is now bounded to the south by
Tennyson Lane and to the north by N. C. Highway 308 and U. S. Bypass 13.
Other areas experiencing residential growth,include the Hillcrest Development,
located east along U. S.Highway 17 North. The next growth area is Powell
Stokes Community located northeast of the intersection at U. S. Bypass 13
and N. C. Highway 308. The Thompson Development is another area and it is
located northeast of U. S. Bypass 13. The last of these growth areas is the
Windsor Oaks Community located south along U. S. Highway 17 North and
U. S.-Bypass 13 close to the Industrial Park Site. Map 1 in Appendix A shows
the location of these areas.
Commercial land uses have.not changed since the original CAMA Plan
• was written. Concentrations of commercial establishments are still
11

i
centered in the downtown area. Physical deterioration is still a problem
coupled with the competition of neighboring plazas and the shopping center
• described in the 1976 plan (p. 40.)
Industrial land uses have not changed and the four general locations
described in the 1976 Plan (p. 41) are still prevalent. Both State and
local government officials have indicated that industrial.development
should occur in the confines of the Industrial Park Site.
The land used as forestland inside the Windsor planning area is
slightly changing to residential development. In the 1976 Plan, eight
percent (88) of the land inside the Windsor planning area was forest -
land (p. 42). Current areas experiencing residential growth are located
in the northeast and southeast portions of the planning .area. By
examining the 1981 land use map it can be seen that areas of new
development are close to or adjacent to forest and.agriculture land
• classifications.
Since the 1976 Plan, these barren lands are being developed inside
of the planning area. Barren lands are defined as vacant land within
the town limits. (A look at the 1976 land use map will indicate areas
that were barren.) Comparing the 1981 land use map will indicate where
development is occurring in relation to previously barren lands.)
Agricultural land uses have remained stable. As the original CAMA
Plan indicates (p. 43), "essentially little agricultural activity'is
conducted within Windsor's town limits." The majority of the agricultural
land uses still occur in the one -mile area.
Currently, compatibility problems have resulted from mixed land
uses, particularly residential and industrial. The most significant
area of concern is located
just south of U. S.
Highway 17 north where the
•
Windsor Oaks Community and
the industrial park
are located. In
12

i
addition, the Hillcrest Development Community is within close proximity to
the area mentioned above located along U. S. Highway 17 North. This
• incompatibility can create problems concerning traffic congestion,
pollution, noise and linear -strip commercial development. These problems
will cause an increase in service demand and efficient service delivery.
The local officials of Windsor feel that the area most likely to
experience major land use change is the Industrial Park. Although no
current development is occurring, the proximity to major northeastern
routes and a 12-inch water line servicing the area add to the attraction
of industrial prospects.
These existing land use patterns are significant because decisions
regarding future development cannot be determined without an understanding
of previous development patterns. Bearing this in mind, we must consider
those areas that are environmentally fragile. These areas are called
• areas of environmental concern(AECs).
•
The only AEC found in the Windsor Planning Area are the public trust
waters. These waters, as the name implies, include all navigable waters
within the town's planning jurisdiction, therefore, including the Cashie
River. A full description of these waters can be found in the original
CAMA Plan (p. 87.)
Currently, there is no development taking place along this AEC.
A look at the 1981 land use map will indicate that this area mentioned is
rural with sparse populations situated along the river.and should
remain this way throughout the next decade.
13

3. Current Plans, Policies and Regulations
• Current plans, policies and regulations have a direct impact upon
land development. By examining these plans we are able to identify
previous problems and issues that affected policy formulation. Page
46 in the 1976 Windsor Land Use Plan outlines previous land use related
information. What follows is a listing of those plans, policies and
regulations that have been added since the 1976 plan:
(a) Plans and Policies
Addendum to the 1976 Windsor Land Development Plan (1977)
Prepared by the Mid -East Commission, the "Addendum" was a supplement
• to the 1976 CAMA Plan intended to help the town maintain its eligibility
to receive HUD planning assistance funds.
Addendum to Windsor 1976 Housing Element Plan (1977)
Prepared by the Mid -East Commission, the "Addendum" outlined the
town's current and 1980 housing needs and was intended to help the town
maintain its eligibility to receive HUD planning assistance funds.
Annexation Feasibility Study (1977)
Prepared by the Mid -East Commission, this study involved developing
a study to determine the feasibility of annexing an area west of Windsor
• along U. S. 17 and State Road 1514.
14

Annexation Feasibility Study (1980)
• Prepared by the Department of Natural Resources and Community
Development, this study involved developing a'study to determine the
feasibility of annexing an area south of the Windsor corporate limits
along both sides of U. S. 13 and 17 south.
Transportation Plans ..
To date, the Town of Windsor has no comprehensive transportation
plan. In the Highway Improvement Plan 1980 - 1985 the North Carolina
Department of Transportation recommended an internal road system be
improved in the Windsor Planning Area by 1985.
• Community Facilities Plan - The Town of Windsor currently has no
community facilities plan. However, Windsor has been designated as a
201 Wastewater Planning Area.
Utilities Extension Policies - These extension policies for the
Town of Windsor have not changed and are still regulated by use of
ordinance as described in the 1976 Plan (p. 47.)
Open Space Policies - As stated in the original CAMA Plan, Windsor
has no policy regarding open space.
Recreational Policies - The 1976 Plan indicated that Windsor's
recreational facilities were provided by Bertie County. This is still
• the case today with the County granting monies to local communities for
15

recreational assistance. According to procedure, Windsor must make their
request to the recreational advisory committee, the entity through which
• these grants are administered.
Prior Land Use Plans - Windsor's 1976 Coastal Area Management Plan
outlined goals, objectives and policies concerning land use.
Prior Land Use Policies - The 1976 LAMA Plan outlined general
policies for the Windsor Planning Area, they are described on pages 46
to 51 in the 1976 Plan.
(b) Local Regulations
Zoning Ordinance - This document was adopted June 13, 1977 to
• regulate structures and land use in Windsor and its extraterritorial
area.
Subdivision Regulation - These regulations are still in effect and
are fully described in the 1976 Plan (pp. 48-49.)
Floodway Ordinance - On June 13, 1977, a floodway ordinance was
adopted by the Town of Windsor. This document regulates standards for
the protection of public health, safety and welfare. The Town of
Windsor still participates in the Emergency Flood Insurance Program.
Building Codes - The Town of Windsor enforces North Carolina State
• Building Codes.
16

I
Septic Tank Regulations - Septic tank regulations are governed by,
Bertie County for the Town of Windsor. They are enforced according to
• state regulations, and the minimum standards established by the North !
Carolina Department of Human Resources.
j
(Proposed) Historic District Regulations
•
•
The Town of Windsor is currently establishing a historic district.
It is anticipated that the town will adopt regulations at such time
sufficient data is supplied.
Sedimentation Codes - These codes are enforced by the.State of
North Carolina for the Town of Windsor.
(c) State and Federal Regulations
Turning from local plans, policies and regulations we now look at
those state and federal regulations that affect land use in the Windsor
Planning Area. The following tables are a listing of those regulations:
17

•
•
TABLE 7
STATE DEVELOPMENT
Agency Licenses and Permits
Department of Natural Resources - Permits to discharge to surface waters
and Community Development or operate wastewater treatment plants
or oil discharge permits; NPDES Permits,
(G. S. 143-215)
Division of Environmental - Permits for septic tanks with a
Management capacity over 3,000 gallons/day
(G. S. 143-215.3).
Permits for withdrawal 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) .
Department of Natural Resources and - Permits to dredge and/or fill in
Community Development estuarine waters, tidelands, etc.
Office of Coastal Management (G. S. 113-229).
M
Permits to undertake development
in Areas of Environmental Concern
(G. S. 113A-118).
NOTE: Minor development permits
are issued by the local
government.

TABLE 7 CONTINUED
• Department of Natural Resources - Permits to alter or construct a
and Community Development dam (G. S. 143-215.66).
Division of Earth Resources
Permits to mine (G. S. 74-51).
Department of Natural Resources
and Community Development
Secretary of NRCD
• Department of Administration
Department of Human Resources
•
- Permits to drill an explanatory
oil or gas well (G. S. 113-381).
- Permits to conduct geographical
exploration (G. S. 113-391).
- Sedimentation erosion control
Plans for any land disturbing
activity of over one continguous
acre (G. S. 113A-54).
Permits to construct an oil
refinery
Easements to fill where lands are
proposed to be raised above the
normal high water mark of navigable
waters by filling (G. S. 146.6)
(c)
- 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).
- Permits for septic tank systems of
3000 gallons/day or less capacity
(G. S. 130-160).
19

•
TABLE 8
FEDERAL DEVELOPMENT REGULATIONS
Agency Licenses and Permits
Army Corps of Engineers
(Department of Defense)
• Coast Guard
(Department of Transportation)
.Geological Survey
Bureau of Land Management
(Department of Interior)
Nuclear Regulatory Commission
Permits required under Section 9
and 10 of the Rivers and Harbors
of 1899; permits to construct in
navigable waters.
- Permits required under Section 103
of the Marine Protection, Research
and Sanctuaries Act of 1972.
- Permits required under Section 404
of the Federal Water Pollution
Control Act of 1972; permits to
undertake dredging and/or filling
activities.
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.
- Permits required for off -shore
drilling.
- Approvals of OCS pipeline corridor
rights -of -way.
- ,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.
20

•
•
TABLE 8 CONTINUED
Federal Energy Regulatory Commission
Permits for construction, operation
and maintenance of interstate pipe-
lines 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 abandon-
ment of natural gas Pipeline and
associated facilities under
Section 7C (b) of the Natural
Gas Act of 1938.
21

