Land Use Plan Update 1986-1987

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TOWN OF WINDSOR
LAND USE PLAN UPDATE
1986
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE
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1 9 8 6
W I N D S 0 R L A N D U S E P L A N
U P D A T E
Adopted by the Windsor Town Council June 25, 1987
Certified by the Coastal Resources Commission July 24, 1987
PREPARED BY:
MID -EAST COMMISSION
P.O. DRAWER 1787
WASHINGTON, NC
The preparation of the plan was financed in part by a grant
provided by the North Carolina Coastal Management Program,
through finds provided by the Coastal Zone Management Act of
1972, as amended, which is administered by the Office of
Ocean and Coastal Resource Management, National Oceanic and
Atmospheric Administration.
II

19B6 WINDSOR LAND USE PLAN UPDATE
'
ACKNOWLEDGMENTS
'
Prepared by:
'
TOWN COUNCIL
L.T. Livermon, Mayor 0. Wint Hale
"Buddy" "Jimmy"
T.R. Shaw J.F. Hoggard, III
'
Charles W.D. Fulk Mary Willoughby
PLANNING BOARD
'
Lawrence Carter, Chairman Alice Pittman
E.A. Moore John W. Phelps
'
Wesley Gray Jack Curlings
Russell Spivey, Jr.
MID -EAST COMMISSION PLANNING AND DEVELOPMENT STAFF
'
Lynn Roche Phillips, Technical Advisor
'
Robert Paciocco, Planner -In -Charge
David Overton, Town Administrator
'
Diane Dunlow, Town Bookkeeper
The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through the Coastal Zone Management Act of 1972, as amended.
'
The Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration, is also responsible for
funding for this document.

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TABLE OF CONTENTS
' DATA COLLECTION AND ANALYSIS 1
Introduction 1
Establishment of the Data Base 2
PRESENT CONDITIONS 3
Present Population and Economy 3
Summary 11
EXISTING LAND USE 12
Introduction 12
Land Use Summary
12
'
CURRENT PLANS, POLICIES AND REGULATIONS
18
Plans
18
'
Policies
Regulations
18
20
CONSTRAINTS: LAND SUITABILITY
22
Introduction
22
PHYSICAL LIMITATIONS FOR DEVELOPMENT
22
Hazards
22
' Soils 25
Water Supplies 26
Excessive Ground Slope Areas 28
' Fragile Areas 28
Areas With Resource Potential 32
CONSTRAINT: CAPACITY OF COMMUNITY FACILITIES 35
1 Introduction 35
Water and Sewer 35
Solid Waste Collection and Police and Fire
Protection
36
'
Schools
36
Roads
38
'
ESTIMATED DEMAND
40
Population and Economy
40
Summary
40
'
REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS
43
Resource Protection
44
' Resource Production and Management 45
Economic and Community Development 47
ISSUES AND POLICY STATEMENTS 49
RESOURCE PROTECTION 50
Development in Areas with Constraints 51
AEC Development 54
Other Fragile Areas and AECs 55
' Hurricane and Evacuation Needs 58
Protection of Potable Water 58
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Use of Septic Tanks 59
' Storm Water Runoff 60
Marina and Floating Home Development 62
Industrial Impacts around Fragile Areas 63
' RESOURCE PROTECTION AND MANAGEMENT 65
Productive Agricultural Land 65
' Existing and Potential Mineral Production Areas 67
Commercial and Recreational Fisheries 68
Commercial Forestry 69
Off -Road Vehicles 70
' Impact of Development Types of Resources 70
ECONOMIC AND COMMUNITY DEVELOPMENT 72
' Location and Types of Industries Desired 72
Commitment to Providing Services 75
Desired Urban Growth Patterns 76
' Redevelopment of Developed Areas 77
Commitment to State and Federal Programs 78
Assistance to Channel Maintenance 80
Energy Facility Siting and Development 80
' Tourism and Beach/Water Access 81
Types, Densities, and Location of Anticipated
Development 83
' HURRICANE AND STORM HAZARD MITIGATION 84
Introduction 84
Hazards Map 86
Effects of Storm Components on Hazard Zones 90
Summary 92
Post -Disaster Reconstruction 93
' Introduction 93
Immediate Clean -Up 94
Recovery Task Force 97
' Schedule for Repair and Reconstruction Over
Longer Period 98
Evacuation Routes and Times 101
Summary 103
t Intergovernmental Coordination 104
Storm Hazard Mitigation and Post -Disaster
Reconstruction Policies 106
' PUBLIC PARTICIPATION 108
' LAND CLASSIFICATION III
RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION 120
' INTERGOVERNMENTAL COORDINATION 122

APPENDIX A 124
APPENDIX 8 128
APPENDIX C 132

LIST OF FIGURES
FIGURE NUMBER
NAME
PAGE
I
Windsor Planning Area
4
2
Population Change from 1960 to
5
1984 - Windsor and Bertie County
3
Employment by Persons 16 Years
7
and Over by Industry - Windsor
4
Windsor Area Manufacturing Firms
9
5
Existing Land Use 1986-A
13
6
Existing Land Use 1986-B
14
7
Flood Prone Area
23
8
Soils Suitable for Septic Tanks
24
and Urban Purposes
9
Windsor Area AEC: The Cashie River
29
10
Register of Historic Places in
31
Windsor Area
11
Prime Agricultural Soils in the
33
Windsor Planning Area
12
Public School Facilities in Windsor
37
13
Population Projections - Windsor
41
and Bertie County 1984-1995
14
Inundation Levels for Hurricanes
87
of Specified Intensity
15
Inventory of Structures in the
89
Hazard Area
16
Land Classification Map
113

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' DATA COLLECTION AND ANALYSIS
' Introduction
' Land development generally takes place as the result of a
series of decisions by private individuals and government. If
' left entirely to chance, the resulting pattern of development may
not be in the best overall interest of the community. To promote
this community interest for both present and future generations,
' a land use plan is to be developed, adopted and kept current by
the local governments in the coastal area.
' The land use plan is a framework to guide local leaders as
they make decisions affecting development. Private individuals
1 and other levels of government will also use the plan to guide
' their land use decisions. Effective use of the plan by these
groups will lead to the more efficient and economical provision
of public services, the protection of natural resources, sound
economic development, the protection of public health and
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safety, and enhancement of the community's quality of life.
'
The Town of Windsor has responded to these needs by electing
to complete and update its land use plan. The preparation of
this plan represents an effort by the Town to guide development
in a way which will maximize public benefits. This plan was
'
financed in through
part a grant provided by the Coastal Zone
tManagement
Act of 1972. These funds are administered by the
Office of Coastal Resource Management of the National Oceanic and
Atmospheric Administration through the North Carolina Department
of Natural Resources and Development (DNRCD) Division of Coastal
'
Management.

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A
ESTABLISHMENT OF THE DATA BASE
One purpose of the 1986 land use plan is to update informa-
tion given in the 1981 plan and to outline development that has
taken place since the completion of the last plan. The 1981 plan
and its counterpart, the original 1976 land development plan,
serve as the primary sources of information for this effort.
Various other sources were used to update and expand the data
base.
Socioeconomic data were gathered from a variety of sources.
The 1980 U.S. Census of Population provided updated population
figures, which were then made current with data provided by the
N.C. Department of Administration. The North Carolina Department
of Natural Resources and Community Development Division of Marine
Fisheries provided data on the fishing industry in the Windsor
area. Additional statistics were gathered from The Directory of
Manufacturing Firms, 1984, and the Bertie County School Superin-
tendent. The DNRCD Divisions of Environmental Management and
Soil and Water Conservation were very helpful in providing
information. Various other sources were consulted, including the
Town Administrator and Bookkeeper.
Information on land use within the Town's jurisdiction was
acquired from a variety of sources. United States Geological
Survey 7 1/2 minute quadrangles, the Bertie County soil survey,
zoning maps, building permit records and on -site inspections
were used to assess the development that has occurred since the

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1981 plan. Personal interviews with various technical experts,
such as the District Soil Conservationist, supplemented informa-
tion on land development trends in the area.
The accuracy of this plan was checked throughout its
development period. The Planning Board, Town Administrators and
Town Council proofread the text to ensure its accuracy and
direction. These combined sources aimed to provide the most
concise picture of the development trends within the community.
PRESENT CONDITIONS
Present Population and Economy
The Town of Windsor is situated in central Bertie County on
the Cashie River, which drains into the Albemarle Sound (Figure
1). It serves as the county seat. Windsor is a Town which,
until the 1960s, existed primarily to serve the farming and
logging community. The population of the Town has risen and
fallen during the past 25 years (Figure 2). In the 1960s,
Windsor grew by more than 20 percent and in contrast, Bertie
County had a net loss of population. Since 1970, the population
of Windsor has steadily been declining at a very low rate.
During the past 25 years, most of Windsor's growth occurred in
the decade from 1960 to 1970. This coincides with the change in
the economy from traditional rural industries like farming and
logging to manufacturing. Several manufacturing firms located in
Windsor during this time. The Town developed residential areas
as well as service industries to accommodate the growth brought

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Figure 2
POPULATION CHANGE FROM 1960 TO 1985:
WINDSOR AND BERTIE COUNTY
1960-1985 1980-1985
PERCENT PERCENT
1960 1970 1980 1985* POPULATION POPULATION
POPULATION POPULATION POPULATION POPULATION CHANGE CHANGE
Windsor
1,813
2,199
2,126
Bertie
24,350
20,528
21,024
SOURCE: US Census of Population, 1980
* 1985 estimates provided by N. C. Department of Administration
2,091 15.3% -1.6%
21,341 -12.4% 1.5%

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on by industry. Since 1970, however, the population has shown a
slight decrease. This loss can probably be attributed to
the out -migration of workers to larger cities in the region.
A seasonal population flux does not play an important role
in the public service demands placed on Town facilities.
Recreational activities such as hunting and fishing attract a
small number of tourists and summer residents to the area.
This limited number of visitors, however, does not tax the
adequate provision of water and wastewater services nor any
other Town services.
Additional statistics may shed light on the composition and
lifestyle of the residents of Windsor. The population is
composed of approximately 36.5 percent minorities and the median
age is 33.3 years. This implies that one half of the population
is older than 33.3 years and the other half is younger. Wind-
sor's 4 6,050 per capita income is higher than $ 4,376 for
Bertie County (NC Census of Population, 1980).
The economy of Windsor is mixed, but dominated by manufac-
turing. Figure 3 shows employment of persons 16 years and older
by industry in Windsor. A large proportion of the work force is
engaged in the manufacturing, retail trade or education fields.
Unemployment in Bertie County is high (5.9 percent) compared to
the 4.56 percent average for Region 0 (Employment Security
Commission).
Although not reflected in the employment statistics,
agriculture is still an important component of the Windsor
economy. Agriculture, forestry, fishing and mining employ less

Figure 3
7
EMPLOYMENT BY PERSONS 16 YEARS AND OVER BY INDUSTRY, 1984
WINDSOR
Industry
Total Persons
Agriculture, Forestry, Fishing
34
and Mining
Construction
39
Manufacturing
244
Transportation
10
Communications and other Public
6
Utilities
Wholesale Trade
47
Retail Trade
127
Finance, Insurance and Real
28
Estate
Business and Repair Services
17
Personal, Entertainment and
44
Recreation Services
Health Services
56
Education Services
108
Other Professional and
33
Related Services
Public Administration 50
TOTAL 843
UNEMPLOYMENT 61
SOURCE: North Carolina Statistical Abstract, 1985
Percent
4.0
4.6
28.9
1.2
0.7
5.6
15.0
3.3
2.0
5.2
6.6
12.8
3.9
5.9
7.2

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than four percent of the labor force. There continues to be an
overall decrease in agricultural employment triggered by the
widespread use of heavy machinery and the introduction of farming
methodologies which require less labor. Agricultural land use
constitutes approximately 30 percent of the total land area
within the Town's one mile jurisdictional area. Similarly,
Bertie County is heavily agricultural with approximately 22
percent of the total land area in agricultural uses. The crops
most widely grown are peanuts, corn, soybeans, tobacco and
cotton. Agricultural employment typically experiences peaks
during the harvest season in late summer/early fall.
Manufacturing dominates the regional economy. It employs
nearly one-third of the local work force. Thirteen manufacturing
firms are located in the Windsor planning area (Figure 4).
Almost three -fifths of these firms rely on the timber industry
for their existence. Forestry -related industries employ almost
70 percent of the manufacturing work force, representing a large
proportion of the regional payroll. In the future, the Town
should strive for diversifying the local industrial economy away
from a dependence on forestry. As it is, Windsor is susceptible
to the unpredictable nature of the timber business. Forested
areas constitute approximately 60 percent of the undeveloped land
in Windsor's extraterritorials area, compared to approximately
70 percent of the total land area for Bertie County. In the
Windsor planning area, about 70 percent of the timber is owned
by commercial interests.

Figure 4
MANUFACTURING FIRMS IN WINDSOR AREA
7
Name
Address
Product
# of Emps.
Bema Manuf. Co., Inc.
Windsor Ind. Park
Ladies and
2U-49
P. O. Box 698
children's
bathing suits
Blue Bell, Inc.
P. 0. Box 39
Female jeans
100-249
Byrum, Robert Sherlock
Route 3
Logging
5-9
Coulbourn Lumber Co.
US 17 Bypass
Pine products
100-249
Gillam Bros. Peanut
Spring St. Ext.
Peanuts
50-99
Shelter, Inc.
Lea Lumber &
Route 3, Box 57
Hardwood veneer
250-499
Plywood Co.
(off Hwy"13)
and plywood
Lea Lumber &
P. 0. Box 489
Cut to size
100-249
Plywood Co.
plywood
Pierce Market
Route 3
Meat processing
n/a
Aulander Hwy
Windsor Wood
P. O. Box 302
Furniture
10-19
Products, Inc.
Components
Thompson & Co.
Hwy 13 North
Lumber Cypress
20-49
Pine
Williford Lumber Co.
Route 2
Furniture
20-49
Squares
Worker's Owned
Granville St.
Contract Sewing
50-99
Sewing Co.
Stephenson Crab Co.
Windsor Ind. Park
Seafood
20-49
Processing
SOURCE: Town Administrator and 1984 Bertie County Land Use Plan Update.