Ll
II. DATA COLLECTION AND ANALYSIS
B. Constraints — Land Suitability
As stated in the introduction of this update, the 1976 CAM Plan
would be utilized as a reference and data source when conditions have
not changed and when no new information is available or necessary.
The following is a summation of the Land Development Constraints found
in the Windsor Planning Area.
(1) Physical Limitations - There are few man-made hazards in the
Windsor Planning Area. Currently the only man-made hazard
found in the Town are the storage areas for oil and
• petroleum. While most of these areas are well buffered for
public safety, two sites are significantly close to
development. They are located in the Bertie community at
King and Forest Streets intersection and, at Davenport's Oil
Company off U. S. 17 and 13. Only one type of natural
hazard exist in the Windsor Planning Area. This is the
flood hazard area located in the Cashie Flood Plain. The
area is also suitable for use as a septic tank filter field.
Because of Windsor's elevation and close proximity to the
Cashie River the Town is subject to frequent flooding.
Concentrations of poor soils exists in the planning area.
The soils either do not perk due to a high water table or the
soils perk too fast, not allowing the removal of toxic
• wastes. Therefore, these wastes are transmitted to adjacent
bodies of water causing a degradation of the surface and
22

ground water quality. Water supply for Windsor is derived
ground water supplies, thus creating a water quality
problem, if the problem does not presently exist. Along
with the implications of an increased population, this
problem, if magnified, should be considered potentially
serious.
Since the 1976 Plan, a complete soils survey has been prepared
for the Windsor Planning Area. This survey indicates what kinds of soils
are in the area where they are located, and -how they can be used. The
completion of this study has helped identify areas where potential develop-
mental hazards may occur. The soils survey identified no areas of
excessive slope in the Windsor Planning Area. For more information, see
the complete Soil Survey.
• (2) Fragile Areas - Such areas in the Town of Windsor include
public trust waters found along the Cashie River. There
0
are no known archeologic sites located in the Windsor
Planning.Area. In terms of historic sites the town
contains 23. See Appendix B for a listing of some of the
new historical and architectural sites in Windsor. The town
is also in the process .of establishing a historic district
to preserve architectural and historic structures of
significance.
(3) Area of Resource Potential - Area of this type include the
area's productive agricultural lands. These lands, most of
which are within the one -mile limits, are located in the
23

•
northwestern and southwestern portions of the planning area. i
To date, Windsor has no known potentially valuable mineral
sites or any publicly -owned forest, parks, or fish and game
lands in the Planning Area.
II. DATA COLLECTION AND ANALYSIS
C. Capacity of Community Facilities
I. Identification, design capacity and utilization of existing
water and sewer services
Water and Sewer
• Water and sewer lines are very important for urban density develop-
ment. Urban density development be it residential, commercial or
industrial depends upon water and sewer services. Communities can control
when and where development with urban densities takes place by providing
or denying water and sewer services. The CAMA Land Use Planning process
reinforces this concept by requiring a land classification system which
shows the local governments intentions and commitment to development.
What follows is an analysis of the Town of Windsor's water and sewer
system.
The Town of Windsor operates and maintains a municipal water
system supplied by three deep wells which have a combined pumping
capability of 1,000 gpm. The water is chlorinated. Storage is provided
• by a 0.100 mg ground tank and a 300 mg elevated tank for a
24

combined storage capacity of 0.400 mg. The town also serves the South
Windsor Water Association which extends south of Windsor on U. S. Highway
• 17/13 approximately two (2) miles. The water association purchases all
its water from the Town of Windsor. Maximum daily demand is calculated
-- -- at 1,440,000 gpd and average daily demand is 300,000 gpd. Replacement
of old mains is needed. Table 9 shows the monthly annual average water
demand from 1976 to 1980. This table indicates that the water demands
based on monthly averages for the year steadily increased since 1976.
TABLE 9
MONTHLY ANNUAL AVERAGE WATER DEMAND
WINDSOR
Year 1976 1977 1978 1979 1980
Amount of Demand 5,716,000 5,714,000 6,011,000 6,061,000 6,151,000
•
Source: Town Administrator's Office, Town of Windsor, 1980.
The Town of Windsor operates and maintains wastewater collection and
and treatment facilities. The current plant has a capacity of 1.15 MGD.
Current use is estimated at .212 MGD. Surplus capacity is .900 MGD, thus
additional connections could be made. Table 10 shows the new sewer hook-
ups by housing type since 1976.
0
25

This table indicates that fifty-four new connections have been made
since 1976. This suggest that the current wastewater facility has the
• capacity to meet the limits required by the State in regards to
additional connections to the existing facility.
._ TABLE 10
NEW RESIDENTIAL SEWER HOOKUPS
WINDSOR PLANNING AREA
Type
1976
1977
1978
1979
1980
Single
Family
6
15
7
10
5
Multi -
Family
0
0
1
0
0
Mobile
• Home
2
3
2
1
2
Total
8
18
10
11
7
Source: Town Administrator's Office, Town of Windsor, 1980.
2. Identification, design capacity and utilization of existing
schools `
Education
Windsor school age residents still seek an education through the
Bertie County Public School System. There are two elementary schools
located in Windsor,W. S. Etheridge and Windsor Elementary serving
• students enrolled in grades K-3, and 4-7 respectively. However, the
26

TABLE 11
BERTIE COUNTY, NORTH CAROLINA
Public School
Facilities
'
1979-80 School Year
Pupil/
Teacher
School
Capacity Enrollment
Allotment
Ratio.
Askewville Elementary
200
160
10
16.0 .
Au�ander Elementary
350
291
14
Bertie Junior High
800-1,000
940
56
16.4 .
Bertie Senior High
900-1,100
1,173
75
15.4
J
C. G. White
Elementary
575-625
258
14
18.6
Colerain Elementary
500
168
10
16.8
John P. Law
Elementary
225
157
10
15.7 .
West Bertie
Elementary
641
581
27
21.1
West Colerain
Elementary
200
296
13
22.1•
W. S. Etheridge
Elementary
780
440
23
19.0 ,
Windsor Elementary
660
446
26
17..0
Source:
Bertie County School Superintendent, 1979.
V
Grade
Years Erected
Taught
Plus Additions
K-7
1964
K-7
1964,
1975
8-9
1962,
1968
10-12
19629
68, 70, 72
K-7
1951,
70
5-7
1922,
39, 49
K-7
1961
K-7
1961,
1975
K-4
1932,
61
K-3
1925,
46, 52
4-7
1926,
41, 47

BERTIE COUNTY
PLAN
FOR REORGANIZATION
Attendance
Schools Serving
79-80
Projected
Resulting
1985
Area
Area by Grades
Membership
Plans for Use
Organization
Membership
Askewville
Askewville K-7
160
Addition
K-8
185
Aulander
Aulander K-7
291
Addition
K-8
340
Powellsville
C. G. White K-7
257
No Change
K-8
247
Colerain
West Colerain K-4
294
Abandon (1 new building) K-8
550
Colerain 5-7.
166
Abandon
-West Bertie
West Bertie K-7
574
Addition
K-8
712
Windsor
W. S. Etheridge
436
Abandon
Not in Use
0
Windsor 5-7
446
Abandon
Not in Use
0
Merry Hill
J. P. Law K-7
156
Addition
K-8
175
Bertie Jr..
Bertie Jr. 8-9
934
Convert to K-8
K-8
944
Windsor District
Bertie Sr.
Bertie Sr. 10-12
1,171
Convert to 9-12
9-12
1,208
Senior High Additions
TOTAL
4,885
4,361.
Source: Bertie County School Superintendent, 1979. .

Board of Education has prepared a proposal for reorganizing the schools
and the proposed plan calls for abandoning both schools.
• Table 11 list each attendance area, schools presently serving that
area, present membership, projected membership and organization by 1985.
Table 12 lists the present facilities capacity, enrollment, pupil
teacher ratio, grade taught and years erected plus addition.
A bond issue on the reorganization of the school system was voted
on and passed in May of 1980. According to the Superintendent of the
Bertie County School System, this proposed reorganization schedule, as
pertaining to the two Windsor elementary schools, will go into effect
in the fall of 1983. Students attending these two school facilities
will be transferred to what is presently Bertie Jr. High still
located in Windsor a..d serving students in grades K-8.
• W. S. Etheridge and Windsor Elementary will be abandoned because
the facilities are obsolete and the structural condition is poor. A
Is
look at Table 12 will indicate that W.-S. Etheridge was constructed
in 1925 with additions erected in 1946 and 1952. The Windsor
Elementary Schol was constructed in 1926 with additions in 1941 and
1947. The Board of Education states in their proposal for
reorganization the following "The declining enrollment throughout the
County indicates an urgent need to reorganize all schools in order
to maintain the philosophy and concept of community schools to serve
local students." Other factors considered by the board included the
steady decrease in student enrollment and the high cost of construction.
It is felt by the passing of the bond issue that the proposed plan is
in the best interest of all county residents.
29

3. Identification, design capacity and utilization of primary
road
i
The Windsor Planning Area is served by seven primary roads:
-- -- U. S. 13 Bypass, U. S. 13 Business, U. S. 17 Bypass, and N. C. 308.
Indian Woods Road, Sterlingworth Street and Granville Street also
generate moderate traffic. The pavement widths for these roads has
not changed as described in the 1976 plan (p. 91.)
Table 13 gives the design capacity, traffic count and utilization
percentage of the streets mentioned above. In order to determine
utilization, the peak -hour traffic count design is compared to the
highest 24-hour traffic count for that segment of the road inside
of the town.
- There are no plans to increase capacity of these roads, nor are
• there plans to serve the Windsor Planning Area with -any new roads.
11
The removal and replacement of some curb and gutter from Granville
Street to E1mo.Street has been recommended by the,Department of
Transportation in their 1980 - 1985 Highway Improvement Plan. Windsor
currently has no plans for developing a public transportation system or
bike paths in town during the planning period.
30

•
TABLE 13
PRIMARY ROADS
-TOWN OF WINDSOR -
1980
Vehicles
Percent
Road
Design Capacity
Per Day
Utilization
U. S. 13 Bypass
30,OOO VPD1•
4,300
14.3
U. S. 13 Business
15,000 VPD2
4,400
29.3
U. S. 17 Bypass
30,000 VPD
4,700
15.6
N. C. 308
12,000 VPD
2,400
20
•
Indian Woods
Road -
15,000 VPD
1,440
9.6
Sterlingworth
Street
18,000 VPD
3,200
17.7
•
Granville Street
18,000 VPD
4,100
22.7
1Vehicles per'day
2Roads with traffic signals
Source: Department of Transportation, Traffic Survey, 1979.
31

4. Identification, and utilization of existing solid waste disposal,
olice_protection and fire protection
Solid waste, police and fire services are very important in any
community. Communities depend on these services daily, thus, they have
become an integral part of our society. However, these services must be
carried out in such a manner that the public health, safety and welfare of
the community is protected. The CAMA Land Use Planning process re -
enforces this concept by requiring local governments to identify and
analyze such services and their commitment to assuring citizens adequate
services. What follows is an analysis of the Town of Windsor's solid
waste, police_and fire services.
The Town of Windsor has a Sanitation Department that provides garbage
collection and trash disposal within the town limits. Industrial and "
• commercial collection activities receive t•ice-a-week service, while
residential collection activities occur at the curb. Residents must
request the trash collection service and these requests are taken every
Wednesday. Dumpster collection for area commercial establishments also
take place on Wednesday.
The Town request local citizens to use thirty (30) gallon garbage
cans with tightly fitting lids. This policy is generally viewed as a
good, one since such containers prevent rodents and flies from nesting
in the waste. From the residential, commercial and industrial areas the
garbage is taken to the County landfill located ten (10) miles northwest
of the town. Presently, the Sanitation Department employs three (3)
people.
32

Police services are rendered by the Windsor Police Department located
in the town's municipal building. The detention facility is located in
the county building on the county farm. The police force is made up of
six (6) full-time personnel; including the Chief and one (1) part-time
employee. The department provides around the clock protection to the
town's residents and adjacent property owners. This service provided
to adjacent property owners includes those properties within the town's
one -mile extraterritorial area. The extraterritorial protection does not
include regular patrols although calls are responded to. The town presently
has two (2) patrol cars.
Radio dispatching services are handled by Bertie Communications.
A radio dispatcher is on duty at all times. The town pays the salary
for one (1) dispatch¢:. Radio contact is available with the Bertie
County Sheriff's Department and the North Carolina Highway Patrol. In
• addition cooperative and coordinated activities are also maintained
with the North Carolina Special Bureau of Investigation (SBI) and the
Alcohol Control Board.
Law enforcement officers for the town have a variety of duties.
These duties include record keeping, traffic supervision, investigations
and all other phases of police functions. These are the only municipal
duties that the officers are responsible for.
Police officers work eight (8) hour shifts, totalling forty (40)
hours per week. The department operates on a seven (7) day week for
its employees, each shift being manned by two (2) officers and one (1)
dispatcher. The Chief is on call at all times.
Fire protection services are handled by the Windsor Fire Department
• located at 128 South King Street in the municipal building. The
33

department is manned by thirty-eight (38) regular volunteers. Three (
of these men are town employees.
•The principal service area is bounded by the Town of Windsor
I
Corporate Limits, however, the Windsor Fire Department provides fire
i
protection services ten (10) miles (sometimes further) into the Windsor
Township area. Outside the corporate limits there are three (3) fire
hydrants (in the industrial park) while inside the town there are one -
hundred and twenty-eight (128) fire hydrants.
In addition to the department's manpower capabilities, there
are formal mutual aid agreements with Askewville, Mid -Way, Lewiston,
Aulander and Powellsville. These agreements substantially.increase the
town's fire fighting ability. Equally important with fire fighting
capability is the prevention measures which are prevalent. For example,
all public facilities are inspected on a semi-annual basis or more,
• depending upon the requirements of the State Insurance Office.
•
Augmenting the inspection of public facilities, the town also imposes
electrical code and building code enforcement to assure that proper
development occur's within the town. Presently the town operates two (2)
fire trucks (pumpers) one (1) 18,000 gallon tanker truck and one (1)
patrol car (fire chief's car.)
34

II. DATA COLLECTION AND ANALYSIS
• D. ESTIMATED DEMAND
1. Population and Economy
As can,be seen from Table 1 in the present population and economy
section of this document, the Town of Windsor has experienced steady but
limited growth since 1976. Although preliminary U. S. 1980 census figures.
indicate a decrease in the town's population,
local officials feel the
Department of Administration projections are
more in line with the
Windsor population trends.
According to the latest Department of Administration estimates,
Windsor had a population of 2,378 as of July
1, 1980.
•Table
14 gives the projected.1980-1990
population for the Town
of Windsor.
TABLE 14
POPULATION PROJECTIONS
TOWN OF WINDSOR
1980
2,378
1981
2,407
1982
2,452
1983
2,470
1984
2,470
1985
2,497
1986
2,509
1987
2,520
1988
2,543
1989
2,543
1990
2,543
•
Source: Mid -East Commission, 1980
35

•
As Table 14 indicates the town's population is expected to increase
by 165 persons from 1980-1990. The Windsor Planning Board and Town
Council feel that this 165 persons change is a reasonable projection and
feels that the Town will attain this amount of growth.
Table 15 examines the County -Town population changes that are
expected to occur during the next decade. From the projections it can
be seen that the Town will continue to steadily increase in population
as the county experiences steady growth patterns.
TABLE 15
BERTIE COUNTY AND WINDSOR
POPULATION PROJECTIONS
1960 - 1990
1980 1981 1982 1983 1984 1985
1986 1987 1988 1989 1990
Bertie
einty 21,100 21,300 21,500 21,700 21,900 22.100 22,200 22,300 22,400 22,500 25,500
Windsor 2,378 2,407 2,452 2,470 2,475 2,497 2,509 2,520 2,543 2,543 2,543
•
Source: N. C. Office of State Budget and Management, Mid -East
Commission, 1980.
From 1980 to 1990 the Town is expected to have a decrease in the
number of school age children as mentioned in Section 2. Also expected is
an increase in the 45 and over population age group. Thus, the population
patterns could imply less attendance in schools, less needs for active types
of recreation and an increase in services to the aged.
36

The Town of Windsor's economy will still center around forestry
• and agricultural activities through the next decade. Farming and
I
lumber production will continue to be important as will the small
non -farming industries that decide to locate in Windsor.
2. Future Land Needs
The Coastal Area Management Update directs that an estimate of
the need for residential structures and related services be made.
Residential land within the town limits comprise about 253 acres or
29% of the total land within the town limits. Ninety (90) acres of
this land is currently vacant. However, all of this vacant land is
not well suited for development due to physical limitations. Other
afactors limiting development include inadequate lot size configurations
and some conflicting land uses. At the present, there are about
27 acres of available vacant residential land with viable development
potential. However, there are also some non -conforming uses in the
residential districts. The Windsor Zoning Ordinance states that "if
the action operation of a non -conforming use is discontinued for a
continuous period of six (6) months, such non -conforming use shall
thereafter be occupied and used only for conforming use". 1 Thus,
additional residential land may be presently available in the form of
existing non -conforming uses.
The average lot size for residential use in Windsor is approximately
10,500 (a little less than a quarter acre.) Presently, Windsor can
support an additional 261 new houses, if all of the existing vacant land
• is used to its fullest potential. since the average household size is
estimated to be 2.07 persons per house2, the town is capable of
37

supporting almost 540 people within the existing residential zoning
district.
• Therefore, the town does not need additional land zoned to
accommodate any estimated population increase. Since public services,
i. e., water and sewer presently serve the planning area, efforts should
be made to direct new development within the corporate limits to
reduce cost in providing these and other services.
Turning from future residential land demand, we now look at the
future commercial land capacity for the Town of Windsor. The Windsor
Zoning Ordinance directs commercial land uses to the business district.
Commercial services, office and institutional business and other
similar uses are located within this district.
Windsor currently has about 67 acres of land zoned for the above
stated purposes. Approximately twenty (20) acres are zoned for
• governmental uses, and forty-seven (47) acres are zoned for commercial
uses. Of the total zoned for these purposes about twelve (12) acres
(18% of all is zoned) are presently vacant.
It is estimated that there are about twenty (20) acres (over
871,000 square feet) of usable commercial land in Windsor. By comparing
this figure, a better perspective can be viewed. A commercial use
occupying a building with a dimension of 65 feet (approximately the size
of Giant's Discount Store) would occupy 4,225 square feet of floor
space. Thus, Windsor presently has the capability of supporting the
equivalent of over 200 such commercial uses with the same floor space
requirements within the present commercial districts, throughout the
next decade.
• Finally, we come to the industrial land uses and the town's ability
to accommodate any future industrial expansion.
m

The Windsor Planning Area.presently has about 84 acres of land zoned
for industrial purposes.. This is approximately 9.2% of all land in the
• Planning Area. In the town limits forty (40) acres are presently zone
for industrial purposes. This represents about 4.3% of all land in
town. About ten (1) acres (25% of all industrial zoned land in town)
are presently vacant. Similarly, considerable small amounts of land
presently zoned for industrial purposes are being used for less intensive
(non -industrial) uses. Approximately 13% of all industrially zoned land
(5 acres) is in less intensive lend uses. This means that there are
presently about 15 acres (or over 6.5 thousand square feet) of
potentially developable industrial land in the town limits. To put this
figure in perspective, an industry the size of Southeastern Timber
Company occupies abort four (4) acres or 174,000 square feet of land.
This figure include,- parking facilities also. Therefore, Windsor has
• .the land capability of supporting the equivalent of four (4) industries
the size of the Southeastern Timber Company within the land presently
zoned industrial. This means the town presently has enough vacant,
developable, industrially zoned land to accommodate future industrial
growth. Since different commercial and industrial uses vary in their water
and sewer demands it is difficult to project these needs, however, Windsor's
water and sewer system should be adequate.
3. Community Facilities Demand
The Town of Windsor will be able absorb the projected population
and more without need for extensive additions to existing facilities.
The proposed reorganization of the Windsor schools will be able to handle
• the additional population increase without an increase in facilities.
in terms of existing water supply, Windsor has an abundant supply
39

i
of round water, and water s 4 . apply should not provide any constraints
to future growth. In addition the Department of Natural Resources and
• Community Development water quality personnel states that Windsor's
i
present wastewater system is capable of any additional expansion
anticipated by an increased population.
The present road system is capable of accommodating the anticipated
population increase. In terms of solid waste collection Windsor may
have to employ additional personnel to handle the estimated population
increase. However, in speaking with the local officials it is felt
that the present landfill site will be able to handle the waste from
increased population. The present police and fire departments will
be capable of serving the town with adequate protection due to the
anticipated population increase.
•
"Windsor Zoning Ordinance page, 10
• ZThis figure was extrapolated by using 1970-1979 U. S. and
N. C. average house size estimates.
I