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Bertie County is consistently among the top 13 counties for
commercial catches, poundage and monetary value. Even so, the
fishing and seafood business is not a major industrial employer
in the Windsor area. A small number of persons are employed by
the crab processing plant and several independent commercial
fishermen operate from Windsor. Finfish, including herring, are
the common catch among local commercial boatmen. Recreational
fishing and boating are very popular along the Cashie. Supplies
such as fuel, food, beverages, bait and marine supplies are
commonly purchased in Windsor by these seasonal recreators.
These activities are suspected to provide a significant seasonal
boost to the regional economy.
Other industries in the area are textile and food processing
plants. The Bertie County Economic and Industrial Development
Commission is actively recruiting new and diversified industry to
the area. Several sites are presently available for potential
industrial developers. The' Bertie County Industrial Park,
located south of Town on Highway 17, houses several of the
manufacturing firms discussed above and has the space to accom—
modate several others. Other existing industrial sites and
areas zoned for industry are located throughout the planning
area.
Seasonal variations in employment are generally not a
significant problem in the Windsor area. Small amounts of
unemployment among agricultural workers during the winter months
is the major concern for the area.
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Summary
The analysis of the demographic and economic conditions
reveals that Windsor supports a stable economy, but also has a
slowly declining population. It is expected that this population
trend will continue over the next ten years. The majority of the
industries in Town are dependent upon the forestry business,
which is currently experiencing prosperous times. However,
manufacturing linked to forestry is extremely vulnerable due to
these fluctuations in the timber industry. It is recommended
that the Town diversify its economy by promoting other kinds of
industry to the area. Additional growth in the economy or
population is not likely to have a significant impact on the
natural resources of the area. Industrial sites area available
throughout Town, and specifically in the industrial park.

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EXISTING LAND USE
Introduction
Before intelligent decisions can be made directing future
land use in a community, there must be an inventory of the
present land uses. This inventory should take note of the
types of land uses, their amount, and their distribution. The
following section details the existing land uses within the
Windsor planning area.
Land Use Summary
The Windsor planning area includes the land within the Town
limits and the land outside Town to a distance of approxi-
mately one mile (Figure 1). The total area encompasses slightly
more than 11 square miles. About 30 percent (3.3 square miles)
of the planning area is within the corporate limits and the
remaining 7.7 square miles is in the extraterritorial area.
Land developed for urban purposes accounts for about 15 percent
of the total land area. The majority of the undeveloped land is
in forests, agriculture, or swamp forests and is located outside
of the Town limits.
Land uses have remained relatively unchanged since the 1981
plan (Figures 5 and 6). The majority of land in Town is in
residential uses. Residential development is concentrated in the
Thompson Development in the north, Spruill Park and Nillcrest in
the west and south, and the Peterson Road area in the eastern
section of Town. Since 1981, 17 residential building permits
have been granted, most of which were for construction in
existing residential developments. Other sites for housing

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Figure 6
EXISTING LAND USE 1986-B
14
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' a Swampforest
1 Edgewood Church
2 Edgewood Cemetery
3 Charles Street
4 Hospital
' 5 Granville Street
6 Industrial Park
7 Elm Street
The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Programs through funds provided by the Coastal Zone Manage-
ment Act of 1972. as amended, which is administered by the
Office of Ocean and Coastal Resource Managements National
Oceanic and Atmospheric Administration.
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permits have been for sites located off Highway 17 North and near
Edgewood Church. Existing residential uses occur along traffic
arteries in the southeastern quadrant of the planning area along
US 17 South in the vicinity of the Industrial Park, off of NC
1100, and off of Highway 13 Business. Other homes are located
sporadically throughout the planning area.
Commercial land uses are those which support retail or
personal services. Within the planning area, several concentra-
These downTown business
tions of commercial uses exist. are ,the
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district, the U.S. 17/13 Business arteries and the strip develop-
ment stretch extending along the highways leading into Town.
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During the last five years, Granville Street has been the growth
area for commercial establishments. Since 1981, seven of the
'
building have been for addresses
nine commercial permits granted
'
along Granville Road near downTown. This has helped to alleviate
depressed economic conditions in the downtown area.
'
Office and institutional uses are springing up in the
blocks near the hospital and Charles Street. Zoned for this use,
'
a medical clinic recently located across from the hospital. It
'
is expected that future commercial, institutional and office
space needs will be met in these existing zoned areas. Expansion
of the strip development in all directions along major traffic
arteries is also expected. Special attention should be given
'
monitoring this haphazard growth to avoid potential hazards and
conflict in land uses.
n

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As previously stated, the industrial areas of Windsor are
situated in the industrial park located on Highway 17 South, the
Highway 17 Bypass, U.S. 13 north to Ahoskie, off of Indian Woods
Road, and in two sites near Peterson Road. Most industries are
lumber processors and textile manufacturers. Any future indust-
rial uses should be confined to the industrial park, existing
areas zoned industrial, or the extraterritorial area because of
the undesirable effects of industry on other land uses.
Nearly 60 percent of the planning area is forested, and
about 10 percent is located within the Town limits. About 70
percent of the woodlands are owned by industry for use in nearby
pulp mills. The wooded areas are concentrated in three locations
in the planning area. A westward band of forested area origin-
ates in the center of Town, and another cluster of trees exists
in the eastern most extreme of the planning area. The hardwood
swamp forests located in the floodplain of the river are another
forested area. Presently, there are no serious land use compati-
bility problems with these timber lands. However, should these
areas be logged or cleared for agricultural use, short-term
aesthetic problems might result unless wise harvesting/reforesta-
tion practices are used.
Most of the land within the extraterritorial area is
cleared for agricultural uses. Most agricultural land lies
along the boundary of the extraterritorial limits and is either
currently devoted to crop production or serves as pasture.
Tracts in the northwest and southwest sections of the planning
area are also in production. Within the Town's planning juris-

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diction, there are currently no apparent conflicts between
agriculture and other land uses. As the demand for industrial,
residential and commercial land increases, agricultural land
along Highway 17 Bypass may be exposed to development pressure.
The zoning ordinance allows for this by allowing residential and
other uses in areas that are primarily agricultural. No other
compatibility problems are expected to arise.
In summary, there are no significant land use compatibility
problems in the planning area. Any negative aspects of industry
(noise, smoke, traffic congestion, etc.) should not have a
serious effect on land use patterns in Windsor. The zoning
ordinance regulates the amount and location of all land uses.
If additional commercial strip development occurs along the
major traffic arteries, a compatibility problem may arise between
the commercial and residential uses located there. Planning and
finances for additional traffic lights, curb cuts and turning
lanes may be necessary if strip development becomes a great
problem. There are no major problems anticipated or a result of
unplanned development or will have a bearing on future land use.
Future residential growth areas include the development near
Edgewood Cemetery as well as in existing subdivisions. Outside
the Town limits, additional construction along transportation
routes is possible. Selected sites along N.C. 1100 are currently
residential growth centers and will likely continue growing as
the need for dwellings increases. Commercial uses are likely to
expand in the highway corridors as well as in the downtown area.
Changes in land use along the highways should not cause any

II
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significant infringement problems on agricultural land, as most
' of this area is already considerably developed.
' CURRENT PLANS, POLICIES AND REGULATIONS
Plans
Windsor presently has two planning documents that have a
direct impact on land development in the Windsor planning area.
' In addition, numerous county and regional documents address
t Windsor development issues. The following is a list and descrip-
tion of the plans related to Windsor's growth that have been put
' into action since 1981.
Community Development Block Grant Program - The 1981
' Land Use Plan update outlines a community development
and housing element plan completed in 1977. Since the
completion of this plan, the Town has applied for
' additional community development block grants.
Land Use Plans - Since the passing of the Coastal Area
' Management Act, two land use plans have been completed.
' The land classification map which accompanies each plan
is useful in determining land use changes in the
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planning area.
Policies
' Policies are defined as statements of intent and courses of
action which are followed to reach a desired goal. The following
lists the policies related to development that Windsor currently
has in place.
Utilities Extension Policies - Only approximately one
' percent of the residents in Town are not connected to
1

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the wastewater treatment facility. The sewer hook-up
policy is applicable to all potential customers who
discharge at an equivalent amount and quality as
domestic customers. Mandatory hook-up is enforced for
every customer located within 200 feet of the sewer and
water lines. Requests for extensions of pipes are
examined on a case -by -case basis. All in -Town res-
idents are tied into the municipal water system. Water
fees are set higher for customers outside the Town
limits. The Town is currently working at installing
more piping through Town. The capacity of community
facilities is 'discussed in the section on Constraints:
Capacity of Community Facilities.
Open Space and Recreation Policy - There is no compre-
hensive recreation plan for Windsor. The Town provides
a recreation area on South York Street which includes a
small playground area and a petting zoo. Located next
to the park is a privately -owned baseball field. The
Town recently purchased and relocated a nationally re-
cognized historic structure, the Freeman Hotel,
to a lot across from the park facilities. The hotel
will be used as a guest house for visiting dignitaries
or will house the Chamber of Commerce. In addition,
the Town plans some minor capital improvements to the
area to make it a focal point for tourism and recrea-
tional activities. A public access site to .the
Cashie River is also being constructed in this area.

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Recently, the Wildlife Resource Commission announced
that funds have been approved for the construction of a
public boat ramp at the end of Elm Street. Construc-
tion began in early 1987 and is expected to be com-
pleted by summer 1988.
Regulations
The Town of Windsor enforces several regulations which
have an impact on development. The building inspector and
County Health Department are responsible for their enforcement.
Regulations currently in place are:
Zoning Ordinance
Building and Housing Regulations
Mobile Home and Trailer Park Ordinance
Subdivision Ordinance
Floodway Regulations
Flood Zone Insurance Requirements
Septic Tank Regulations
Historic District Regulations
Nuisance Ordinance
As stated above, the County Health Department regulates the safe
placement of septic tanks. A minimum lot size of 20,000 feet is
required for septic tanks. Most households with septic tanks
are located within the extraterritorial area. Within the Town
limits, practically all structures are hooked up to the municipal
water and wastewater systems.

21
The historic district was established in 1981 and its
regulations are outlined in the historic district ordinance. In
brief, the historic district ordinance requires that land uses
in the identified district must remain consistent with the
historic theme. The designation of the historic district allows
the Town to apply for special funds to upgrade the area.
According to Chapter 113A of the General Statutes, the North
Carolina Environmental Policy Actq the Town can request develop-
ers to submit detailed statements outlining the potential
impacts of major developments. Windsor has no additional
requirements. Sedimentation Control regulations are in accord-
ance with the NC Sediment Pollution Control Act. All land
disturbing activities affecting one acre or more must file an
erosion and sedimentation control plan to be prepared and sent to
the Division of Land Resources. The lack of sand dunes in the
planning area precludes the need for a Dune Protection Ordinance.
Additional federal and state regulations enforced in the planning
area are outlined in Appendix A.

II
22
1
CONSTRAINTS: LAND SUITABILITY
tIntroduction
' The fundamental premise of land use planning is that
distinctions exist between land masses which make them suitable
' for various uses. Planning is also required because not all
lands are suitable for the same types of development. For
' example, the physical characteristics of the soil may permit
' compression, making development unsuitable. The following
section identifies and discusses areas with development constra-
' ints to guide future land use decisions.
tPhysical Limitations for Development
' Hazards
Two types of hazards may impede growth: man-made and
' natural hazards. There are three man-made hazard zones in the
planning area which should be excluded from development. These
' include the sand pits, the Industrial Park and the fuel oil
' storage sites.
The mined sand pits located south of the Town limits near
' the wastewater treatment plant present a hazard to development.
Also, the industrial park could present a hazardous development
' situation for other types of land uses. Flammable liquids, such
' as fuel oil, are stored in three locations in Town. Windsor Oil
Company storage tanks, on S. King Street, are located within a
' residential development. Davenport Oil Company and Spruill Oil
Company are situated on major thoroughfares. Land uses which are
' likely to develop around these sites would probably be commer-
1

23
Figure 7
FLOOD PRONE AREA
The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal tons Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.
•L.
h:
9 Flood Prone Area
aamerek
Source: U.S.G.S. Flood Prone Area Map, 1982.

24
Figure 8
URBO
C TABS AND
FOR St?'
SOILS —
SOIITABLE 4U
in part through a
financed Coastal Nanageaent
of this e'+P Maa tal 2oM Manage'
reparation the Berth CbY tha Loa nl atered by the
The P rov Wad by rovida +dai At, National
Grant P funds P 'hie i+ tianage1pe
r Progr+ei through as aaendad,
tal Resource
r Pent Act of ace . and Coas tion.
office °f Atwoapher lc Ad+inistra
;r Oceanic and
4
' Swampforest
Suitable Soils
4 Bettie County Soil Survey•
Source. 198•
1
r
r
r r
�rrr M
•,,r, �rvrr„
.r�rrr
wr r rrr
rrrr

25
cially-oriented. All development should be limited to low
density commercial establishments that would not be endanger
lives in the event of a possible leak or explosion. Nuclear
power and peat -fired energy -generating facilities would have an
impact on future planning decisions if located in the Windsor
area.
The flood prone area in Town is a natural hazard zone
where development is strictly regulated. The United States
Geological Survey flood prone area maps show that approxi-
mately 15 percent of the Town is located in the 100 year flood
plain (Figure 7). This means that areas within the 100 year
floodplain have at least a one in 100 chance of being inundated
in any given year. Davis Park and a most of the Bertie residen-
tial area are in the floodplain. In accordance with the Flood
Insurance Rate program, development is prohibited in the floodway
and limited within the floodplain.
Soils
Soils in the planning area were mapped by the Soil Conserva-
tion Service. The soil surveys were used to determine which
soils present development limitations due to wetness or high
shrink -swell potential. Approximately 21 different soil associa-
tions can be found in the planning area. Most are sandy loams
and loamy sands. While many soils in the area can support
development, including septic tanks, nearly 50 percent of the
planning area is covered by soils that are poorly drained and
have severe limitations for the placement of septic tanks (Figure
n
8). Most problems associated with these soils are their slow

26
permeability, poor filtering ability and wetness. Many local
sail types would also present a problem for building foundations,
as subsidence is likely. The soils located in the river flood -
plain deserve special merit. They are too wet for septic tanks
and also unable to serve as a filter for the foreign matter
washed from the streets.
Soil shallowness is not a constraint for most types of
development in the planning area. The shallowest surface layer
found is seven inches deep. This may be too shallow for certain
types of construction such as large-scale industry.
In summary, about 50 percent of the soils found in the
planning area have limitations for the efficient placement of
septic tanks and possible stability of building foundations.
As Windsor provides water and sewer service within the Town
limits, soil constraints are only a "real" problem within the
extraterritorial area. The implications for development tran-
slate into higher overall costs per unit for placement of fill
material to overcome these constraints. Large scale development
should be directed to areas where the soil has limited physical
constraints.
Water Supplies
The extensive groundwater reservoirs of the Coastal Plain
were considered a relatively unlimited source of water supply
tuntil recent years. Development in this region and adjacent
states has had an effect on the reservoir capacities and recharge
' rates. The NRCD Division of Environmental Management Ground-
1

27
water Section has been collecting data and monitoring water
levels in the region to determine groundwater conditions and
to evaluate the effects of large withdrawals. The following is
a brief synopsis of DEM's research findings titled Interim
Report of Groundwater Conditions in Northeastern North Carolina
(1977).
The Windsor area gets nearly all of its groundwater from
two hydrogeologic units: the Cretaceous aquifer system, and the
surficial system. The Cretaceous is the principal aquifer
from which Windsor withdraws its drinking water. Underlain by
granite bedrock, it is found roughly 250 feet to 600 feet
from the surface. The surficial wells topping the Cretaceous
are generally less than 500 feet deep.
Recharge of this aquifer is principally from precipitation
in the region. About 20 percent of the area's annual precipita-
tion enters the surficial aquifer. The water table aquifer
serves as the reservoir for recharge to the underlying Cretaceous
system. The site for recharge is generally to the west of
Windsor at the highest point to the land surface found near the
Piedmont.
The natural chemical and physical quality of groundwater in
' the Cretaceous aquifer system varies areally and vertically.
The water is generally low in mineral content and suitable for
' any purpose.
Relatively large withdrawals mainly in Virginia, have
caused a substantial decline in the potentiometric surface in
' most of northeastern North Carolina. A groundwater management

78
program has been instituted which will protect the greater
supply of water. Although being lowered gradually, there is no
immediate danger of limited supply of groundwater for the
region within the next ten years. This may be a concern for
future planning endeavors, however.
Excessive Ground Slope Areas
Excessive slopes are defined as areas where the predominant
slope exceeds 12 percent, i.e. where the change in elevation is
12 feet or more per one hundred feet of horizontal run. Most of
the land in Windsor is near the 20 foot contour line. Although
the area has some relief, there are no locations in the planning
area which have a slope of 12 percent or more (Bertie County Soil
Survey).
1
Fragile Areas
'
Fragile are the ^water and land environments whose
areas
physical and biological nature make them especially vulnerable to
damage or destruction by inappropriate or poorly planned develop-
ment. The fragile areas in Windsor are defined by the North
Carolina Administrative Code (NCAC) and are called Areas of
'
Environmental Concern (AECs). Other fragile areas, such as
'
swamp forests, are excluded from the NCAC list can be found in
the Windsor area (Figure 9). These swamp forests are regulated
'
by the U. S. Army Corps of Engineers "404" regulatory process.
Windsor has only one officially designated AEC, plus other

Figure 9 29
WINDSOR AREA AEC: THE
CASHIE RIVER
w
The preparation of this map was financed in part through a
grant provided by the North Carolina Coastal Management
Programs through funds provided by the Coastal Zone Manage-
ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.
1
' e •o
t
l5
1
Hardwood Swampforest
1

1
t
areas considered fragile.
The following
discusses the location
and nature of the local
AEC
and suggestions
for its management.
'
Public trust areas
are
those waters to
which the public has
a right of access.
They include all natural
bodies of water
'
and lands thereunder to
the
mean high water
mark (if applicable)
and all areas to which
the public has
rights of navigation,
1
access and recreation.
All
surface waters
in the area, including
' the Cashie River, are in the public trust.
These areas are significant in that the public has rights
' including navigation and recreation. In addition, they support
valuable commercial and sports fisheries, have aesthetic value
' and are important resources for economic development. These
' areas should be managed so as to protect the public's rights for
navigation and recreation.
' Acceptable uses should be consistent with the aforementioned
management objectives. The NCAC prohibits any uses that would
' negatively impact the public trust area. These include projects
' that would directly or indirectly block or impair existing
navigation channels, increase shoreline erosion, deposit spoils
below mean high tide, cause adverse water circulation patterns,
violate water quality standards or cause degradation of shellfish
' waters.
Although
not a natural system, the historical
integrity of
'
the Town also
deserves special attention. Several
structures in
tTown,
plus
the entire historic district, should
be protected
for their historical
value. Windsor strongly
supports the
'
preservation
of historic structures, as evidenced by
the designa-
30
0
1

I
1
1
LJ
1
Figure 10
RFCTSTFRFn NISTORTC PLACES IN WINDSOR AR 31
NATIONAL REGISTER
Elmwood, Windsor vic.
Freeman Hotel, Windsor
Historic Hope, Windsor
Jordan House, Windsor
King House, Windsor vic.
Rosefield, Windsor
Bartle County Courthouse (thematic nomination)
STATE REGISTER
Earley House, 402 S. Queen St: -
Freeman Hotel, E Side York St.
Gatling House, 106 Queen St.
J. B. Gillam House, 401 King St.
Gillam House, 103 Pitt St.
Cray-Gillam House, King St.
Mardre House, 208 King St.
•• Mizelle House, SW Corner King and Pitt Sts.
Mizelle House, 101 W Granville St.
Pierce House, 304 N King St.
Rosefield, 212 W Gray St.
St. Thomas Episcopal Church, 207 W Gray St.
Spellings -Bond -Sutton House, 402 King St.
Sutton-Hoggard House, 302 King St.
Windsor Castle, W End of Winston Lane
House, 206 King St.
Webb -Askew House, King St.
Matthews House, 204 King St.
Jeremiah Bunch House, S Side SR 1225 .75 mi N Jet. SR 1257, .6 mi Dirt Ln.
Dr. Henry Vaughan Dunstan's Office, King St.
BertlaCounty Courthouse, King St 6 Dundee Sts. '
Battle County Courthouse Annex, Dundee St.
Gillam House, N Side NC 308, .7 mi W Jet. SR 1223
Gillam-Mardre House. S Side NC 308, 1 mi W JCT SR 1225
Bond -Haste House, N Side NC 308, .4 at N Bypass 13
Tessis Mizelle House, N Side SR 1100 at Jet. SR 1102
Cray House, E Side NC Bypass 13 2 ml'N Jet. Bypass 17
Heckstall House, W Side Jet. SR 1100 6 SR 1101
Watson -Madre House (Elmwood). W Side SR 1101 . 5 mi S of Jet w/nc 308
Wolfenden-Hoggard House. SE Corner JCT SR 1300 6 SR 001
Carter -Mitchell -Cobb House. N King St.
Cherry House, York St.
Dail House, 313 King St.
Bowen House, 102 Queen St.
King House, SR 1116 .9 mi off NC 308
Jordan House, SR Side SR 1522 S of Jet. w/SR 1521
Hope Plantation. 4 mi. NW Windsor off ST HWY 308
Windsor Historic District
Source: DNRCD Division of Cultural Resources. 1985.

32
1
1
tion of an historic district. The area is prime for historic
preservation because of the amount of properties listed on the
National and State Registers of Historic Places (Figure 10). The
Freeman Hotel, recently relocated from Queen Street to the Davis
Park area, is currently under restoration by the Town. Historic
redevelopment is encouraged in Town to preserve these sites for
future enjoyment.
The area is also rich in archaeological heritage. The
NRCD Division of Cultural Resources (DCR) lists the area as an
ancient Indian habitat. Some of these sites are located within
the Town Limits. The DCR has mapped significant sites, but for
obvious reasons, is not able to publish this information.
DCR will ensure that new development in Town will not disturb
these sites. The Town acknowledges that these are an irreplace-
able resource that should be protected and preserved.
Areas which sustain remnant species are those places which
support endangered species of plants and animals. As of this
writing, none of these areas are located within Windsor's
jurisdiction. If any are designated, all precautions should be
taken to ensure the safe reproduction of these species.
AREAS WITH RESOURCE POTENTIAL
Although much of the land within the planning district
is developed, there may be particular areas which should be
excluded from or encouraged for development because of a particu-
lar man-made or physical impediment. In Windsor, probably the
1

Figure 11
PRIME AGRICULTURAL SOILS IN THE WINDSOR PLANNING AREA
NO
F]Swampforest \
aPrime Agricultural Soils
33
The preparation of this map was financed in part through a
y grant provided by the North Carolina Coastal Management
r Program, through funds provided by the Coastal Zone Manage-
' ^ ment Act of 1972, as amended, which is administered by the
Office of Ocean and Coastal Resource Management. National
Oceanic and Atmospheric Administration.
�
.WINDSO
h
taMN(R l. t r
rr'� —
�dsal..
^.� ^ � ••
Source: 1984 Bertie County Soil Survey.

II
34
II
most valuable resource areas are those sites whose overlying
soils are highly productive for agricultural uses.
' Several sites covered by prime agricultural soils are found
within the jurisdictional limits (Figure 11). The NRCD Division
' of Soil and Water Conservation and the U.S. Soil Conservation
Service assisted in gathering information necessary to map these
' soils. Compared to the existing land use map, most of the prime
tsoils are currently under agricultural production or are still
covered in forests. Also, these soils are some of the best in
' the region for urban development because of their ability to
support septic tanks, buildings and roads, etc. As of yet, none
' of these soils has been disturbed by development. The Governor's
' Executive Order Number 96, which promotes interagency coordina-
tion toward prime farmland preservation, should be a useful tool
' in protecting these soils from encroaching development.
Peat or phosphate mining in the Windsor area should not be
an issue. According to Dr. Lee Otte, an East Carolina Univer-
sity professor who is recognized as being the foremost expert an
the location and mining resource potential of peat and phosphate
deposits in the state, the deposits in the Windsor area are not
rich enough to be mined. This does not preclude, however, the
' possibility of developing a energy -generating facility for the
peat resources. Policies an mining and siting energy -generating
1. facilities are included in the "Resource Production and Manage-
ment" and "Economic and Community Development" sections of this
plan.

II
35
1
CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
'
Introduction
Development is often encouraged because of the increased
tax base it brings. Eventually, however, the local government
'
must spend some of its tax dollars to upgrade and expand the
existing facilities to accommodate such growth. The land use
tplanning
allows city officials to assess development
process
'
trends and analyze the requirements placed on the community
facilities. The following section discusses the existing
conditions of the water and wastewater treatment facilities,
the schools and the roads.
1
'
Water and Sewer Systems
The Town of Windsor operates municipal water and wastewater
tsystems
for customers within the city limits. Nearly all Windsor
residents are tied into the system. The South Windsor Water
'
Association, located two miles from Town, purchases all of its
water from Windsor.
t
The water system is designed for a usage capacity of 700,000
'
gallons per day. It consists of three wells. This system is
currently used at less than 30 percent of its capacity. Any peak
'
load brought on by a population surge could easily be accommo-
dated with the existing facilities. Additional residential,
commercial and industrial growth could occur without causing any
'
unacceptable demand on the system.
The Town sewer system is operating at less than 20 percent
'
of its intended capacity. It is designed for a treatment

36
t
capacity of 1.15 million gallons per
day (mgd).
The average use
is .2169 mgd, which represents an
IS percent usage
rate. During
'
peak times, the flow rate rarely
approaches 50
percent of the
design capacity. Development of
any type could
be accommodated
'
by the existing system, including
water -intensive
industry.
Solid Waste Collection and Police and Fire Protection
' The Town Sanitation Department provides garbage collection
and trash disposal within the Town limits. It employs three
' persons. Collection takes place once a week and is deposited at
the County landfill ten miles northwest of Town.
Police service is provided for all persons located within
' the planning area. The police force consists of six persons and
two squad cars. Regular patrolling is limited to in -Town
' locations only.
The Windsor Fire Department is manned by nearly 40 persons,
v
three of which are Town employees. Its service area extends
' almost ten miles outside the corporate limits. Agreements with
nearby Towns are designed to increase the fire fighting manpower
in the event of a major disaster. The Town operates two pumpers,
one tanker truck, and a patrol car.
Schools
The school facilities are very important in any community.
Southwestern Elementary and Bertie High School serve the area.
The elementary school, constructed in 1962, is operating at
approximately 95 percent of its capacity (Figure 12). The

Figure 12
PUBLIC SCHOOL FACILITIES
IN WINDSOR
Pupil/
Teacher
Grade
Year
School Capacity
Enrollment Allotment Ratio
Taught
Built
Bertie High School 1350
1180 83 1/14
9-12
1962
Southwestern School 1005
958. 53 1/18
K-8
1962
SOURCE: Bertie County School Superintendent, 1985
4

M
school's pupil/teacher ratio is somewhat high, refleCting'the
crowded conditions. If the population of school age persons
(6-17) should increase, contradictory to demographic predictions,
the Town would be forced to consider the need for another
facility. The county school system would be responsible for
funding such a project.
The Bertie High School is currently operating at 87 percent
capacity. Since its construction in 1962, there have been
several improvements made to the school, including a new eating
area and athletic field. The pupil/teacher ratio is considered
high, indicating no problems with adequate attention being given
to each student. In making projections for future demand, the
county school system's model examines only birth rates and does
not account for in -migration of students. Using this model, the
county does not anticipate any additions to the existing facili-
ties. Should an influx of students occur, the county would
need to consider constructing new facilities.
Roads
The planning area is served by seven primary roads (1981
Windsor Land Use Plan). This system is currently sufficient for
any traffic peaks which may occur. The NC Department of Trans-
portation estimates that Highway 139 the most widely used road in
the system, is extremely underutilized. It is currently used at
' less than 30 percent of its capacity. Any additional growth
could easily be accommodated by the present road system. The
' Town of Windsor incrementally makes minor improvements to the

II
CID
II
roads in Town. Major improvements will be minimal. Accor-
ding to the NC Department of Transportation, Transportation
' Improvements Program 1986-1995, one project is planned for the
Windsor area. The intersection of U.S. 13/17 will be redesigned
' and widened from that point into Windsor. Some secondary roads
will be resurfaced, but there will be no additional improvements
made to the local roads.
I 1 a
II
II
II

40
1
1.
1
ESTIMATED DEMAND
Population and Economy
Recent population trends in Bertie County have shown the
population to be modestly increasing since 1970. Despite recent
annexations, the population of Windsor has continued to slowly
decline. It is anticipated that this trend will continue in the
next ten years (Figure 13). The population is expected to be
2,078 by the year 1990. By 1995, it is projected that the Town
will lose 28 persons bringing the total to 21050 persons. If
the latter trend should reverse itself, most existing facilities
could adequately accommodate growth. An immigrant population
increase in school age children would require the Town to ask
the County to add on to the schools. The water and wastewater
systems could adequately accommodate growth as neither system is
currently used to 50 percent of its intended capacity. The
existing road system would be able to service any foreseeable
potential population growth.
Strains on the land would be minimal. There is currently
an adequate amount of open space within the Town limits that
could be converted to residential uses. Residences could be
placed in areas zoned residential that are not completely
developed.
Summary
The Windsor population is expected to slowly decline through
the year 1995 unless annexations reverse the trend. If this
trend should reverse itself, the water, wastewater and road
C

41
Windsor
Bertie
Figure 13
POPULATION PROJECTIONS
WINDSOR AND BERTIE COUNTY*
1985 - 1995
1985X
1990@
1995@
2,091
2,384
2,356
21,341
22,000
22,224
* 1984 Municipal and County estimates plus county
projections provided by the N. C. Department of
Administration.
@ Accounts for an additional 306 citizens resulting
from annexation effective as of June 7, 1987.