E. Summary of Data Collection and Analysis
• Data for the land development plan was assembled by a variety of
means. The following narrative denotes where information was obtained.
--- - - The present population and economy data was obtained by examining
present trends in Windsor's population and economy since 1976. Discussions
were held with Department of Administration personnel concerning the
population estimates and conversation were held with DNRCD personnel
and Bertie County Economic Development personnel for the present-day
economic picture in the County.
Existing Land Use. Information was obtained by conversations with Town
personnel, field surveys .and also some on -site investigation.
Current Plans, Policies and Regulations. Information was obtained
from various sources such as North Carolina Department of Transportation,
Department of Natural Resources and Community Development personnel,
and the Town Administrator.
Constraints, Land Suitability. This information was obtained from the
1976 Land Development Plan, on site investigation and new soils information.
Constraints - Capacity of Community Facilities. This information was
acquired from the Division of Human Resources personnel, Department of
Natural Resources and Community Development Water Quality personnel,
North Carolina Department of Public Instruction personnel, the Bertie
County School Superintendent, North Carolina Department of
Transportation personnel, and the Governor's Crime Control Commission.
41

Estimated Demand Population and Economy - Population projections were
obtained from the Department of Administration, Kid -East Commission,
• and also from consultation with the Windsor Planning Board and Town
i
Council. Economic information was obtained from the Bertie County
Economic Development Commission.
Future Land Needs - This information was developed by examining past
land development trends, and population projections. It also was
developed by conversation with town personnel, the Bertie.County
Eponomic Development director, and Department of Natural Resources and
Community Development personnel.
Community Facilities Demand - This information was obtained by examining
the present facilities i. e., water supply wastewater facilities, schools
and roads as compared to the projection increases by 1990.
•
F. Major Conclusion From Data Summary
Listed below are the major conclusions found in the data collection
and analysis sections of the plan.
Existing Population and Economic
(1) The Town of Windsor has experienced slow but steady
population changes since 1976.
(2) Annexations have accounted for the bulk of Windsor's population
growthsince 1976. In fact, without annexing the town would
have experienced a net loss of 132 people during the last
• five (5).years.
42

(3) Current population trends reflect a decrease in school age
population indicating a continued decrease in the school
age population until 1990.
(4) Current population trends also indicate an increase in the
45 and above age group which could imply a need for more
services for the aged.
(5) Windsor's economy continues to be agricultural oriented.
(6) Forestry and forestry related activity continue to play a
major role in Windsor's economy. Sixty-three percent
(63%) of the thirteen (13) manufacturing firms currently
in the planning area produce forestry related products.
(See Table 6, pages 9-10.)
• Existing Land Use
(1) There has been very little change in overall land use patterns
since 1976.
(2) Residential growth accounted for most of the changes that
have occurred since 1976. This fact illustrates Windsor's
slow but steady residential development.
(3) Windsor has no significant land use compatibility problems,
except mixed residential and industrial uses on U. S. 17
south.
(4) The area likely to experience major land use change by 1990
is the Inudstrial Park Site.
(5) The Windsor Planning Area has.one (1) area of environmental
• concern and that is public trust waters; Cashie River.
43

Current Plans, Policies and Regulations
Windsor has quite a few plans or policies that affect land develop-
ment. See pages 46 to 49 in the 1976 Windsor Land Development Plan.
Constraints - Land Suitability
(1) Windsor has very few man-made constraints, but some physical
constraints; (poor soils and flood prone areas) (refer to
page 77 in the 1976 Windsor Land Development Plan.)
(2) Windsor has two (2) type of fragile areas, public trust waters
AEC.and flood hazard areas (refer to page 87'in lie_1976.-
Windsor Land Development Plan.)'
(3) The Windsor area has one (1) type of area with resource
. potential the productive agricultural lands found in the
extraterritorial jurisdiction (refer to page 88 in 1976 LDP.)
Constraints - Capacity of Community Facilities
(1) Ground water supply in Windsor does .not present a constraint
for development.
(2) The wastewater facilities in Windsor are capable of additional
extensions anticipated by increased population.
(3) The school system will not be a constraint for development.
•(4) Windsor's present road system is not being used to full design
capacity, thus, it will not be a constraint for development.
(5) The solid waste disposal system, police and fire facilities
• should be adequate to accommodate Windsor's 1990 population.
44

Estimated Demand - Population and Economy _
• (1) Windsor is expected to have a population increase of 165
I
persons by 1990.
(2) In order to continue population increases, Windsor will have
to continue its past annexation practices.
(3) Windsor's economy will continue to be agricultural oriented.
(4) There will be a small amount of industrial development by
1990.
Future Land Needs
(1) Windsor will not have a land suitability problem by
1990 for development, however, there is potential for farm,
and forest lands in the extraterritorial area to be
• converted from -non-agricultural and forest related uses.
(2) Windsor's future high density land development will be
inside the corporate limits.
Future Facilities Demand
(1) Windsor has an ample supply of water for the expected 1990
population.
(2) Windsor, currently does not have a '2011.£acilities plan
but will be drafting such a document by 1985.
(3) Windsor's school system and road network will still be
adequate by 1990.
•
45

•
III. POLICY STATEMENTS
46

III. POLICY STATEMENTS
The establishment of policies is an integral part of any developmental
plan. The formulation of goals, objectives, policy statements and
implementation procedures should reflect sound planning principles and
most importantly, express the values of the town's residents. Thus, the
declaration of a community's values helps establish a framework of
policies that will guide local leaders as they make decisions affecting
community growth.
The 1979 CAMA Land Use Planning Guidelines direct as minimal
requirement that four broad policy issues be identified.' These issues
are resource protection, resource production, and management and economic
and community development and public participation. It should also be
noted that local governments have the option to address any other issues -
that they feel are of local importance.
Unlike the present guidelines, the 1976 CAMA Guidelines gave
communities the opportunity to identify and discuss issues that were
of community concern; many of these issues were land use related, but
some were not. Thus, the citizens of Windsor identified five (5) broad
issues. In identifying the issues, goals for achieving the desired ends
were also derived. In general, these were:
(1) To promote the preservation and management of natural features
of the environment in order to safeguard adverse effects on
safety, health, and welfare.
(2) To provide an environment in which every resident of the
• Planning Area may have the opportunity to secure adequate,
decent, safe and sanitary housing.
47

(3) To promote and develop various recreational, educational
and cultural programs for all ages and income socio-economic
• groups.
(4) To provide a functional and attractive street system in the
Windsor Planning Area.
(5) To provide the most cost effective and efficient means of
administering governmental services.
Under each of the preceding goals, objectives were outlined to
accomplish that goal. (See pages 50 through 61 in the 1976 CAMA Plan
for a listing of goals and objectives.) Thus, these goals and
objectives were used as a base to update the policy section of this
plan.
What follows are the issues that were defined, possible policy
• alternatives, the communities chosen policies and a description on
how the adopted policies should be implemented.
•
A. ISSUE - RESOURCE PROTECTION
Certain natural resources within'the coastal area contain unique
features that give them particular environmental value. The Coastal
Resources Commission has designated these unique features as areas of
environmental concern. The only Area of Environmental Concern within
the town is the Public Trust Waters. These waters are defined as all
navigable waters within the town and its planning area. •A full description
of these waters can be found in the original CAMA Plan (p. 87.) Local
m

officials feel that recreational uses are appropriate for this AEC.
Officials stress activities such as fishing, boating and wading for
• this area. Activities the town will prohibit in these waters include
use as a drinking water supply and for culinary or food -processing
purposes.
Turning from Windsor's only AEC an examination of the town's
other resources must be made including a description of their constraints.
The constraints and land suitability section of this plan indicated
that Windsor had two types of physical constraints to development. The
first constraint is a man-made hazard involving the town's storage areas
for oil and petroleum. Development surrounding these storage areas
is directed by the Windsor Zoning Ordinance. The use of this ordinance
to direct future dev lopment close to these areas will assure compatable
land uses. The second constraint is a natural hazard in the form of a
• flood hazard area. This area is located within the Cashie Flood Plain.
Development is directed by use of the town's floodway ordinance. Windsor
is also under the Emergency Flood Insurance Program.
Windsor's elevation and frequent flooding have caused a problem
for some soil associations within the planning area. Therefore, the soils
in the planning area can also present a constraint to development. Refer
to the constraints and land suitability section (p. 22 and 23)-for a full
description of the problem concerning the soils. Local officials have
indicated that they will use the completed soils survey report to
help local residents make better land use decisions.
Other natural resources found within the Windsor Planning Area
include the agricultural and forest lands. These lands are dominate in
• land use and also have a significant impact on the town's economic base,
tlu

• I
as the economy and population section of this plan denotes. Therefore,
the proper management and protection of these resources is important
• concerning the economic well-being and social stability of the Town
i
of Windsor.
Windsor contains approximately twenty-three (23) historic structures
of significance. These historically significant structures have helped
the town realize the need for establishing a district for the protection
of the town's only historic resources. The establishment of such a
district indicates concern regarding the town's past history.
Presently, the County prepares hurricane and flood evacuation
plans for all municipalities within the County. Therefore, Windsor
officials do not have to prepare such documents for the town. The
needs for such plans are obvious and continued participation with
the County in such plans will assure adequate protection for the
• town.
Policy Alternatives
(1) The Town could choose not to protect its natural resources.
This alternative should be unacceptable because of the important
role natural resources play in the overall economy of the
Town.
(2) The Town could plan facilities so that they will not impact
historically sigificant properties. As mentioned earlier, the
town is establishing a historic district which will contain the
majority of the town's historic sites. Preserving and
• protecting this area could bring tourist dollars into the
town.
50.