42
systems could adequately accommodate growth. Both the elementary
and high schools would probably require expansion. Land needed
for development would be available because zoning would ensure
that the land remain in its intended uses. Open spaces within
each zoning district could be developed to accommodate the
residential and accompanying service -oriented, non-residential
uses required.

43
1
1
1
1
1
1.
REVIEW OF 1981 POLICY STATEMENTS AND ACTIONS
During their October 1985 meeting, the Coastal Resources
Commission reviewed a land use plan update which included a
systematic analysis of all its 19BO policies as an introduction
to their 1985 land use plan update. This analysis included an
assessment of the effectiveness of the 1980 goals and a discus-
sion of actions and activities used to implement these policies
and goals. This "scorecard" approach gave the local government
an opportunity to reflect on how it achieved its previous goals
as a beginning step to formulating new policies. It also
provided the opportunity to evaluate the strengths and weaknesses
of the previous policies. It was recommended that all 1986 plan
updates adopt this "scorecard" approach to policy evaluation.
The following section includes an evaluation of the policies
addressed in the 1981 Windsor Land Use Plan Update. The planning
board critiqued the 1981 policies at one of its earliest meet-
ings. Each policy was analyzed for its content, means of
enforcement, and implementation strategy effectiveness. In a
"checklist" format, each implementation procedure was reviewed to
see how well each goal had been carried out since its formation.
In addition to providing an outlet for evaluating accom-
plishments since 1981, this proved to be an effective method for
reflecting on the substance of each policy. The planning board
members were asked to provide a grade on the substance and
effectiveness of the 1981 policies. The board gave Windsor a
"B plus". Most planning board members felt that the policy
statements were well thought out, but a few of the implementation
1

44
methods had not been fully carried out. However, only two of the
town's goals had not been attained. The following section
outlines the policies for each major issue in the plan and
describes the deficiencies found by the planning board.
RESOURCE PROTECTION
Listed below are condensed versions of the policies and
implementation strategies regarding Resource Protection in the
1981 plan. The symbol ** indicates that the implementation
strategies were not completely carried out.
Policies and Implementation Strategies
1. Town will discourage development that is not
compatible to the soils.
** a. Incorporate the Bertie County Soil Survey into
the development process.
2. Allow a limited amount of development in the AECs
consistent with the allowable uses outlined in NCAC Subchapter
7H.
a. Continue with the enforcement of CAMA reg-
ulations.
3. Town will not support development that has a
negative impact on an AEC or fragile area.
a. Continue with the enforcement•of CAMA reg-
ulations.
b. Town will not provide services to projects
that have a negative impact on fragile areas.

45
1
4. Continue to support the County's efforts in
hurricane and flood evacuation efforts.
a. Will participate in the County's hurricane
and flood evacuation plan for threatened areas.
Nearly all the above policies had been successfully followed
through by means of the implementation procedures decided upon.
One implementation strategy had not been carried out because
another agency was responsible for its implementation. The
Bertie County Soil Survey, completed by the Soil Conservation
Service in late 1984, was not available for public use in the
planning process. The survey has been recognized as an excellent
source of information for development decisions.
The Board felt that the resource protection policies were
strong and good, but all the issues listed in the CAMA guide-
lines were not adequately discussed. Issues such as the avail-
ability of safe drinking water and physical constraints to
development were not addressed. It was decided that the policies
formulated in the 1986 plan would address all issues and would be
enforced only with existing regulations and policies. Additional
efforts are often too much to expect without the assistance of a
full-time professional planning staff for the Town of Windsor.
RESOURCE PRODUCTION AND MANAGEMENT
Policies and Implementation Strategies
1. Support the preservation of prime agricultural
lands.
1

46
a. Use the completed Bertie County Soil Survey in
making land use decisions by 1982.
b. Utilize zoning ordinance, subdivision regula-
tions and CAMA permitting system to help manage resources.
2. Support all federal and state programs that
address the management of commercial forests and agricultural
lands.
a. The Town Administrator and Town Clerk will
provide information for proper forest and agricultural management
by 1982.
b. Utilize zoning ordinance, subdivision regula-
tions and CAMA permitting system to help manage resources.
' c. Use the completed Bertie County Soil Survey in
making land use decisions by 1982.
' 3. Support (when feasible) all federal and state
programs that deal with the management of commercial and recrea-
tional fishing.
' a. Utilize zoning ordinance, subdivision regula-
tions and CAMA permitting system to help manage resources.
' 4. Mineral areas will be developed in a manner such
that it will be consistent with the aforementioned policies.
' a. Use the completed Bertie County Soil Survey in
making land use decisions by 1982.
b. Utilize zoning ordinance, subdivision regula-
tions and CAMA permitting system to help manage resources.
The planning board felt that the above policies were
' very thorough and their means for implementation were quite

II
47
good. Tools currently in ''place were used to carry out each
policy. All issues were adequately addressed.
ECONOMIC AND COMMUNITY DEVELOPMENT
Policies and Implementation Strategies
1. The Town feels a commitment to state and federal
programs that address economic and community development.
Windsor would like to become further educated about the programs
available.
a. Will continue to participate in state and
federal programs by applying for Community Development Block
Grant funds by 1982.
2. Encourage development and redevelopment in and
around the town corporate limits.
a. Will continue to participate in state and
federal programs by applying for Community Development Block
Grant funds by 19B2.
b. Continue to use zoning and subdivision regula-
tions to direct development and redevelopment efforts.
3. Town will permit energy -generating facilities only
in areas away from population centers.
a. Town will use the provision of services as a
means of implementing a cluster development pattern by 1992.
b. Continue to use zoning and subdivision regula-
tions to direct development and redevelopment efforts.
4. Support tourism in the Windsor, area.
•* a. Investigate methods of educating the general
public about the historic district.

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5. Support limited access to Cashie River for recrea-
tional purposes.
a. Construct a public boat ramp in Windsor area by
late 1987.
6. Support downtown revitalization efforts for the
downtown business district.
a. Town will work with local merchants in develop -
ing proposals for downtown redevelopments.
Of the policies listed above, the only implementation
strategy not carried out was related to tourism. While the Town
of Windsor has actively recruited actions to promote the tourism
industry in Bertie County, there is no concrete evidence of a
document or similar effort to promote public awareness of the
historic district. The Town has also demonstrated active
support of the restoration of the historic integrity of the
Town by having purchased the Freeman Hotel for preservation.
The Board felt that the 1981 update was an excellent
effort. Due largely to the extra five years of experience, they
agreed that the 1986 plan would show continued improvement.

49
ISSUES AND POLICY STATEMENTS
'
The
formulation of specific policy statements regarding
'
growth and
growth management objectives is probably the most
important
contribution of this land use plan update. The
'
updated evaluation of the present population, the land and water
resources
in the Windsor planning area, and the existing methods
'
of policy
enforcement sometimes suggest the need to modify policy
'
to accommodate changes in the living conditions.
The Coastal Resources Commission requires that policies are
'
addressed
in five categories:
Resource Protection
Management
Resource Production and
tEconomic
and Community Development
Citizen Participation
'
Storm Hazard Mitigation
Each
policy category is intended to cover all issues associ-
ated with
growth for the Town in the coming years. The guide-
lines were prepared for a wide range of communities in coastal
North Carolina. The diversity within this area causes some of
' the issues not to be applicable to an inland Town like Windsor.
The policy statements in this section represent the result
of recommendations, input from citizens, and experience from the
' Planning Board in judging what is best for the future of Windsor.
These statements define the problem or issue, possible alterna-
tives for action, the selected alternative (s), and the means of
implementing and enforcing the chosen alternative. It must be
' noted that some issues are of such great importance that only one

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policy alternative exists. In other cases, several courses of
action are possible. The following section represents the Town's
best effort on policies to guide development in the planning
area.
RESOURCE PROTECTION
Windsor recognizes the need to protect its natural and
cultural resources. It is understood that these are an irre-
placeable asset which require protection. Often, these resources
represent an economic return to the area's residents through
exploitation. It is in the best interest of all citizens
of eastern North Carolina that these resources be protected and
managed to their highest potential.
The Town of Windsor is intimately familiar with the water
quality problems associated with the Roanoke and Cashie Rivers.
As an upstream user, Windsor realizes it contribution to the
pollution problems of the Albemarle system. As a result of this,
the Town will work to mitigate any problem which contributes to
the degradation of water quality in the Roanoke watershed.
The natural and cultural resources of the Windsor area have
been identified in the Constraints to Development: Land Suit-
ability section of this plan. It was decided that development
should not occur at the expense of the natural system. Convers-
ely, the Town feels development should not be impaired by the
characteristics of the natural system. For these reasons,
future growth should be targetted to areas where it is not likely
to jeopardize or be jeopardized by the natural system. The
1

51
following section details the issues concerned with development
and its relationship with the ecosystem.
DEVELOPMENT IN AREAS WITH CONSTRAINTS
The development constraints in Windsor were discussed
in the "Existing Conditions" section and relate to physical con-
straints brought on by the natural surroundings and the designed
capacities of the community facilities. Physical constraints
include man-made fuel storage areas, the sand pits, the indus-
trial park, high hazard flood zones, areas with soil limita-
tions for the safe placement of septic tanks, and natural fragile
areas. The Town recognizes ,the importance of safe septic tank
placement to prevent groundwater and well contamination and also
realizes its inability to change or correct the characteristics
of the soil.
Industrial land uses should be isolated from other types of
development because of possible dangers associated with industry.
A relict sandpit is located near the industrial park. Land uses
adjacent to these pits should be industrial because of the
inherent hazards associated with them. Fuel storage facilities
are located along S. King Street and on thoroughfares outside
of Town. Windsor acknowledges that any adjacent development
would be subject to well contamination from tank seepage and risk
from fire.
The floodway of the Cashie River is currently undeveloped.
It extends to areas located below the five foot contour line and
is covered by hardwood swampforest-type vegetation. Development

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in this area is regulated by the Town's ordinances on the
floodway and floodplain. The Floodway Regulation states that no
development can occur within 100 feet of the waterline and the
Floodplain Regulation ensures that all development within the
floodplain must be elevated above the limit of the 100 year flood
(Figure b).
Policy Alternatives
Possible policy alternatives for growth management and
development in areas with identified constraints include:
1. Amendment of subdivision regulations to include
stricter design standards.
2. Develop and adopt additional regulations in flood
damage prevention ordinance and zoning ordinance to regulate or
prohibit all development in areas with physical constraints.
3. Permit development in those areas, utilizing
current state, federal and local regulatory processes, i.e.,
CAMA, flood insurance, subdivision regulations and Corps of
Engineers 404 permitting system.
Policy Choices
Windsor adopts the following policies regarding development
in areas with constraints:
1. The Town recognizes the importance of regulating
development in the high risk flood areas of the Cashie River.
Therefore, the Town will continue to participate in Federal Flood
Insurance Program and promote enforcement through the Floodway
Ordinance and the Floodplain Regulation. The continued enforce-
1

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ment of these regulations will also assist in the conservation
of the valuable hardwood swampforest in the floodway.
Major developments, such as residential subdivisions, will
be discouraged from locating in the floodplain. Disincentives,
such as denial for water and sewer service, will be applied to
regulate development in this hazard area.
2. The Town recognizes that it is unable to change
the condition of the soils to accomodate development. As an
optimal solution, the Town would like to develop a long-range
plan to extend sewer lines to all development within the one mile
extraterritorial limit located on soils unsuitable for septic
tanks. This proposition is expensive, and does not address the
current needs of areas unable to utilize septic tanks.
The Town has decided to continue to support and enforce the
decisions of the County Health Department on septic tank place-
ment. A lot size of 20,000 feet is currently required for all
septic tank requests. Windsor will continue to support the Town
Building Regulations which legislate where construction can occur
based on soil characteristics.
3. Since industry can present hazards to other forms
of development, only similar land uses will be encouraged
around the industrial park and sandpits. Residential development
will be limited near the fuel storage tanks. The zoning ordin-
ance, which takes these factors into effect and consequently
promotes compatible uses, will be the enforcement method.
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AEC DEVELOPMENT
Windsor recognizes that the primary concern of the Coastal
Resources Commission is to protect coastal resources, especi-
ally Areas of Environmental Concern. The Town also shares this
concern for the protection and sound management of these environ-
mentally sensitive land and waters. Windsor is not a coastal
community, but it is an upstream contributor to the estuarine
system of the Albemarle. The'Cashie River, which flows into the
Albemarle system, is considered a public trust waters AEC.
Windsor shares the state's policy and management objective
for the AECs in the estuarine system. The state policy is "to
give the highest priority to the protection and coordinated
management of these areas so as to safeguard and perpetuate their
biological, social, economic and aesthetic values and to ensure
that development occurring within these AECs is compatible with
natural characteristics so as to minimize the likelihood of
significant loss of private property and public resources" (15
NCAC 7H. 0203). In accordance with this overall objective,
Windsor will permit those land uses which conform to the general
use standards of the North Carolina Administrative Code (15 NCAC
7H) for development in public trust waters. The maintenance
and protection of the Cashie River was a top priority for the
Town.
Policy Alternatives
The Town's policy alternatives for development in AECs are:
1. Continue to utilize the NCAC guidelines for
permittable uses in AECs.

55
2. Prohibit all development in AECs.
3. Enforce use of 75-foot conservation buffer zone
from the waterline. No development shall be permitted in this
zone.
4. Classify area 75 feet from waterline as "Conserva-
tion" on land classification map.
Policy Choices
1. The Town of Windsor has decided to continue to
utilize the current system for allowable uses in AECS as well as
Federal and State permit and review processes, i.e. CAMA and
Dredge and Fill.
2. The Town will encourage the establishment of a 75
foot conservation buffer zone from the river share in which no
development shall be permitted.
Implementation Strategies
1. Current State and Federal permit and review
processes will be employed to determine viable development
types in AECS.
2. Classify the area 75 feet from waterline as
"Conservation" to restrict development within this zone.
3. The Town's Floodway and Floodplain Ordinances will
limit and regulate the amount and construction of structures
within 100 feet of the waterline and in the floodplain.
OTHER FRAGILE AREAS AND AECS
In addition to the AECS, other fragile areas in Windsor
warrant special consideration. The fragile cultural resources

56
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include the archaeological sites recognized by the North Carolina
Department of Cultural Resources, and the historic structures
listed on the state and natipnal Registers of Historic Places.
The swampforests of the Cashie River floodplain, and other
wetlands areas subject to the Army Corps of Engineers 404
permitting system, are significant natural areas. Additional
resources that merit special consideration include the homogen-
eous wooded areas that serve as habitat for several wildlife
species.
Several significant archaeological sites have been located
in the planning area. Exact locations are available from the
Town Administrator. The NC Department of Cultural Resources made
several recommendations for management of these prehistoric
sites: effective treatment of known or discovered archaeological
sites may be accomplished through survey, mitigative recovery of
significant data, avoidance or preservation in place. Efforts
will also be made to provide recognition and protection through
such means as the National Register of Historic Places, if
appropriate, and through adherence to regulatory programs
administered by the North Carolina Division of Archives and
History. The Town recognizes the historical and scientific
importance of archaeological site and is committed to preserving
the valuable information they may contain.
The Windsor Historic District is recognized by the NC
Department of Cultural Resources for its historic and architec-
tural value. The Town recognizes that the historical integrity
of Windsor is an important part of its heritage. All efforts

57
should be taken to preserve these structures which represent the
1 Town's history.
' Several natural fragile areas, including the swampforests
and the floodplain of the Cashie River, plus other 404 wetlands,
' should be protected. They serve as valuable wildlife habitat
and also serve to mitigate the impact of flooding. The conserva-
tion of these resources is of such importance that no real
' alternatives exist except to offer protection for them.
Policy Choices
As with the AECs, these fragile areas are of such
importance that no reasonable alternatives exist but to offer
' protection for these sites. The amount of protection is reflec-
ted in these policy choices:
1. Prohibit development over archaeological sites
' listed by NC Department of Cultural Resources prior to an
investigation and clearance by the DCR.
' 2. Support preservation of swamp forest through
' strict enforcement of development standards in the floodplain.
3. Continued support of the Windsor Historic Preserva-
tion Committee to develop a program of "donating" historic
properties to the Town.
' 4. Discourage development in all fragile areas.
Implementation Strategies
1. Work with building permits officer to require
' thorough investigation of archaeological site before permit is
granted.

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2. Classify areas within 75 feet of water line as
"Conservation" on land classification map.
3. Continued support of Floodway and Floodplain
ordinances.
HURRICANE AND FLOOD EVACUATION NEEDS
The policy statements regarding Hurricane and Flood Evacua-
tion Needs are addressed in the Storm Hazard Mitigation and
Post -Disaster Reconstruction section of this plan.
PROTECTION OF POTABLE WATER
The availability of potable water is a critical concern
because of the large drawdown resulting from operations upstream
of Windsor and in adjacent states. Relatively large withdrawals
of water have created a substantial decline in the potentiometric
surface. This gradual decline in the water table will cause
no immediate danger for the next ten years, but should be a
strong concern for future planning endeavors. The Windsor
planning area is included in a Division of Environmental Manage-
ment groundwater management program which will protect the
greater supply for the region.
There are no alternatives other than protection of the
limited amount of groundwater. The Town recognizes the impor-
tance of the limited regional^supply of groundwater and the need
for its protection.

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Policy Choices e
1. Support state efforts to manage groundwater
withdrawals in the region.
Implementation Strategies
1. Continue to support Division of Environmental
Management Groundwater Division efforts to protect water in
Capacity Use Area.
USE OF SEPTIC TANKS
Approximately one-half of the soils in the planning area are
unsatisfactory for the safe placement of septic tanks. Unless
care is exercised in the permitting of septic tanks, the health
and safety of area residents could be at risk. Unsatisfactory
performance of soils around septic tanks could contaminate
groundwater wells. The Town recognizes that it has no power over
the soils: they cannot be altered in any way to improve their
efficiency. Because of these restrictions, little can be done
for policy. The optimal solution would be to have all develop-
ment situated an pockets of incompatible soils hooked into the
municipal wastewater treatment plant.
Policy Alternatives
1. Require a lot size of 20,000 feet for septic tank
placement.
2. Where use of septic tanks is unavoidable, the Town
supports implementation of techniques to improve the efficiency
of septic tanks, i.e. mound systems and waterless systems.

II
we,
3. As a minimum, any septic tank installation applica-
tions must meet State and County regulations.
' 4. Encourage everyone in Town to hook up to Town's
wastewater treatment facility.
' 5. Develop a long-term plan to tie in most development
pockets within the one -mile area to the wastewater treatment
system.
' 6. Encourage property owners to check with the
Sanitation Officer prior to purchasing or considering building
' on a lot.
Implementation Strategies
' 1. Enforcement will remain the responsibilities of
'
the County Health Department, which grants permits for septic
tanks, and the Building Inspector.
STORM WATER RUNOFF
'
Non -point pollution is considered a high priority for the
'
Town of Windsor. The amount of fertilizers, pesticides, oil
contaminants and litter which eventually enter the river system
'
is increased significantly by a heavy rain. The swampforests
and other vegetation located along the river offer a water
'
filtering system that works naturally to sift out or uptake any
pollutants before they can enter the creek system. Storm water
'
runoff contributes to many of the water quality problems often
'
discussed by commercial fishermen and recreational boaters in the
area. Agricultural runoff typically contributes a significant

61
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portion to the nutrient load of the riverp thereby adding to
conditions most likely to cause an algae bloom.
The Town has no real policy options except to work to
mitigate storm water runoff. Several effective techniques for
slowing down runoff are prohibitively expensive. The Town is
seeking inexpensive solutions to this problem because of the
limited amount of funds available. Windsor has decided to
work to solve this problem by utilizing the natural system for
passive control of non -point pollution.
Policy Choices
1. Development adjacent to the AEC must be designed
so that runoff will not violate water quality standards.
2. Encourage development and maintenance of vegeta-
tion around shoreline as well as other waterways in order to
preserve as much of the hydrological regime as possible.
3. Limit the amount of impervious surfaces in all
lots within 75 feet of the waterline and encourage their develop-
ment so that no more than 20 percent of the total land surface is
covered in materials with a high runoff potential.
4. Target any development near the river to soils
where natural infiltration is not good.
Implementation Strategies
1. Continue to employ efforts of CAMA permitting
system and Corps of Engineers 404 permitting in determining
development types which do not violate water quality within
their jurisdiction.

62
2. Reclassify land classification map to "Conserva-
tion" for areas 75 feet from waterline to regulate land uses near
the river.
3. Development in Conservation zone will be enforced
on a case -by -case basis by the Planning Board.
4. Regulate land uses within conservation buffer zone
(for description of land uses, see definition of "Conservation"
' in Land Classification System section of this plan.
5. Continued enforcement of Floodway and Floodplain
F
ordinances.
MARINA AND FLOATING HOME DEVELOPMENT
Marinas are an important convenience for boaters. They
often generate revenue through slip rental, repairs and gasoline
sales. But marinas are known to degrade the water in which
they are located. The Cashie River is not large enough to
accommodate a big marina facility. Windsor is currently con -
strutting a small public boat ramp near York Street. The
policies stated below relate to a scaled -down boat ramp for use
with small boats.
Policy Alternatives
' 1. Encourage the development of marinas.
t 2. Discourage the development of marinas and location
of floating homes in light of their contribution to water
Iquality degradation.
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Policy Choices
1. Allow marinas, but encourage their design and
size to not violate water quality standards and the integrity of
coastal wetlands.
Implementation Strategies
1. Continue working with CAMA permitting system in
regulating siting of marinas.
2. The Planning Board will examine each marina
development request on a case -by -case basis.
INDUSTRIAL IMPACTS AROUND FRAGILE AREAS
The policies above address development of all types in and
around fragile areas. Industry, another form of development,
should be exposed to no different standards than other types
tof
development. In any
location decision, industry must comply
with the policy statements
above.
tIt
can be seen that the Town wants to mitigate the effects
'
of all development on
the natural and cultural resources.
It wants to do what it can
to protect these resources. There-
fore, in an effort to
maintain consistency in the policies,
no real alternatives exist
on this issue.
'
Policy Choices
1. Location of
industries in and around fragile
'
areas shall be discouraged,
except water -dependent industries,
such as commercial fishing.
2. All suitable industries should be targetted to
' the industrial park.
11

64
e
3. Industry should be targetted away from prime
agricultural lands.
Implementation Strategies
1. Continued support of CAMA and 404 permitting
systems, Building Inspector and County Building Requirements.
2. Areas within 75 feet of water's edge will be
classified as "Conservation" on land classification map.
3. Continued work with the Bertie County Economic
and Industrial Development Commission.
4. Continue to enforce the Town's Zoning Ordinance.
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RESOURCE PRODUCTION AND MANAGEMENT
'
Appropriate is
management of productive resources very
'
important to any locality. In most cases, the productive re-
sources are intricately tied to the economic fabric of the
'
area. It is, therefore, wise to manage these resources to the
best of their productivity and to ensure their existence for
'
future The resources in Windsor
generations. major productive
'
are related to agriculture, forestry and commercial and recrea-
tional fisheries.
PRODUCTIVE AGRICULTURAL LAND
'
Agriculture, as discussed in the Existing Condition section
'
of this plan, is an important component of the local economy.
Farming brings in a large amount of income to the area through
'
the actual sale of farm commodities, farm supplies and equipment.
A large portion of the planning area is currently or has been
'
under cultivation. The Soil Conservation Service has identified
' and mapped the soils in the planning area which are considered
to be some of the best in the county for agricultural producti-
vity (Figure 7). These soils occupy a large amount of land in
the planning area.
' In policy, the Town could opt to conserve these farm sails
for future use by restricting any development from occurring on
1 them. Windsor realizes the importance of agriculture to the
' economy, but feels that there is an excess of land under cultiva-
tion already. This glut in farmland, and subsequently, farm
' products, has caused farm prices to fall and foster economic
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hardships for the family farmer. Programs, such as the Payment-
' In -Kind, encourage farmers to take their land out of production.
The Town feels that it should not contribute to an already bad
problem by requiring that certain agricultural soils be restrict-
ed from any other uses. Windsor is pro -development and will
not restrict, under the consent of the owners of tracts in
' question, any land use from locating on agricultural soils. The
' Town would like to encourage the owners of the tracts with
known prime soils to implement the wisest management practices
' available to keep that land productive.
Policy Alternatives
' 1. Town wishes to protect agricultural lands identi-
fied as "prime" by the SCS and Division of Soil and Water
Conservation.
2. Prohibit any land use other than agriculture,
forestry or conservation on prime agricultural soils.
3. Promote conservation of these lands by encouraging
owners of these tracts to implement the Best Management Prac-
tices.
4.. Classify agricultural lands as Conservation -A,
implying that they should be precluded from development.
Policy Choices ,
1. Town will not encourage preservation of "prime"
agricultural soils.
2. Encourage owners of these tracts and other areas
under cultivation to implement the Best Management Practices..

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3. Allow development providing it is in concert with
the permitted land uses in the zoning ordinance.
Implementation Strategies
1. Continue to work with Agricultural Stabilization
and Conservation Service and Soil Conservation Service workers
in getting farmers to adopt Best Management Practices.
2. Continued enforcement of the zoning ordinance.
EXISTING AND POTENTIAL MINERAL PRODUCTION AREAS
Up until now, the Windsor planning area has never had a
problem with open -pit mining. Peat mining operations may soon
be underway in adjacent counties, and the spill -over effects
may negatively impact Windsor. The planning area has pockets of
peat and phosphate, but the peat soils are low BTU and would be
uneconomical to mine at this time. Sand has been mined in the
planning area for assistance in local highway construction
projects. Because of the possible negative impacts of all types
of mining in the planning area, any mining activities proposed
will be required to apply for a special use permit which will
be granted on a case -by -case basis.
Policy Choices
1. Town discourages any type of open -pit mining within
the one -mile jurisdictional limit of Town. Any mining activities
proposed must apply for a special use permit which will be
granted on a case -by -case basis.
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Implementation Strategies
1. Review applications for mining special use permits
to Planning Board.
2. Rewrite zoning ordinance to include require-
ment for special use permit for all mining operations, including
sand mining.
A
COMMERCIAL AND RECREATIONAL FISHERIES
The commercial fishing industry is important to the local
economy. Several independent full-time commercial fishermen
live and work in the Windsor area and a crab processing plant
is located in the planning area. Concern has been raised by
commercial fishermen and Division of Marine Fisheries techni-
clans about the effect of runoff on the fisheries industries.
Runoff from drainage ditches and non -point pollution from urban
development have been detrimental to fishing waters through
salinity alteration and contamination to the estuarine system.
Concern has also been raised over incidences of fecal coliform,
largely from septic tank seepage, being identified in shellfish
beds in several coastal areas. In order to support the commer-
cial and recreational fishing industries, the Town needs to
implement techniques to maintain water quality.
To remain consistent with the aforementioned Resource
Protection policies, the Town has elected to take all measures
possible to protect the fisheries. The Town has chosen to
protect the commercial and recreational fishing areas within
the Town's jurisdiction.

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Policy Choices
1. Town will protect the commercial and recreational
fisheries areas within the Town's jurisdiction.
2. Establishment of Conservation buffer zone of 75
feet between all development and waterline.
Implementation Strategies
1. The CAMA and 404 permitting system, as well as the
Town's subdivision and floodway ordinances, will provide suffi-
cient enforcement for this policy.
2. The County Health Department, largely responsible
for the safe placement of septic tanks, will be responsible for
minimizing the likelihood of contamination of fishing waters from
the effluent of septic systems in unsuitable soils.
3. Classify areas within 75 feet of water as Conserva-
tion.
COMMERCIAL FORESTRY
As shown in the "Existing Conditions" section of this
plan, many of the Town's industries rely on the timber business
for their existence. As a result, Windsor feels the need to
protect the forestry industry locally.
Policy Choices
1. Town supports the forestry industry and its
related businesses.
2. Town encourages use of best deforestation/reforest-
ation techniques available.

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Policy Alternatives
1. Classification of "Rural" to all commercial
forestry tracts within the planning area.
2. Work with the Forestry Service to ensure best
management techniques are employed throughout the planning area.
OFF -ROAD VEHICLES
The mention of "off -road' vehicles in coastal North Caro-
lina typically conjures ideas of four-wheel drive type vehicles
driving up and down the sandy beaches of the ocean front. In
Windsor, there is no problem with these types of vehicles
operating on the beaches. Since this is not applicable to the
development process in Windsor, no policy was formed on this
issue.
IMPACTS OF DEVELOPMENT TYPES ON RESOURCES
Windsor, as discussed in the "Existing Conditions" section
of this plan, is currently not undergoing large amounts of growth
like some other eastern North Carolina cities. It is, therefore,
not experiencing the same pressures for development as other
Towns.
The Town views itself as being in a position to accomodate
growth and development. Consistent with the aforementioned
policies, the Town is pro -growth as long as the development is
not environmentally degrading. The limitations imposed by
the Town's policies on the protection of sensitive natural and
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cultural resources must not be violated to accomodate any type

71
of growth. Residential, commercial and industrial land uses must
meet these goals of the Town.
Policy Choice
1. Town is pro -development as long as it is not
environmentally degrading as determined by the NRCD Division
of Environmental Management.
Implementation Strategies
1. The Town will work with the Bertie County Industri-
al and Economic Development Commission in recruiting low -pollu-
tion industries that meet the Town's goals.
2. All industrial requests will be reviewed on a
case -by -case basis by the Planning Board and Town Council.