(3) The Town could allow no development in AEC. it is not clear
under this alternative whether the Town has the statutory
• authority to allow no development at all in AEC.
(4) The Town could allow limited development in its designation
AEC such as: piers and wharfs. This alternative is consistent
with the CAMA Guidelines and is considered to be more
feasible than the preceding alternative.
(5) The Town could support all federal and state programs aimed
at protecting fragile environmental areas.
(6) The Town could or could not develop its own hurricane and
flood evacuation plans or continue to be a part of the
County's plan.
Policy Choices
•
(1) The Town will discourage development that is found to be
non -compatible to the local soil characteristics.
is
(2) The Town will not support development that negatively
affects -hazardous or fragile land areas such as AEC and .
historic properties.
(3) The Town will allow limited development in its designated
AEC's consistent with 15 NCAC 7H, 7J, 7K, and 7M.
(4) - The Town will continue to be included in the County's
Hurricane and Flood Evacuation Plan.
51

Description of the Proposed Implementation Procedures
• (1) The town council and town administrator will make the recently
completed Soil Survey an important part to the town
I
development process by 1982.
(2) The Town will not provide services to projects that could
have a negative impact on fragile or hazardous environmental
areas. These services include water and sewer services,
solid waste disposal, and recreational facilities.
(3) The town administrator (permit letting officer) will continue
to enforce the CAMA minor permit letting system in
designated AEC's.
B. ISSUE - RESOURCE PRODUCTION AND MANAGEMENT
•
As mentioned earlier, natural resources in and within close proximity
to the town include the productive agricultural and forest lands. Windsor
also has one designated AEC. All of these resources impact on the local
community in some way, thus, they should be properly managed to assure
continued benefit to the town. What follows here is a discussion of
these resources and their impact on the Town of Windsor. .
Productive agricultural lands encompass approximately 1,858 acres
and are located throughout the town's one -mile area. All agricultural
lands are currently devoted to crop production or have crop production
as their primary function. Presently, twelve percent (12$) of the local
firms are involved in agricultural activities.
•
Forest production
also has
a positive
impact on
the local
economy.
These land uses are also
located
throughout
the town's
one -mile
area.
52

Presently, sixty-three percent (63%) of Bertie County's manufacturing
firms are located in Windsor and are related to forestry activities.
When we combine forestry with agriculture the economic impact is very
significant. Together they comprise seventy-five percent (75%) of
the local firms involved in forestry and agriculture. However, the.
adverse affects of the operations of both activities should be weighed.
Operations such as draining and ditching should.be watched because
of the possible effects it could have on another industry or resource,
namely fishing. However, Windsor has no vast amount of commercial
or recreational fishing. Thus, improved agricultural and forest
programs and proper management could increase the yielding production
of these resources.
As aforementior,�d, Windsor has no commercial fisheries. The
Town does have an AEC, Public Trust Waters. Public trust areas are all
• waters in the coastal zone in which the public has acquired rights by
prescription, custom, usage, dedication or any other means. In
Windsor's case these waters are used for recreational fishing and other
uses as prescribed by the CAMA Guidelines. Proper management should
continue to be given to this area because of the aesthetic value and
potential for economic development.
Off -road vehicles have not caused any problems in Windsor, there-
fore tha Town has no policy regarding this issue.
Policy Alternatives
(1) The Town could not be involved in any resource production or
management activities. This alternative should be unacceptable
• because of the economic impact those resources have on the
Town.
53

(2) The Town could support all federal and state programs dealing
with the management of commercial and recreational fisheries.
• i There is no commercial fishing occurring within the town,
however, there is a need to protect the little recreational
fishing that currently exist.
(3) The Town could support all federal and state programs that
deal with the management of commercial forest. Of the
fifteen (15) firms located in Windsor, sixty-three percent
(63%) of the firms have activities that involve forest
related projects. This denotes the importance of forestry
to the Town.
(4) The Town could support all federal and state and programs
that deal with the management of agricultural lands in
its planning area.
• (5) The Town could choose not to utilize the soil survey reports.
This should be unacceptable because the purpose of the
on -going soil survey is to help landowners make better
land decisions, thus bringing about better management of
one of the town's valuable resources (its soils.)
Policy Choices
(1) The Town will use the soil survey because of the importance
in maintaining productive agricultural lands and providing
information for land use decisions.
(2) The Town will support all federal and state programs that
deal with the management of commercial forest and agricultural
lands.
54

(3) The Town will support when feasible, all federal and state
programs dealing with the management of commercial
• fisheries and recreational fishing.
(4) The Town does not have any known mineral production areas
at the present time. However, if any are found, they will
be developed in a manner such that their production will
be consistent with all other resources protection and
production policies.
(5) The Town does not have a policy on off -road vehicles because
the issue does not concern Windsor.
Description of the Proposed Implementation Procedures
(1) The town administrator and clerk will utilize the completed
Soil Survey Report as a base for providing information
• concerning land use decisions by 1982.
(2) The town administrator and clerk with the aid of county,
state, and federal agencies will provide information for
Proper forest and agricultural management to local residents
by 1982.
(3) The Town will continue to utilize its adopted Zoning Ordinance,
Subdivision Regulations and CAMA permit issuing powers to
help manage its land resources.
C, ISSUE.. ECONOMIC AND COMMUNITY DEVELOPMENT
The economic and community development issues of the 1976 Plan are
still significant today. Local residents realize the importance of both
• issues as related to job opportunities and improved housing conditions.
55

Town officials realize that economic development can assure the maintenance
of a strong local tax base and help provide an upgrade in services. They
• also know that new community development suggest the need for more
public services in areas experiencing growth. What follows here is a
discussion on the economic and community development issues that face
Windsor.
All types of development are encouraged within the Windsor Planning
Area. The 1976 Plan suggest (p. 58) that the Town wishes to continue
the existing developmental patterns occurring in town excluding
incompatible land uses.
Patterns of economic development, commercial and industrial have
not changed since the original CAMA Plan. Concentrations of commercial
establishments are sill centered in the Central Business District (CBD.)
However, physical deterioration is still a problem for the CBD coupled
• with the competition of neighboring plazas and shopping centers. To
help this situation the town had the East Carolina University - Regional
Development Institute prepare a redevelopment plan for the CBD. This
plan included architectural designs for all of the establishments in
the downtown business area. The town officials and local merchants hope
that the renewed interest in this area will help generate more economic
activity. The development of the Historic District should also aid in
the CBD revitalization. '
Industrial growth has been steady in the Windsor Planning Area.
As mentioned earlier, state and local officials have suggested future
industrial development occur in the industrial park site. The proximity
to major northeastern routes and a twelve (12") inch water line serving
• the area add to the attraction of industrial prospects. The most
recent of these prospects is the June Day Manufacturing Company,
i
56 f

a bathing suit manufacturer. The Town will continue to provide public ii
services when feasible to help expand the commercial and inudstrial
• development near the town. Turning from Windsor's econnomic development
issues we look at the community development issues that exist in the
town.
As the existing land use section of this plan suggest Windsor has
been characterized by steady residential development. .Presently, steady
growth patterns are occurring in several communities and subdivisions
within the town. Communities experiencing residential growth include
Spruill Park Development, Hillcrest Development, Powell Stokes
Community, the Thompson Development and the Windsor Oaks Community.
Refer to page 11 in the existing land use section of this plan for
the locations of these areas. A previous problem concerning
residential development involved land use compatibility. This issue
• concerned conflicting land uses of residential and industrial properties
near the Windsor Oaks Community. The strict enforcement of the Windsor
Zoning Ordinance resolved this issue and has been important in directing
development in Windsor.
Town officials and area residents are also concerned with pre-
serving the local housing stock. The Town currently administers a
federal housing program. The program is funded through the Department
of Housing and Urban Development (HUD) under their Small Cities Community
Development Block Grant Program. In addition to housing improvements;
local officials also understand that some public improvements can be
made under this grant program. Thus, we see the redevelopment of older
or distressed residential neighborhoods is an issue the town is working
• to resolve.
57

Local officials have encouraged development in and within close
proximity to the town's corporate boundaries. The officials feel that
• clustering developmental patterns will lessen service extension cost
i. e., water and sewer lines. The constraints -capacity of community
facilities section of this plan suggest that the present facilities
will be capable of any additional demand anticipated by an increased
population.
The Town of Windsor does not have a policy on energy facility
sitting. However, such facilities would have to adhere to the Windsor
Zoning Ordinance, if they are located within the Windsor Planning
Jurisdiction.
The Town does not have policies on tourism, beach or waterfront
access. However, the town should create a policy concerning tourism
since it is in the process of establishing a historic district.
• Creation of such a policy can add dollars to the local economy.
Another issue of local concern is annexation. As the population
and economy section of this plan note, Windsor's present growth can be
attributed to recent annexations. Presently, the town is considering
two (2) new areas near the town for possible annexation. .These areas
include: (1) an area on U. S. 17 North beginning at the town limits
and running approximately 31800 from U. S. 17 and (2) an area on U. S. 13
beginning at the town limits and running to the Cashie River. The town
council has requested and received a grant commitment under the N. C.
Clean Water Bond Act to help in the extension of services to areas of
proposed annexation. Other grant funds are currently being pursued for
service provision. From the preceding paragraph it can be seen that the
• Town of Windsor is pro -growth. Thus, it is the town's policy to annex
areas close proximity of the present town limits according to
58