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ECONOMIC AND COMMUNITY DEVELOPMENT
The analysis of the present conditions of the population and
economy of the Windsor planning area showed no major changes in
the general economic atmosphere of the area. The Town is
considered to be fairly industrialized, but it would like to grow
and prosper more. It is, therefore, very concerned about
developing policies setting the stage for economic and community
development.
The industries already located in Windsor are proof of its
amenities to a manufacturing firm. Windsor is situated on a
major north -south highway; has ample housing, recreation and
church facilities; a plentiful labor supply; and incentives for
industry. The industrial park is continually growing and the
potential exists for an explosion of industrial growth in the
Windsor area. Policies need to be in place to accommodate this
growth, when it occurs.
The following section outlines growth policies which
have an impact on land use decisions. These policies define the
goals Windsor has set for itself over the ensuing ten years.
Particular issues, related to growth and the Town's commitment to
economic development, are discussed below.
LOCATION AND TYPES OF INDUSTRIES DESIRED
Windsor, as discussed in the preceding section, is blessed
with several natural and cultural resources. It sits on the
banks of the Cashie River in an area dense with hardwood and
pulpwood forests. Most of the soils in the planning area are

73
productive well -drained, upland soils that are very well -suited
for agricultural purposes. Windsor has many cultural amenities,
including many homes listed on the national and state Registers
of Historic Places.
The economic activities in the area take advantage of these
resources. The majority of the area's industries are related to
lumber production and when combined, the timber industries employ
nearly 70 percent of Windsor's total manufacturing labor force in
the planning area. Farming is also an economic activity in the
region employing dozens of persons through farm labor, proces-
sing and farm equipment sales. In addition, several fishermen
and seafood processing operations are located in the planning
area. The tourism industry is also very strong in the area with
the nearby Hope Plantation and the Windsor Historic District
attracting many visitors daily.
Windsor encourages the continued development or expansion of
resource -intensive industries, but would also like to recruit
additional manufacturing types to help diversify the indus-
trial economy. Traditional industries, like furniture manufac-
turers, agricultural processors, and timber companies will always
be welcome in the planning area. New, high -skilled industries,
such as electronics, automobile manufacturing, or plastics
construction firms, would diversify and strengthen the local
economy. The Town encourages the consideration of industries to
the planning area.
All industries considering locating in the Windsor planning
area must be low -pollution, light manufacturing industries in

74
order to remain consistent with the aforementioned resource
policy statements. All industries must be consistent with the
Town's policies to maintain water quality and the natural
resources. The Town Board will review each industrial request
to ensure consistency with the Town's objectives stated above.
Several industrial sites are available in the planning area.
Specific sites are available in the industrial park and other
areas zoned for industry. All of these sites have good access to
several transportation modes and are currently served by the
water and sewer system.
Policy Choices
1. Encourage high -skilled industries such as elec-
tronics, automobile, or plastics firms which take advantage of
the abundant labor supply to try to diversify the industrial
economy.
2. Encourage low -pollution, light manufacturing types
which are compatible with resource protection, production and
management goals and policies and discourage environmentally
degrading industry.
3. Encourage resource -dependent industries such as
plywood processors and furniture manufactures that utilize the
natural resources in the planning area.
4. Encourage agricultural products processing plants
which take advantage of the local farming economy.
5. Industrial sites will be confined to the industrial
park and other areas zoned for manufacturing in the planning
area.
1

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1.
1
Implementation Schedule
1. Town will inform the Bertie County Industrial and
Economic Development Director of its intentions for industrial
development and will work to recruit the industrial types listed
above.
2. Zoning ordinance, CAMA and 404 permitting systems
will regulate the development of industry in specific areas.
COMMITMENT TO PROVIDING SERVICES
As indicated in the discussion on the physical limitations
for development, many of the Town's soils are not conducive to
septic tank usage. Optimally, all developed areas with soil
limitations should be tied into the wastewater treatment plant.
Currently, nearly all of the Town's residents are tied into the
wastewater treatment plant, and sewage lines are available in all
parts of Town. By August of 1987, the Town intends to lay more
sewer pipes to the area north of Town. This area may be annexed
within the next five years. 11
As an incentive for industries considering locating in the
Windsor planning area, the Town has had a policy of providing
services to all new industries which choose to locate in the
area. Special discount rates for electricity are available to
new industries, as well. The amount of the discount is dependent
on the number of persons guaranteed employment when the plant
opens for business.
Windsor is committed to providing basic services to serve
increased development in the area. Each request for extension
1

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76
i
of piping for water or wastewater service is examined by the
1 Town Board at the time of the request.
1 Policy Choices
1. First priority in delivery of services is to areas
1 classified as "Developed" on land classification map. Second
priority is to "Transition" areas.
1 2. Residential customers will be served first.
1 3. Industrial uses will be examined on a case -by -case
basis.
1
DESIRED URBAN GROWTH PATTERNS
1 The trends in the population of Windsor has been slight
1
growth over the past 15 years. The extensive growth in Windsor
is not a priority issue, but the Town's municipal services are
1
able to accommodate significant growth if the trends reverse
themselves. Given the current theoretical usage rates for the
1
wastewater treatment system, an additional 9,000 can be
persons
1
added if necessary. The water system can accommodate an
additional 79000 persons. The population projections predict a
1
slight growth trend which can easily be accommodated by these
facilities.
1
In order to avoid possible overloading of its municipal
facilities, the Town would like to place a ceiling on its
1
growth. The growth limits are defined by the design capacities
1
of the water and wastewater facilities. This is to avoid
excessive spending on upgrading the systems to serve more
1
customers. Windsor would like to encourage population growth up
1

77
to 9,000 persons. When that population goal is reached, the Town
would like to reserve the right to reevaluate this policy.
Policy Choices
1. Limit growth to 9,000 persons. Urban patterns will
be limited by zoning ordinance.
Implementation Schedule
1. Urban growth patterns and densities will be limited
by the subdivision ordinance, the County Health Department and
the zoning ordinance.
REDEVELOPMENT OF DEVELOPED AREAS
The Town of Windsor's policy on redevelopment of developed
land has been demonstrated over the past five years. The Town
has been awarded a Community Development Block Grant to improve
substandard housing within its jurisdiction. Windsor has also
demonstrated its commitment toward historic preservation. by
having purchased and relocated the historic Freeman Hotel.
Downtown revitalization has been encouraged for the past
several years, and a fair amount of progress has been made
toward this goal. The Town feels very committed to this effort
and will assist in any way to improve this asset.
The SLOSH model shows that in the event of a major hurri-
cane, the Cashie River would flood most of the Bertie residen-
tial area in Town. Non -conforming uses destroyed by flood or
fire would be reconstructed according to the zoning ordinance and
Floodway and Flood Plain ordinances. Standards for construction
and elevation levels are regulated by these ordinanes.

7s
Policy Choices
1. Continued support of historic redevelopment in
Town. The Town will work to secure funds for rehabilitation
projects.
2. In the event of destruction by a fire or storm,
redevelopment will occur in accordance with the zoning ordinance.
Non -conforming uses will be reconstructed according to the
standards of the Floodway and Flood Plain ordinances.
3. The Town supports the redevelopment of substandard
housing within the Town limits.
Implementation Schedule
' 1. The Town will coordinate with private individuals
' and organizations to secure financial support for downTown
beautification efforts.
2. Town will consider the feasibility of applying for
additional Small Cities Community Development Block Grant funds
' to rehabilitate substandard housing located in Town limits.
COMMITMENT TO STATE AND FEDERAL PROGRAMS
The Town of Windsor is receptive to State and Federal
Programs which provide improvements to the Town. Windsor will
continue to fully support such programs that provide necessary
resources to meet identified community needs that compliment the
economic and community development goals of the Town. Of
particular significance is the N.C. Department of Transportation
Road and Bridge Improvements program. Highways 17 and 13 are
vital to the economic health of Windsor. Several improvement

79
projects, including four-laning Highway 17 between Windsor and
Edenton and four-laning Highway 13 between Windsor and Ahoskie,
would greatly benefit the Town. Windsor will financially support
transportation improvement programs when able and when the
proposed project is demonstrated to be consistent with the
Town's goals for economic development.
The Erosion Control program, carried out by the Agricultur-
al Stabilization and Conservation Service and the Soil' Conserva-
tion Service, are especially important to the farming community
in the planning area. The Town supports the efforts of these
agencies, including the implementation of Best Management
Practices to mitigate soil loss through erosion. To assist in
reaching this goal, the Town has established a policy to encour-
age the use of pervious surface materials and a natural vegeta-
tive buffer zone to reduce the sediment load from entering the
Cashie system (See Resource Protection policy statements). The
Floodway and Flood Plain Ordinances will be the tools to imple-
ment this policy.
The National Guard has a training center located near the
industrial park. Windsor is pleased to host this facility in
their planning area. The expansion of the existing National
Guard facilities will be supported by the Town, but the construc-
tion of additional military facilities, like an Army or Air
Force base, will be discouraged in Developed or Transition areas.
Windsor does not want to house any large military facilities
because of the restrictions it, would impose on the community.

80
All proposals for expansions of existing military facilities will
be examined by the Town Board at the time of the request.
ASSISTANCE TO CHANNEL MAINTENANCE
Proper channel maintenance is not a pressing issue in
Windsor. There is so little commercial boating traffic on the
Cashie River, the Town cannot justify spending a lot of money to
keep the waterways clear. Smaller, shallow water recreational
vessels most frequently use the river. Since there is little
need for channel maintenance, the Town does not feel a commitment
to provide assistance for such projects.
Windsor will not support financially channel maintenance
projects. Windsor feels that this should be the responsibility
of the State. The Town will assist, however, in locating borrow
and spoil sites within the planning area.
ENERGY FACILITY SITING AND DEVELOPMENT
In 1984, there was considerable debate over locating a
VEPCO owned, coal-fired energy -generating facility in rural
Bertle County. This proposed project attracted the concerns of
several hundred Bertie County residents at an informational
public hearing held in October ,of 1984. Residents of Bertie
County were divided on the issue of locating this plant in the
area. Several dozen jobs were planned for the site, but the
environmental integrity and quality of life in the County were
at risk. The controversy came to rest in January 1985 when
several endangered red cockaded woodpeckers were located on the

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proposed plant site. It is illegal to disrupt any endangered
species from their habitat.
In addition to plans by VEPCO, the proposed development of
peat mining operations in Hyde, Tyrrell and Washington Counties
has brought on the possibility of locating peat-burning'facili-
ties near the raw material source. Because of Windsor's location
to major highways, this may be a possibility in the near future.
The Town believes that the development of energy -generating
facilities should be discouraged within the one mile jurisdic-
tional area. These types of facilities will be subject to a
special use permit granted by the Planning Board. If approved,
all facilities will be restricted to "Rural" areas as per the
land classification map. The provision of public services to the
proposed operation will be determined by the Town Board at the
time of the request.
TOURISM AND BEACH/WATER ACCESS
' Windsor has demonstrated its commitment to public access on
the Cashie River within recent years. The Wildlife Resource
Commission allocated funds for a boat ramp on the river and
construction was underway as of spring 19B7. Windsor is actively
involved in a public access site donation program. Recently, the
Thompson Company donated a tract of land to the Town under .the
provision that a public boat ramp be constructed on site. The
Town, in turn, gave the land to the Wildlife Resources Commission
for ramp construction. There are other plans for the Town to

82
purchase additional waterfront property to develop more public
' access ramps.
' The Town is also committed to increasing tourism in the
area. Windsor's efforts to expound on the historic theme of the
' area show the Town's sense of commitment for increasing tourism.
Windsor
will continue to support the Historic Albemarle Tour
'
Highway
as well historic like the
Hope Planta-
program, as sites
tion.
The Town will continue to support the efforts
of the state
tourism
agencies increase the tourism industry.
'
Policy
Alternatives
1. The Town could establish no additional
policies or
courses of action for development of these industries assuming
that the existing facilities are sufficient.
2. The Town could encourage acquisition of undevelop-
able waterfront properties for public access sites.
3. Development of a program for "donations" of
waterfront property for public use.
4. Continued support for historic preservation,
downTown revitalization, and other methods to increase tourism.
Policy Choices
1. The Town will continue to encourage acquisition of
undevelopable waterfront properties for public access sites.
2. The Town will continue to support its public
access site donation program.
n
3. Continued support for historic preservation,
downTown revitalization efforts and other methods and agencies
to promote tourism.

83.
TYPES, DENSITIES AND LOCATION OF ANTICIPATED DEVELOPMENT
Overly dense development is not a problem in Windsor, nor
is it anticipated to become a problem during the next ten years.
Within the past five years, the land use trends have shown
residential growth to occur in areas on the northern fringes of
Town and in established neighborhoods within the city limits.
Commercial growth has expanded along Granville Street and the
industrial park has been able to house several new industries
0
within recent years. Windsor would like to see continued
development on sites which are best able to accommodate growth
and where support services, like sewer and water, are feasible
and practical to provide. Much of the growth in recent years has
been outside the flood and hurricane hazard areas identified in
Figure 11. Industrial growth will be targetted to the industrial
park and other areas zoned for industry within the planning area.
' Policy Choices
1. To control densities, the Town will continue to
enforce the subdivision ordinance with minimum specified lot
sizes for lots without public water and sewer.
2. Windsor will continue with efforts to extend sewer
' lines to accommodate additional customers.
3. The Town will ensure that future growth is consis-
tent with the above policies in Resource Protection, Resource
' Production and Management. Also, the growth must be consistent
with the zoning ordinance and additional goals of the community.
1
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HURRICANE AND STORM HAZARD MITIGATION
INTRODUCTION
Hurricanes and severe coastal storms represent serious
threats to people and property on the North Carolina coast.
North Carolina has the second highest incidence of hurricanes
(Neumann et al., 1978). To date, North Carolina has experienced
23 major hurricanes since 1890. This averages to one major
hurricane every four years. In addition to hurricanes, tropical
storms and "northeasters" present serious threats to eastern
North Carolina. Recently a major hurricane originally classified
as a Category 5 storm, skated past inland North Carolina and
brushed a small stretch of Hatteras Island as it moved northward.
If the storm had made landfall near the mouth of the -Pamlico
River, as had been predicted by the National Weather Service at
one period during the storm threat, much of eastern North
Carolina could have been destroyed in its aftermath.
In order to effectively prepare for the hazards of storms,
experts recommend adoption of a plan which encompasses all
aspects of the storm period. This plan should delineate areas
most likely to sustain damage, methods to keep areas affected to
a minimum, and guidelines for reconstruction after the storm.
8ertie County was in the process of adopting a storm hazard
mitigation plan as this Plan is being written. Prior to this, a
Disaster Relief and Assistance Plan had been adopted. One annex
of this plan briefly addressed several components of the storm

3
85
1
hazard mitigation effort, the evacuation and post -hurricane
strategies, but no comprehensive hurricane mitigation plan
existed.
During the preparation of the 1986 Bertie County Land.Use
Plan Update, the consulting planner and County Emergency Manage-
ment Officer spent several hours discussing possible post -disa-
ster reconstruction policies for the county. Excerpts from their
discussion and policies from the Disaster Relief and Assistance
Plan are used as a reference in this plan.
The CAMA Land Use Plan guidelines require that procedures
for pre -storm mitigation, recovery, and immediate and long term
reconstruction are addressed in each plan. The purpose is to
assist Town and county officials in managing development in
potentially hazardous areas and to be able to expeditiously "snap
back" after a disaster. The first step taken to assess the
hurricane vulnerability of a site is to analyze the types and
locations of physical hazards within the planning area. An
estimate of the amount of people and property that would be
exposed to the hazard is also required. The following section is
a discussion of the storm hazard mitigation, post -disaster
reconstruction policies and evacuation plans for the Windsor
area. All policies, unless otherwise referenced, are incorpor-
ated from the Disaster Relief and Assistance Plan and the
workshop between the County Emergency Management Coordinator and
the 1985 Bertie County Land Use Plan update consulting planner.
1

I
85
HAZARDS MAP
' The areas most vulnerable to the devastating effects of a
' hurricane or other major coastal storm are identified in Figure
13. This map is the product of a computer model called SLOSH
(Sea, Lake and Overland Surge from Hurricanes). The SLOSH model
was developed by the U.S. Army Corps of Engineers to simulate the
' height of the storm surge from hurricanes of a predicted sever-
ity within a particular area. The National Weather Service ranks
hurricanes into Categories 1 through 5 based on their wind
speeds. The SLOSH model analyzes each hurricane category
scenario and provides areal boundaries where flooding is expected
to occur. For example, the Category I and 2 hurricanes, with
wind speeds up to 110 miles per hour, would produce a storm
surge that would flood a small stretch of land along the river
(Figure 14). The Category 3 storm, defined by winds up to 130
mph, would inundate points further landward than the Category 1
and 2 storms. The Category 4 and 5 storms, the highest intensity
storms possible, would push the water to areas still farther
landward. In this scenario, water levels would be highest
during the threat of the Category 4 and 5 hurricanes. These
storms are the strongest, but are least frequent in the region.
Windsor is an inland community located approximately 45
miles directly from the ocean shoreline. Although Windsor is
considered to be an inland community, hurricanes pose a serious
threat to the Windsor residents. Winds from a storm are a
concern for the area residents, but flooding from the Cashie
River would significantly impact the planning area. Floodwaters

u
Figure 34
INUNDATION LEVELS FOR HURRICANES OF SPECIFIED INTENSITY
, 7303 r
I- ,. ` 11301
1101 i
BYf
• 13
I
1100 vy
I.
1148
1102
1530
m
The preparation of this map was financed in par
through a grant provided by the North Carolin
Coastal Management Program, through funds provide
by the Coastal Zone Management Act of 1972, a
amended, which is administered by the Office o-
�Ocean and Coastal Resource Management, Nationa
Oceanic and Atmospheric Administration.
R] Windsor Town Limits
ElCategory 1 and 2 Hurricane
® Category 3 Hurricane
Sdurce: U.S. Awry Corps of Engineers
S.L.O.S.H. model, 1985.

from the Category 1, 2, and 3 storms would inundate parts of the
Windsor planning area. The following section details the effects
of these storm components on the planning area.
In Windsor, approximately 15 percent of the available land
within the planning area is located in the Category 1, 2 and 3
storm zones (Figure 14). The boundary of the flood prone area
coincides approximately with the limits of the 100 year flood -
plain. Most of the Hertie neighborhood is located in this hazard
zone, as well as Davis Park, several residential areas, and all
Town public utilities.
Development in the flood hazard zone includes about 130
residential units, five commercial establishments and five
public utilities, such as the wastewater treatment plant (Figure
15). There is also one institution, the Town Hall, and an
industry located in this risk area. This includes a total of
about 144 structures or $ 5,665,000 of the Town's tax value. In
the event of complete destruction of these structures by flood,
the Town would lose a significant portion of its tax value
through the destruction of these buildings.
The loss of homes and commercial establishments would have
a significant financial impact on the Town. More importantly,
however, all of the Town's major utilities structures are located
within this hazard zone. Of these public facilities, the
municipal wastewater treatment facility requires the greatest
amount of caution. In the event of a major hurricane, contam-
ination from overflow from flood rains or undercutting could have
a disastrous impact on the Town's drinking water supply.
n

Fiqure ]5
INVENTORY OF
STRUCTURES IN
THE HAZARD AREA
Conventional
Homes
Institution
Commercial
Industry
Utility
TOTAL
WINDSOR TOTAL
850
20
210
8
5
1093
Median_.
Value
$ 40,000
$:45,000_
$ 20,000
$ 40,000
$ 40,000
Total Estimated
Value
$ 34,000,000
$ 400,000
$ 4,200,000
$ 320,000
$ 200,000
$ 39,120,000
FLOOD PRONE AREA
ONLY
132
1
5
1
5
144
Total Estimated
Value
$ 5,280,000
$ 45,000
$ 100,000
$ 40,000
$ 200,000
$ 5,665,000
Note: The total tax evaluation for the Town of Windsor was $ 40,000,000 in January of 1986.
Source: Town Administrator, 1986.
9

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Very few relocation sites with higher elevations are available
should the Town decide to rebuild the wastewater treatment
facility at a different location than its present site in the
industrial park.
Although many structures would be at risk from a storm, the
areas which would be most seriously affected would be the AEC
and the hardwood swamp forests in the planning area. Flooding
would result from the large amount of rain associated with a
hurricane, and the high water levels associated with a storm
surge. The heightened levels of water brought on by a storm
surge would tend to "push" water from the lower portions of the
Cashie River and Albemarle Sound upstream to the Windsor planning
area. The floodwaters would inundate all of the Cashie River
floodplain. Development adjacent to the shoreline would ob-
viously be at a great risk.
EFFECTS OF STORM COMPONENTS ON HAZARD ZONES
Hurricanes are extremely powerful, destructive meteorolog-
ical events which are often unpredictable. Destruction is
typically the result of the combined energy of high winds,
flooding, erosion and wave action. Of these, the two most
damaging components of the hurricane are the high winds which
define its strength and flooding from rains and the subsequent
storm surge. In addition to these two forces, wave action and
erosion are two by-products of the wind and rain along the
land/water interface. The following section discusses the effect

91
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F.
of each of the storm components on the planning area and deline-
ates the sites which are most vulnerable to their forces.
HIGH WINDS
High winds are the greatest risk factor associated with
hurricanes. Hurricanes are, in fact, defined in severity by
their wind speeds. All parts of the planning area would be
subject to the winds brought on by a hurricane making landfall
nearby, but the intensity of the winds will be mitigated by Wind-
sor's inland location. Communities located closer to the coast
would be more greatly impacted by hurricane winds than Windsor.
Hurricane winds will probably be somewhat diminished by the time
they reach Windsor.
Because of the diminished impact of winds in the planning
area, there is a limited need to impose building restrictions
concerning wind stress. Open field ditches or other 'sites that
experience significant backwash would be impacted by the flooding
resulting from high winds, but other areas would not be signifi-
cantly affected.
FLOODING
Unlike high winds, flood waters may not impact all areas
hit by a storm. In Windsor, approximately 15 percent of the
planning area would be impacted by floodwaters. This includes a
total of 144 comercial, residential, institutional and public
utilities structures, resulting in a net loss of f 5,665,000
dollars in the event of complete destruction.

92
WAVE ACTION
Damage from wave action is very strongly correlated to wind
speed and direction. In the coastal area, most damage caused by
waves will be in the immediate zone of the water along the
shoreline. Because of Windsor's inland status, wave action
would not be a significant problem in the event of a hurricane.
Waves on the Cashie River would probably not grow large enough
n
to create a significant hazard to development, but may impact
the swamp forest shoreline areas.
EROSION
The product of severe winds, high water and wave action is
erosion. Because of the limited importance of severe winds and
wave action in the planning area, erosion will probably not be
of significance in a storm scenario. If any areas would be
impacted, the areas most likely to be experience erosion are the
shoreline areas within the planning jurisdiction. The damage
associated with shoreline erosion would be minimal because of
the limited amount of development located in the floodplain of
the river.
SUMMARY
In summary, a hurricane would not greatly impact the
Windsor planning area. Winds, erosion and wave action would be
minimal. Flooding associated with a Category 1, 2 or 3 hurricane
would affect about 15 percent of the land area, totalling
$5,665,000 of the Town's tax base. All of the public utilities
are located in this risk zone. Relocation of these facilities
should be a consideration for Town officials.

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POST -DISASTER RECONSTRUCTION
INTRODUCTION
A post -disaster reconstruction plan allows Towns to deal
with the aftermath of a storm in an organized and efficient
manner. It provides for the mechanisms, procedures, and policies
that will enable the Town to learn from its storm experience and
to rebuild in a practical way.
A reconstruction plan typically has five purposes, according
to Before the Storm: Avoiding Harm's Way (McElyea, Brower and
Godschalk, 1982). It usually outlines procedures and require-
ments before damages occur, establishes procedures for putting
storm mitigation measures into effect after the disaster,
analyzes information about the location and nature of hurricane
damages, assesses the community's vulnerability and guides
reconstruction to minimize the vulnerability.
In 1982, Bertie County adopted The Bertie County Disaster
Relief and Assistance Plan, a post -disaster recovery and recon-
struction plan. As a municipality in Bertie County, Windsor is
covered by this plan. The disaster relief plan, in concert with
the policies in the 1986 Bertie County Land Use Plan Update,
provide the County with the tools necessary to serve all its
communities during the recovery phase of a hurricane. Copies
of these plans are available at the Bertie County Emergency
Management office in Windsor.
It is important that local officials clearly understand the
joint federal/state/local procedures for providing assistance to
rebuild after a storm so that local damage assessment and
L

94
reconstruction efforts are carried out in an efficient manner
that qualifies the community for the different types of assis-
tance that are available. The requirements are generally
delineated in the Disaster Relief Act of 1974 (P.L. 93-288)
which authorizes a wide range of financial and direct assistance
to local communities and individuals.
During reconstruction after a disaster, two phases of action
are usually undertaken: immediate post -disaster clean-up and
clean-up and repair over a longer period. Although these
guidelines are directed for the county level, the Town of
Windsor may take additional steps to complement this work. The
following section discusses guidelines set forth for reconstruc-
tion in the county plan.
IMMEDIATE CLEAN-UP
The Disaster Relief and Assistance Plan includes a program
for immediate clean-up and debris removal from roads, beaches and
other areas where public health and safety may be jeopardized.
The responsibility for completing these duties will be a combined
effort by several agencies from the public and private sectors.
The Department of Transportation will be responsible for clearing
debris from roads and the Forest Service will remove fallen
trees from the area, if necessary. In addition, the county
Emergency Management office will provide names of volunteers
to call upon for assistance in the immediate clean-up efforts.
While clean-up efforts are taking place, a damage assessment
team will be sent out to evaluate the extent of damage in the

95
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area. Damage assessment is defined as a rapid means of determin-
ing a realistic estimate of the amount of damage caused by a
natural or man-made disaster. For a storm disaster, it is
expressed in terms of: 1) the number of structures damaged, 2)
magnitude of damage by type of structure, 3) estimated total
dollar loss, and 4) estimated total dollar loss covered by
insurance.
After a major storm event, members of the Damage Assessment
Team should conduct two types of surveys: one which roughly
estimates the extent and type of damage, and a more detailed
second phase assessment after the initial damage reports are
filed. The initial damage assessment should include an estimate
of the extent of damage incurred by each structure and identify
the cause of damage such as wind, flooding or wave action.
Conducted by windshield survey, the initial damage assessment
should classify damaged structures according to whether repair
expenses would be cost-effective. The Damage Assessment Team
should be equipped with tax maps, aerial photographs and photo-
graphic equipment in order to record and document field observa-
tions.
The second phase of damage assessment operations should be
to estimate the value of the damages sustained. A team consis-
ting of tax assessment experts and other qualified personnel
should be organized by the Emergency Management Coordinator.
This team should have the following information readily avail-
able to properly estimate the value of loss after the disaster:

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a) a set of property tax• maps (including aerial
photographs) identical to ,those used by the Damage
Assessment Team.
b) county maps delineating areas assigned to each team.
c) copies of all county property tax records.
A methodology should be followed to attain values for the
damage after the disaster. Initially, the number of commercial
and residential structures damaged should be summarized by
damaged classification category. The value of each damaged
structure should be obtained from the marked set of tax maps and
multiplied by the following percentages for appropriate damage
classification:
a) Destroyed 100%
b) Major Damage 70%
c) Minor Damage (uninhabitable) 30%
d) Habitable 10%
After this is completed, the total, value of damages for the
unincorporated areas of the county should be summarized. Damage
to public roads and utility systems should be estimated from
current linear foot costs for reconstruction. The estimated
value of the loss covered `'by hazard insurance should then be
determined. Data from damage assessment reports from each
municpality must be consolidated into a County -wide Damage
Assessment report which is forwarded to the appropriate state
authorities.
Rapid and general initial damage assessment reports are
to be submitted by radio within one hour. Within six hours,

97
private property summaries and more detailed reports should be
nearly complete. The format for damage assessments will be
conducted in accordance with Annex F of the Disaster Relief and
Assistance Program.
' Under certain circumstances, interim development moratoria
can be used to give a local government the time to assess
' damages, make sound decisions, and to learn from storm experi-
ences. The County's policy for establishing temporary develop-
ment moratoria leaves the decision to the Dertie County Emergency
' Management Office. The Emergency Management Office is given one
week after all damage assessments are complete to determine the
' need for a moratorium. Included in the report to institute a
' moratorim, a justification, delineation of the specific uses
affected, and a schedule of activities and actions taken during
' the moratorium period must be described. The specific length of
the moratorium must also be included.
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RECOVERY TASK FORCE
Damage assessment operations are oriented to take place
during the emergency period. After the emergency operations to
restore public health and safety and the initial damage assess-
ments are completed, the guidelines suggest that a recovery task
force is formed. This Task Force will guide restoration and
reconstruction activities during a post -emergency phase. The
county has formed a group with members from all areas of the
county to serve as a task force for recovery.
1