G. S. 160A-36. This annexation policy is contingent upon the town
receiving funds to decrease the cost of the service provision.
•
u
Policy Alternatives
(1) Do not seek additional economic or community development
in the Town. This alternative would be impractical since
the town council has taken a pro -growth position concerning
this issue.
(2) To commit the Town to such programs as Community Develop-
ment Block Grants and Highway programs and other federal
and state programs that could aid the town in its
economic and community development.
(3) To encourage development and redevelopment in and within
• close proximity of the town's corporate limits. This
policy would serve to lessen the cost of infra -structure
extensions (i. e., water and sewer.)
(4) To investigate funding sources for the redevelopment of the
Central Business District (CBD.)
(5) The Town could or could not develop policies on energy
facilities sitting.
(6) The Town could or could not develop a policy on tourism and
waterfront access.
(7)
To investigate state and
federal
agencies concerning funding
for annexations.
(8)
The Town does not have a
policy
on channel maintenance since
• it is the responsibility of the Corps of Engineers or beach
nourishment since there are no beaches in the planning area.
59

•
•
•
Proposed Policy Choices
(1)
(5)
(6)
The Town will be committed to state and federal programs
mentioned in the policy alternatives. This commitment
i
will be shown by inviting the appropriate state and
federal officials to educate the town about such programs.
The Town will encourage development and redevelopment in
and within close proximity of the town's corporate limits.
The Town will allow energy generating facilities -power
plants, both nuclear and conventional, electrical
switching substations and other energy related facilities
only in those areas away from population clusters.
The Town will continue to apply for state and federal funds
for the town's community development needs.
The Town Council supports tourism in the Windsor area.
The Town Council supports limited access to the Cashie
River for recreational purposes.
(7) The Town Council will support revitalization efforts for
Windsor Central Business District (CBD.)
Description of the Proposed Implementation Procedures
(1) The Town will continue to participate in state and federal
programs by applying for both state and federal community
development funds by 1982.
(2) The Zoning Ordinance and Subdivision Regulations will
continue to be used to direct development and redevelopment
in and within close proximity to the corporate limits.
(3) The Town will utilize service provision as a means of
M

implementing a cluster development pattern by 1982.
(4) The Town Council will investigate methods of educating the
• general public about its historic district by 1982.
(5) The Town will investigate developing a feasibility study
on locating a public boat ramp within the Windsor Planning
Jurisdiction by 1983.
(6) The Town Council will work with local merchants in coming up
with proposals for downtown redevelopments.
D. ISSUE - CONTINUING PUBLIC PARTICIPATION
The present CAMA Guidelines encourage public involvement in the
planning process. Consistent withthis belief, the governing body of
officials appointed a planning board to serve as a vehicle for citizen
participation. This board being an extension of the town commissioners
• is charged with the responsibility of researching, studying, surveying
and discussing planning matters of significance to the Town of Windsor.
All planning board meetings are open to the general public and provide
the opportunity for public involvement.
Policy Alternatives
(1) The only alternative to one of public participation is one
- of non -participation by the public. This alternative is
totally against the foundation of our Democratic idealogy.
(2) The Town could continue to expand public participation
mechanisms to educate and inform its residents. This
alternative would be the ideal choice. It calls for the
• development of mechanisms to get more people involved in the
planning process. By doing this a broader perspective can be
61

obtained and translated into policy by the governing body.
• Policy Choice
(1) The Windsor Planning Board has recommended to the Town
Commissioners to implement, improve and expand its
public participation efforts in reference to land use
issues. .
Description of Proposed Implementation Methods
(1) The Planning Board will develop a questionnaire that will
be administered every five (5) years to gauge citizen
opinions -bout land use issues.
(2) Announccnents of all planning board meetings will be
• placed on radio as a public service announcement.
(3) The Clerk to the planning board will work with local
news media personnel in developing relevant news items
concerning planning board meetings as a means of public
education.
•
62

E. OTHER SPECIFIED ISSUES
• The Coastal Resources Commission has specified that certain issues)
be addressed in the Windsor Land Use Update. These issues include:
(1) Downtown Revitalization and (2) Water and sewer problems. These
issues were addressed in the proceeding sections of this document but
will be mentioned again.
(1) Downtown Revitalization
The Town of Windsor has embarked upon a program for the revitalization
of the Central Business District (CBD.) This revitalization project is
aimed at halting the physical deterioration that has plagued the CBD
and to make the downtown area more attractive. A few years ago the
East Carolina University - Regional Development Institute assisted in
• preparing a Fascade Plan for the downtown. Some merchants have made
suggestions for improving the ECU proposal. Currently, the town is
taking the following steps to continue the CBD revitalization efforts:
•
(A) Putting brick sidewalks in the Central Business District
(CBD)
(B) Planting holly trees in the CBD
(C) Development of'a downtown park and petting zoo
(D) Establishing a Historical District which encompasses the CBD
(E) Moving a structure of historic significance located within.
the CBD to a new location for rehabilitation purposes. This
structure will be used by the Chamber of Commerce.
6.3

Thus, there is still a commitment on the town's part to help
revitalize the Central Business District (CBD.) The town council will continue
• its efforts to revitalize the CBD by any means possible.
•
U
(2) Water and Sewer
The capacity of community facilities section of this plan
identified no current or future water and sewer problems for the
Windsor area. The only problems foreseen with the provision of
these services is related to extending them to possible areas of
annexation.. The town realizes that due to the rising cost of
construction the town may have to delay some of its planned annexation.
Since the town has taken a pro -growth stand those areas proposed for
annexation will only be annexed when funds are available for the
provision of water and sewer services.
e
64

F. PROPOSED FIVE-YEAR WORK PROGRAM
• This proposed work program has been developed and incorporated
into this planning process to monitor and update the progress being
made toward achieving the goals and objectives outlined in this
document. This evaluation procedure should measure progress toward
achieving a proposed five-year work program. It is recommended that
the planning board make progress assessments at the end of each fiscal
year; and forward all recommendations to.the town council. The
major evaluation goal is to accomplish those stated objectives within
a five-year time period. In some instances, it may be necessary to
reprioritize objectives; and, in other instances, implementation of
the stated objectives may be ahead or behind schedule. The
following is a proposed five-year work program for Windsor's CAMA
• Land Use Update.
•
FY 1981 - 82
1) Begin utilizing the completed soil survey to make land use decisions
2) Make needed revisions to Windsor's Subdivision Regulations
3) Continue to apply for State and Federal Community Development Funds
4) Develop detail enforcement and evaluation criteria for;.the Historic
Properties Commission
5) Educate general public about Windsor's Historic District
65

FY 1982 - 83
• 1) The Town Administrator and clerk will seek the aid -of State and
Federal agencies on proper forest management practice when called
to do so by town citizens.
2) Develop a brochure for the adopted Historic District
3) The Town will develop a feasibility study on locating a public
boat ramp•within the Windsor Planning Jurisdiction.
FY 1983 - 84
1) The Town will continue to apply for Community Development Funds
2) The town's Historic Commission will institute a slide .
presentation program concerning Windsor's Historic District
• 3) The Town will conduct a electrical consumption study (on
residential.usage.)
•
FY 1984 - 85
1) Continue to apply for Community Development Funds
2) The Town will conduct a water system study
3) The Town will develop a Community Facilities Plan.
FY 1985 - 86
1) Update the Land Use Plan
2) Develop a Citizen Opinion Survey and distribute to general public.
C-S7

•
IV. LAND CLASSIFICATION
67

is
IV. LAND CLASSIFICATION SYSTEM
The Land Classification System has been developed to assist in the
implementation of Windsor's adopted policies developed in the preceding
section. By designating these land classes on a map the town officials
and citizens can identify those areas where certain policies (local,
state, federal) will apply. However, it should be noted that the land
classification map is merely a tool to help implement policies and not
a strict regulatory mechanism. Therefore, what this classification
system does is provide a framework to be used by the local government
in identifying future land use intensities within the town's planning
area. By designating land classes, the local government can illustrate
their policy statements as to where and what density they want
• development to.occurj and where they want to conserve natural and
cultural resources by guiding growth.
The following is a description of the Town of Windsor's Land
Classification System using the five.(5) general land classes of:
developed, transition, community, rural, and conservation. (See Land
Classification Map).
(A) Developed
(1) Purpose. The purpose of the developed class is to
provide for continued intensive development and
redevelopment of existing cities.
(2) Description. Areas to be classified developed include
lands currently developed for urban purposes at or
• approaching a density of 500 dwellings per square
mile that are provided with usual municipal
m

or public services including at least public water, sewer,
recreational facilities, police and fire protection.
• (3) Discussion. As the future land needs section of this plan
indicated Windsor's high density development will occur
inside the town's.corporate limits. This section also
examined projected population densities and determined
that Windsor currently had enough vacant areas
residentially zoned to accommodate an additional 540 people.
This indicates that the town has enough vacant land to
accommodate a projected population increase of 165 people
by 1990. Therefore,..it appears that Windsor will have
sufficient land within the planning jurisdiction to
accommodate the expected increase. Most of the lands `•
classified Developed are within the town -limits. Other
• Developed lands are located off of Highway 13/17 South
(Industrial Park Road entrance). The Bertie County Land
Use Plan delineates these areas in.the same manner.
•
(B) Transitions,
(1) Purpose.. The purpose of the transition class is to
provide for future intensive urban development within the
ensuing ten (10) years on lands that are most suitable
and that will.be.scheduled for provision of necessary
public utilities and services. The transition lands
also provide for additional growth when additional lands
in the developed class are not available or when they are
severely limited.for development.
m

(2) Description
(a) Lands to be classified transition may include:
• (1) lands currently having urban services, and
(2) other lands necessary to accommodate the
urban population and economic growth anticipated
within the planning jurisdiction over the ensuing
ten (10) year period.
(b) Lands classified transition to help meet the demand
for anticipated population and economic growth
must: (I). be served or be readily served by public
water, sewer, and other urban services including public
streets, and (2) be generally free of severe physical
limitations for.urban development. In addition, the
transition class should not include (1) lands of
• high potential for agriculture, forestry, or mineral
extraction, or land falling within extensive rural
areas being managed commercially for these uses, when
other .lands are available; (2) lands,where urban
development might result in major or irreversible
damage to important environmental, scientific, or
scenic values; or (3) land where urban development
might result in damage to natural systems or processes
of more than local concern. Lands where development
will result in undue risk to life or property from
natural hazards.(including inlet hazards areas and
ocean erodible areas as
defined
in 15. NCAC
7H.) or
•
existing land uses shall
not be
classified
transition.
70

(c) If any designated are of environmental concern is classified
transition, an explanation shall be included stated why the
area is felt to be appropriate for high density development.
(d) In determining the amount of additional transition lands
necessary to meet the projected urban population and economic
growth, the town may utilize estimates of average future
urban population density that are based upon local land
policy, existing patterns.and trends of urban development
within the town, and densities specified in'local zoning,
if any; an estimate of additional.transition class lands
should be based upon a guideline density of 2,000 persons
or 500 dwellings per square mile.
(3) Discussion. As noted earlier in the economic and community develop-
ment section, the Town.of Windsor is pro -growth. To date, annexations
have helped the town achieve much of the recent growth. Recently,
the town has considered annexing two (2) areas within the Planning
Area that are classified as transitional. These areas include an
area beginning at the southernmost boundary of the town limits and
extending southward along U. S. 17 - 13 and an area on U. S. 17
north beginning at the town limits and running approximately 5,200
feet and then down.the Souci Road approximately 3,800 feet from
U. S. 17.
Another transitional area is located between U. S. Highway 13
Bypass and the present town limits. Transitional areas also exist
on both sides of U. S. 17 Bypass. Two (2) other transitional areas
are located along U. S. 13 Bypass to Ahoskie. Other areas classified
• as transitional include the Industrial Park Site and vacant lands
within the town limits. (See Land Classification Map.)
71

(C) Community
• (1) Purpose. The purpose of the community class is to.
provide for clustered land development to help meet
housing, shopping, employment, and public service needs
within the rural areas of :the town.
(2) Description. Lands to be classified community are
those areas within the rural areas of planning jurisdictions
characterized by a small grouping of mixed land uses,
(residences, general store, church, school, etc.), and
which are suitable and appropriate for small clusters of
rural development not requiring municipal sewer service.
(3) Discussion. Areas of this type in Windsor are located
outside of the
town limits
but
within the
extraterritorial
•
area. Windsor
contains
two'(2)
community
areas. One area
•
is located in the northern portion of the planning area
along U..S. Highway 13 to Ahoskie and one is located in
the eastern portion of the planning area along U. S. 17
to Edenton. (Refer to Land Classification.Map.)
(D) Mural
(1) Purpose. .The purpose of the rural class is to provide
for agriculture, forest management, mineral extraction and
other.•.low intensity uses. Residences may be located within
"rural" areas where urban services are not required and
where natural resources will not be permanently impaired.
72

(2) Description. Lands that can be identified as appropriate
• -.for resource management and allied uses include lands with
high potential for agriculture, forestry, or mineral extraction;
•
lands with one or more limitations that would make development
costly and hazardous' and lands containing irreplaceable,
limited, or significant natural, recreational, or scenic
resources not otherwise classified.
(3) Discussion. Most of Windsor's land area £alls'under
this classification. As mentioned earlier, Windsor has a
significant amount of forest and agricultural land within
the extraterritorial area. This being the case,
the town feels that no additional changes should be made
to the rural classification as shown in the 1976 Plan.
Very little of the anticipated growth will occur in the
rural classified areas. This area will be exempted from
services.necessary to support high density development,
(i. e., public water and sewer.)
(E) Conservation
(1) Purpose. The purpose of the conservation class is to
provide for effective long-term management of significant
limited or.irreplaceable areas. This management may be
heeded because of its natural, cultural, recreational,
productive or scenic values. These areas should not be
identified as transition lands in the future.
73

(2) Description. The conservation class should be applied to
lands that contain: major wetlands, essentially undeveloped
• shorelands that are unique, fragile, or hazardous for develop-
ment; historical and cultural resources, which include historical
and archeological sites; necessary wildlife habitat or areas
that have a high probability for providing necessary habitat
conditions; publicly owned water supply watersheds and acquifers;
and forest lands that are undeveloped.and will remain undeveloped
•
•
for commercial purposes.
(3) Discussion. Conservation areas in Windsor's Planning Area
include (1) all surface waters and (2) areas adjacent to the
Cashie River and' (3) floodplain areas in and within the town's
one -mile jurisdiction. (See Land Classification Map.)
74

•
V. RELATIONSHIP OF POLICIES
'AND LAND CLASSIFICATION
75

V. RELATIONSHIP OF POLICIES
• AND LAND CLASSIFICATION
The CAMA Update Guidelines direct each local government to discuss
the manner in which the policies developed apply to each land class.
The local governments are also required to describe the type of land
uses which are appropriate in each class. What follows is the Town
of Windsor's effort to comply with this requirement.
A. Developed and.Transition Classes
The policy statement section of this plan indicated that the town
encouraged high density development in or within close proximity of the
town limits where urban services can be provided. This is noted on
the land -classification map.- Developed and Transition Land classes
are designated.to accommodate all types of high density future urban
land uses which.necessitate water and sewer. This includes residential
single-family and multi -family development,commercial and industrial
development, utilities, community facilities and transportation facilities. "
New development will conform and be consistent to the Windsor.Zoning
Ordinance and Subdivision Regulations.
B. Community Class
Intense.development will not be encouraged in the community land
classification. This.land class provides for clustered land development
to help meet housing, shopping, employment and public service needs
76

within rural areas. This area is expected to accommodate a small amount
of residential growth. Therefore, the town does not anticipate extending
• public services to areas in this class unless the service will alleviate
a serious public health problem. Water provision is the only service
to be provided in this class.
C. Rural Class
A significant portion of Windsor's land .area has been designated
as.rural. This land class provides for agriculture, forest management,,'
mineral extraction and other low, intensity uses. .Some large develop-
ment may be encouraged -in the Rural Class if there is a possible threat
to the urban populace and .if the Developed and Transition Land Classes
are not suited for.such development. Such large developments include
airports, power plants, and hazardous materials storage. The Windsor
• Zoning ordinance will continue to direct development within those areas
classified as rural.
E
D. Conservation Class
The Conservation.Class is designated to provide for effective long-
term management of significant limited or irreplaceable areas. This
management,is needed because of the natural, cultural, recreational,
productive or..scenic values that the areas may possess. The resource
protectionand.resource.production and management. section of this update
examined Windsor's valuable resources and addressed the town's intentions
under the conservation classifications.
77

VI. INTERGOVERNMENTAL COORDINATION AND IMPLEMENTATION
• Some of the problems discussed in this plan are common to other
municipalities within Bertie County. The commonalty of these problems
often require. common solutions and responses. With this in mind, the
Coastal Resources Commission wishes to encourage a broad based inter-
governmental coordination role.to help solve these common problems.
This coordination may be described in three (3) ways:
1. The policy discussion and the land classification map
encourage coordination and consistency between local land
use policies and the state and federal governments. The
local land use plan is the principal policy guide for
governmental decisions and activities which affect land
uses in Bertie County.
2. The local land use plan provides a framework for budgeting,
planning and for the provision and expansion of community
facilities such as water and sewer systems, schools and
roads.
3. The local land use plans will aid in better coordination of ,
regulatory policies and decisions by describing the local
land use policies and designating specific areas for certain
types of activities.
Specifically, the Town of Windsor has and will continue to foster
intergovernmental coordination.by the following means:
1. 'The Town has expressed a desire to work with the Extension
• Service „ North Carolina Forest Service, ASCS, Soil
79

Conservation Service and other federal and state agencies in
• cooperative agreements to implement specific policies outlined
earlier.
(2) The Town of Windsor is a member of local municipal and county
administrators organization. (a group set up by the Mid -East
Commission to better coordinate activities of local government
administrators in Region Q. Monthly meetings are held in
which common problems and solutions are discussed by members.
(3) The Town has developed a five-year work program :that will
be revised in 1986. The development of such a plan illustrates
the town's commitment to implement and coordinate the land
development plan.
(4) The Town will work with the N. C. Department of Cultural
Resources in protecting and enhancing its cultural, historical
• and archeological resources.
(5) The Town will continue a working relationship with Bertie
County .to insure consistency with all plans and policies
that may effect both units of government.
•
80

•
VII. PUBLIC PARTICIPATION
The CAMA Update Guidelines encourage the _town to employ -a variety
of public participation techniques to assure broad involvement in the
planning process. As a result, many means of soliciting public
participation were used.
The Windsor Planning Board was delegated with the repsonsibility
for developing this update. This board was selected because they
were delegated with the same responsibility for developing the original
Windsor land use plan. Thus, the planning board has some under-
standing as to what is needed to get citizen input.
Below are the techniques used to obtain citizen input during this
update process:
(1) A questionnaire was developed and administered to civic
leaders to get their input on land issues facing the town.
(2) The same questionnaire was sent_to the Planning Board
members to get their input on land issues facing the town.
(3) Each planning board meeting was open to the general public.
(4) Public notices were placed in the local paper of public
hearings.
The town council plans to continue to use the planning board as
I
its vehicle for soliciting citizen input on'community issues. As
stated in the proposed five-year work program, this board will develop
and distribute a questionnaire.every five -years to educate and solicit
citizen views on planning related issues. The monthly planning board
meetings will also continue to be open to the general public.
82

•
VIII. APPENDICES
m

APPENDICES
A. Map 1 Recent Growth Areas in Windsor
B. Historic Sites in Windsor
C. Annual Evaluation Form
0

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RECENT GROWTH
AREAS
r t IN WINDSOR
TOWN or
l NORTH,CAROLINA
NILICK OT •\� / ff
. _. MOW" .
- WINDSOR OAKS
COMMUNITY

APPENDIX B
HISTORICAL SIGNIFICANT STRUCTURES IN WINDSOR
Bowen House
102 Queen St.
Large turn -of -the -century Victorian house, two -and -a -half stories with
high hip roof and interior chimneys. Wrap -around porch with square posts and
turned balusters with octagonal corner projection. Front entrance has leaded
side and transom lights. Several large gables with louvred openings and shingles.
Interior has impressive spool -turned stair screen in hall and Colonial Revival
mantels.
Carter -Mitchell -Cobb House
N. King St., beside Windsor Elementary School
Tau -story double -pile plan house built•in two parts. The front or earlier
section was probably a two-story, three -bay house and features two double
shoulder chimneys, one laid in Flemish bond, with Federal period two-part
architrave interior trim with graining. A dated brick in a chimney indicatds the
rear section was built in 1856 by William F. Mitchell, great-grandfather of the
present owner. A shed porch has replaced a smaller one, the outlines of which
can still be seen.,
Cherry House
S side York St.
Small gambrel roof house, long reputed to.be the oldest house in Windsor.
Shed porch across front with shed rooms to side and rear. Small shed dormer
with 4/4 sash, one window with .5/6 sash and large front door under the porch.
. Much restoration has been done to the house in recent.years.
Dail House
313 King St.
Two-story hip roof house, turn -of -the -century period, with paired windows
and central projecting bay with gable, hip roof porch across facade. Extensive
symmetrical additions to the rear.
Dr. Henry Vaughan Dunstan's Office
N. side King St.
Small hip roof building with.chamfered cornerposts and chamfered window
and door trim with molded caps. Interior icompletely finished with
beaded
s
flush sheathing. Used as the office of Dr. Henry Vaughan Dunstan, practiced
in Windsor from soon after the Civil War until 1908. Moved from its original
site across the street and now used as a service station.
Earley House
402 S. Queen St.
Two-story, three -bay gable roof housortico With elaborate with rear wing. sawnwork hsawnwork trimand,
19th cent. The house features a double p
distinctive sawnwork brackets and cornice above the windows.
Freeman Hotel
101 Queen St., jct. with Granville St.
Large two-story Greek Revival structure, three bays deep with fanlights
• in gables. Double portico across facade with sawnwork trim is probably not
original, and the facade fenestration appears much changed. Fluted exterior
trim with cornerblocks. Unusual arrangement of large 9/9 sash on the upper

floor, with smaller 9/6 on the lower. Hotel originally sat close to the street,
but has been moved back considerably.
Gatling House
• 106 Queen St.
Large two -and -a -half story Victorian house, turn -of -the -century period.
Large street front gable with wooden shingles. Wrap -around porch with elab-
orate sawn and spindlework detail and octagonal corner projection. 1/1 sash
with louvred blinds.
J.B. Gillam House
401 King St., jct. w/ Pitt St.
Much remodelled Georgian house. Two -stories, five bays, with high hip roof,
Flemish bond foundation and double -shoulder chimneys. Much original beaded
and molded siding survives. Received extensive additions and changes in the Greek
Revival period and ca. 1900 when all the sash was replaced, a wrap -around porch
with corner pavillion replaced a double portico, and much of the interior trim
replaced. One arched fireplace with raised panel overmantel and the original
raised six -panel front door survive from the Georgian period. There are some
Greek Revival two -panel doors and mantels from the mid 19th cent.
Thought to have been built between 1775 and 1790, possibly as a side -hall
plan house, it has been owned by Col. Elisha Rhodes, Minister to the Republic of
Texas, George Washington Capehart, the builder of Scotch Hall, and David Outlaw,
prominent ante-bellum lawyer and politician of Bertie Co.
Gillam House
103 Pitt St.
Story -and -a -half Victorian cottage with a one-story porch across the front with
• elaborately .turned spindlework. A distinctive feat're in a house this small is the
octagonal corner tower.
Gray-Gillam House
S side King St.
Two-story, three -bay house thought to have been on this lot by 1790. The
house sits on a Flemish bond basement with brick floor and has two Flemish bond
paved double -shoulder chimneys serving the front section of -the house, and two
single -shoulder chimneys to the rear. Hip roof porch with sawn posts across the
facade. . Much molded siding survives. No original interior trim appears to be
intact. Served as a Methodist parsonage for thirty years.
Mardre House
208 King St.
Large two-story gambrel roof frame and shingle house, bungaloid style.
Porch across front supported by square stone columns. Large hip dormer on
front and projecting second floor bay window topped with octagonal turret.
Built in 1909.
Inez Matthews House
204 King St.
Handsome example of the Colonial Revival style. Large frame structure with
high hip roof and widow's walk. Outstanding is the very handsome two-story
Portico with paired Corinthian columns supporting large pediment with leaf
modillion block cornice. One-story porch runs beneath and across facade.

Mizelle House
SW corner King and Pitt Sts. intersec.
Large two -and -a -half story late 19th cent, house with high hip roof and
• interior corbeled chimneys. Large gable on front and three-story octagonal
corner tower. One-story wrap -around porch with turned posts and balusters.
Wooden shingles appear in the gables and dormers.
Mizelle House
101 W. Granville St.
A large and handsome Victorian house of two -and -a -half stories with
a three-story octagonal corner tower. A one-story wrap -around porch'' features
elaborate turned and sawn woodwork. The yard is enclosed by a low cast-iron
fence. Built in 1868 and extensively remodeled in early 20th cent.
Pierce House
304 N. King St.
. Large late 19th cent. two-story L-plan house. Around the turn-of-the-centi
an elaborate one-story wrap -around porch with octagonal corner pavillion was add
as was the three-story ocatgonal tower at the inside angle of the L.. Interior
has molded trim with cornerblocks and rondels and pressed tin wainscot.
Rosefield
212 W. Gray St.
Oldest part of the house is thought to have been built by John Gray soon
after he bought the property in 1730. Gray's son William gave 100 acres in 1768
for the establishment of Windsor, and was a member of the General Assembly,
the Halifax Convention that drew up the state constitution, and the Hillsborough
Convention. John Gray's grandson William Blount was -born in the house in 1749
and served in the Continental Congress, being a signer of the U.S. Constitution.
He was also one the -first two senators from the new state of Tennessee after
serving as Governor of the Southwest Territory, being appointed to that post by
President Washington.
The house is two -stories, with five -bays, and has paved double -shoulder
chimneys. A two-story wing with basement and the front porch was added in
1855. Most of the interior .trim appears to date from that time also. Several
outbuildings remain as well as the family cemetery.
St. Thomas Episcopal Church
207 W. Gray St, at.NE corner with Queen St.'
Small gable roof.church, three bays wide and three deep, :built in 1839,
with Greek Revival exterior trim. Small square belfry with louvred openings
surmounted by an octagonal spire covered with wooden shingles. Small.entrance
vestibule is a 20th cent. addition,pointed arch stained glass windows are not
original. Interior has.been renovated.. Church is surrounded by an old and well
maintained cemetery containing the grays of Judge Francis D. Winston of
Windsor Castle, and the widow of Governor John Branch.
Spellings -Bond -Sutton House
402 King St., NE corner with York'St.
Ante-bellum home extensively altered by Lewis Bond, sheriff of Bertie
Co., ca. 1900— Previous to that, it has served many years as the Episcopal
• rectory. At the present, the house is of two -and -a -half stories with hip roof
and interior chimneys, large gables, and a one-story wrap -around porch with Tus-
can columns and turned balusters.

Sutton-Hoggard House
302 King St., NE corner with Gray St.
• Handsome two -and -a -half story house, two rooms deep with side -hall plan,
two paved single -shoulder exterior end chimneys, tri-part windows in attic
gables, and hip roof porch with sawn posts. Handsome interior trim of Federal -
to Greek Revival transitional period. Present doorway with fanlight and one-
story side wing added in 1925. Known to have been here by 1842, the house
was owned 1848-1852 by Patrick Henry Winston, the builder of Windsor Castle,
and was occupied during the Civil War by Dr. Turner Wilson, whose office
still stands to the rear of the house.
Webb -Askew House
N side King St.
Two-story house with one-story rear kitchen wing, built soon after the Civil
War by R.W. Askew with timber shipped from Baltimore. The front features a
double portco with pediment and paneled -box columns with sawnwork trim. The
gterior features simple Victorian trim; the rear wing has been raised to two
stories.
Windsor Castle
W end of Winston Lane
Large Greek Revival house built in 1858 by prominent lawyer Patrick Henry
Winston. Built as a large -two-story structure with hip roof, interior chimneys,
paired windows, and a one-story porch -with pediment supported by four box
columns. In 1908-09 Judge Francis Winston turned the rear of the House into
the entrance front with the addition of a large two-story portico with paired
. Ionic columns supporting a pediment. The original porch survives, but is en-
closed by several rater additions.
Patrick Henry Winston had four distinguished sons: George Tayloe Winston,
president of the University of North Carolina, the University of Texas, and
N.C. State College; Robert Watson Winston, a North Carolina Superior Court
judge; Patrick Henry Winston, Jr., Attorney General of the State of Washington;
and Francis Donnel Winston, state legislator, Lieutenant Governor, and judge
of the Superior Court.
House
206 King St.
Large.one=and-a-half story house, bungaloid style. Rests on a high brick
foundation with engaged porch supported by small paired columns on brick piers.
Large shingled gable with four small banded windows. House is identical to
210 King St.

APPENDIX C
LAND DEVELOPMENT PLAN
ANNUAL EVALUATION FORM
A.
OBJECTIVE ATTAINMENT YEAR FY to
B.
OBJECTIVE STATEMENTS
1.
2.
3.
4.
S.
C.
PROGRESS MADE TOWARD IMPLEMENTING OBJECTIVES
1.
2.
3.
4.
5.
D.
PROBLEMS ENCOUNTERED IN MEETING OBJECTIVES, IF ANY
L
2.
3.
4. .
5.
E.
RECOMMENDATIONS _
1. .
2.
3..
4.
5.
•
Planning Board ,Chairman
Date
i>

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