The responsibilities of this task force are to review
the nature of damages in the community, establish an overall
restoration schedule, identify and evaluate alternative ap-
proaches for repair and reconstruction, and make recommenda-
tions for community recovery. The Task Force will also work
to keep the public informed on the procedures to file for
financial assistance. In addition, they will work with State and
Federal representatives on the Interagency Regional Hazard
Mitigation Team and also the Section 406 Hazard Mitigation
Survey and Planning Teams. Members of the Recovery Task Force
will include:
Chairman of Bertie County Commissioners
County Code Inspections Director
County Manager a
' Emergency Mangement Coordinator
County Finance Director
' County Tax Appraiser
' The Mayor of Windsor will be called upon to serve on this Task
Force. The Town Administrator will also serve. Although this
ttask force will review damages, the authority to approve or deny
permits will remain the responsibility of the appropriate
' authorities.
SCHEDULE FOR REPAIR AND RECONSTRUCTION OVER LONGER PERIOD
' The procedures listed above deal directly with policies or
clean-up immediately after a storm or disaster. In conjunction
' with the policies stated above on storm hazard mitigation,

m
consideration should be given to long-term reconstruction.
All reconstruction efforts must be in compliance with the Town's
Flood Plain Plan and Floodway Ordinance and other construc-
tion standards currently in place.
In the aftermath of a disaster, reconstruction efforts
will be rampant. A plan for the long-term reconstruction is
essential. In order to handle the rush, a priority system
has been designed to stage and permit repairs. Staging and
permitting repairs and construction for the county are as
follows:
bridges;
1) Repair or replacement of roads, streets and
2) Repair or replacement of water control facilities
(dikes, levees, irrigation works and drainage facilities);
3) Repair or replacement of public buildings and
related equipment;
4) Repair or replacement of public utilities;
5) Repair or restoration to predisaster condition of
public facilities damaged while under construction.
First Priority: Replacement of essential services
such as power, water, telephone and
streets and bridges.
Second Priority: Minor repairs
Third Priority: Major repairs
Fourth Priority: New Development
In efforts to streamline the permitting process for the large
number of applications for building permits, a policy has been

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established by the county to repair and rebuild essential
' service facilities first. Second priority is to repair other
' public facilities as necessary for shelter. A triage (worst
damage) approach will be instituted for staging the reconstruct-
ion effort. Properties with little damage would be permitted
immediately if they were in compliance with permit regulations
' before the storm. The schedule for permitting other properties
is as follows:
1. Moderate damage, meeting permit regulations
2. Moderate damage, requiring permit decisions
3. Extensive damage, requiring permits
This system was established to avoid interference with the
reconstruction of public utilities and facilities. The top
priority in post -disaster reconstruction is the replacement of
services.
The development standards for reconstruction will be in
accordance with the Storm Hazard Mitigation policies being set
forth by the 1986 Bertie County Land Use Plan Update. All
damaged water and sewer systems (both public and private) shall
be repaired so as to be elevated above the 100 year floodplain or
shall be floodproofed, with the methods and construction approved
by a registered professional engineer. All damaged roads used
as major evacuation routes in flood hazard areas shall be
repaired so as to be elveated at least one foot above the
100-year flood plain elevation. Other loal roads that require
reconstruction should be elevated above the 100 year floodplain,
as well. As a minimum, all construction must meet the require-

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ments set forth by the Town's ordinances on construction, as well
as the State Building Code. The County Commissioners will be the
legislative body to enforce these policies.
EVACUATION ROUTES AND TIMES
Evacuation is often necessary in pre -hurricane conditions
when high winds and water are anticipated to endanger the
,
health and safety of local residents. There are no provisions
for evacuation in the Bertie County Disaster Relief and Assis-
tance Plan, because of the limited threat of hurricane danger
for an inland Town. The following section describes the proposed
evacuation routes and times for the Windsor area. The data for
shelters and evacuation routes were taken from various sources,
including the Disaster Relief and Assistance Plan and the Bertie
County Emergency Management Coordinator.
An estimated 3000 persons would be required to evacuate
the Windsor planning area. There are two principal evacuation
routes. Southeastern Elementary and West Bertie Elementary
Schools are the designated evacuation shelters. A full descrip-
tion of the capacity and adequacy of these shelters is in the
Bertie County Disaster Relief and Assistance Plan.
Highways 13/17 and 308 are the principal evacuation routes
for the Windsor planning area. The Roanoke River bridge at
Williamston is a probable inundation point where traffic may be
brought to a standstill.
Techniques for determining evacuation times are outlined in
Before the Storm: Avoiding Harm's Way. The total evacuation
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time is the sum of the following components: cut-off time,
mobilization time, travel time, and queing delay time. At a
maximum travel speed of 35 miles per hour, the ideal capacity
for Highway 13/17 is 455 vehicles per hour. Highway 308 can
accomodate 298 vehicles per hour. Following the model given, the
total evacuation time to Williamston (Highway 13/17) or Lewiston -
Woodville (Highway 308) is:
TOTAL EVACUATION TIME
Highway 17/13 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time 0.5 hrs.
Queing delay time 2.69 hrs.
TOTAL 9.69 hrs.
Highway 308 Cut-off time 3.0 hrs.
Mobilization time 3.5 hrs.
Travel time 0.5 hrs.
Queing delay time 2.95 hrs.
TOTAL 9.95 hrs.
The actual evacuation times may actually be shorter than those
provided above. These evacuation times are calculated for a
population of 3,000 in the event of a worst -case scenario. The
projected evacuation times for these routes are well within the
12 hour limit in which the National Weather Service can predict
to effectively mobilize an evacuation effort. A sensitivity
analysis is recommended to test the validity of the evacuation
times. This can be done ^by adjusting the number of persons
involved in the evacuation, the mobilization time, or by recal-
culating the queing delay time. By doing this, assumptions which
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103
are closer to reality may be introduced in estimating evacuation
time for area residents.
This analysis provides the Town with the opportunity to
consider adopting policies which would improve the capacity of
the evacuation routes. This is, however, beyond the scope of
this land use plan. It is recognized, though, that many factors
which affect local evacuation are beyond the control of the local
unit of government, but awareness of this problem is a first step
in improving the evacuation times for Windsor area residents.
SUMMARY
A small proportion of the Windsor planning area is threat-
ened by the hazards associated with hurricanes. In the event of
a major disaster, fifteen percent of the planning area would be
subject to flooding. Wind, wave action and erosion would not
have a significant impact. In -Town reconstruction standards will
be enforced according to the Floodway and Floodplain Ordinances,
which attempt to mitigate disaster in the future. The calculated
evacuation times for Windsor are within the time constraints for
a safe evacuation. It is suggested that efforts be taken to
improve the capacity of the evacuation routes for the area.

1
INTERGOVERNMENTAL COORDINATION
The Town of Windsor is responsible for reporting all of its
activities concerning storm hazard mitigation and hurricane
preparedness with the following agencies:
'
N.C. Division of Coastal Management
State Office: Division of Coastal Management
Department of Natural Resources and Community
'
Development
P.O. Box 27687
Raleigh, NC 27611-7687
'
[phone]
Field Office: Division of Coastal Management
Department of Natural Resources and Community
Development
P.O. Box 1507
Washington, NC 27889
(919) 946-64BI
N.C. Division of Emergency Management
'
State Office: Division of Emergency Management
Department of Crime Control and Public Safety
116 West Jones Street
Raleigh, NC 27611
t(919)
733-3867
Regional Office: Area Emergency Management Coordinator
N.C. Division of Emergency Coordinator
'
607 Bank Street
Washington, NC 27889
[phone]
'
National Flood Insurance Program Information
Flood Insurance Coordinator
Division of Community Assistance
'
Department of Community Assistance
P.O. Box 27687
Raleigh, NC 27611-7687
'
[phone]
' Federal Emergency Management Agency
National Office: Federal Emergency Management Agency
500 C Street, S. W.
t Washington, D.C. 20472
Public Information [phone]
Publications [phone]
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Federal Emergency Management Agency
Regional Office: Federal Emergency Management Agency
Region IV
1375 Peachtree Street, N.E.
' Atlanta, GA 30309
Public Information [phone]
Disaster Assistance Program [phone]
tFlood Insurance Program [phone]
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STORM HAZARD MITIGATION AND POST -DISASTER RECONSTRUCTION
POLICIES
Policy Choices
1. Support county Storm Hazard Mitigation and Post
Disaster Reconstruction Policies.
2.
Town will
discourage redevelopment of destroyed
'
structures in
same manner
as prior to storm.
'
3.
Develop a
Recovery Task force for the Town.
4.
Increase public awareness and preparedness.
'
S.
Because of
lack of land and the limited risk
' associated with hurricane flooding, the Town will support
reconstruction of public facilities at same location. All
' structures will be rebuilt according to the guidelines of the
Floodway and Floodplain ordinances in order to mitigate future
' risk from hurricanes.
Implementation Schedule
1. Stay abreast of changes in Bertie County Disaster
' Relief and Assistance Plan.
2. Discourage property owners from rebuilding des-
troyed structures without taking mitigative precautions during
the construction phase. Town will also work with the Federal
' Flood Insurance Rate Program in working to include all areas
' flooded by storm into the FFIRP maps. If areas are included in
FFIRP maps, the regulations set forth in the Floodway and
' floodplain ordinances will establish reconstruction standards.
3. Recovery Task Force members will include:
' Mayor of Windsor
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107
Planning Board Members
Rescue and Fire Squad Volunteers
Medical Board
Town Administrator
4. Educate Town employees and public about evacuation
procedures about their responsibilities in storm situation.
5. Use mitigative construction standards in recons-
tructing public facilities destroyed in a storm.

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PUBLIC PARTICIPATION
Windsor realizes the importance of incorporating public
' input into the planning process. During the development period
of the land use plan update, several techniques were employed to
' encourage the involvement of Windsor area residents in the land
use plan's policies.
' At the beginning of the planning period, a citizen partici-
pation plan was developed. At the first meeting, the planning
board decided to schedule regular monthly meetings every third
' Tuesday from November, 1985, until the completion of the plan.
It was decided that all planning board meetings concerning the
' CAMA Land Use Plan update should be made public. Citizen input
' was to be strongly encouraged.
The board decided that initially, emphasis would be placed
' on public education about the land use planning process. It was
felt that once the public understood the importance of the plan,
' the public would feel a desire to be involved in it. An effort
' was made to inform the public about the existence of the plan and
the importance of citizen's contribution on policy recommenda-
' tions.
This was done in a variety of ways. First, news articles
' appeared in the local newspapers which discussed the plan and its
purpose. Press releases were sent to three newspapers: the
Bertie Ledger -Advance, based in Windsor; the Williamston Enter-
' prise, and the Martin Monitor, based in Williamston. The purpose
of the articles was to explain the role of the CAMA plan and the
' the issues addressed in it. Other methods of public education
1

109
involved direct communication with Windsor residents by planning
board members.
In addition to the public education efforts, press releases
were sent to the local newspapers prior to each meeting.
Included in the press release was a description of the land use
plan and its purpose as well as the agenda items. Upon comple-
tion of meeting, another news article, was sent out which des-
cribed the meeting's events. The combination of these newspaper
articles intended to promote the understanding of the land use
planning process as well as to encourage the public to provide
their opinion on various issues. An example of a newspaper
article is included as Appendix B.
Another measure was taken to attract citizen input.
Letters were mailed to various civic and industry leaders in the
community (Appendix C). Special attention was given to solici-
ting names from a wide cross-section of individuals. Economic,
social, ethnic and cultural view points were considered in
developing the list. The intent of the letter was to educate
the individuals about the plan and to provide an invitation to
attend the public meetings. This proved to be effective, as
citizen attendance increased markedly at subsequent meetings.
Draft sections of the plan were also made available for
public review. A current draft of the plan was kept in the Town
Hall and the public was encouraged to make written comments on
it. The purpose was to have as much citizen input as possible.
It is the belief of the Windsor Planning Board and Town
Commissioners that all citizens should be provided adequate

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opportunity to participate in the governmental and planning
decisions which affect them. In the future, citizen input will
continue to be solicited, primarily through the planning board.
All upcoming meetings will be advertised and adequately publi-
cized to help keep citizens informed about the land use changes
occurring in their community.

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H
LAND CLASSIFICATION SYSTEM
n
The land classification system is a tool to identify the
anticipated land uses within a planning area. The land classifi-
cation map, the culmination of the land use planning effort,
designates specific areas for certain types of development
activities. It provides a uniform method of analyzing how the
planned use of land interacts with environmentally sensitive
areas during the development process of the Town. The land
classification system promotes an understanding of the relation-
ships between various land use categories and the need to develop
policies to accommodate these relationships. The focus is to
evaluate the intensity of land utilization and the level of
services required to support that intensity. According to the
CAMA guidelines:
"The land classification system provides a framework to be
used by local governments to identify the future use
of all lands. The designation of land classes allows the
local government to illustrate their policy statements as
to where and to what density they want growth to occur,
and where they want to conserve natural and cultural
resources by guiding growth." (78.0204) (b)
The CAMA guidelines include five general land use classifi-
cations for the land classification map: Developed, Transition,
Community, Rural and Conservation. Their definitions are ranked
according to the intended intensity of land uses within them.
Areas classified as "Developed" require the traditional level of
services associated with urban areas. "Transition" zones should
1

112
include areas developing or anticipating development
which will
'
eventually Lower density
require urban services.
areas which
'
will not require services should be classified as
"Community".
Areas classified as "Rural" should be reserved for low
intensity
uses such as agriculture, forestry, mineral extraction
and highly
dispersed housing. Public water and sewer will not
be provided
'
in rural areas. The of the Conservation
is "to
purpose
class
provide for the effective long-term management and
protection
of significant, limited or irreplaceable areas"
(NCAC 7B).
'
Public or private services should not be provided
in this land
classification.
'
The
five land classifications and land classification map
'
are intended to serve as a visual
definition of the policies
stated in
this plan (Figure 16).
The five land use classifica-
tions, as
they are applied in the
Windsor planning area, are
discussed
below.
' DEVELOPED
The Developed land classification is intended for continued
intensive development and redevelopment of urban areas. It
' includes areas already developed as urban or those areas with a
density of approximately 500 dwellings per square mile. In
tmost cases, the Developed class includes all urban areas.
In the planning area, most of the land within the Windsor
Town limits is classified as Developed. Exceptions include the
tforested wetland area east of the downTown area. Nearly all of
the residents in the Developed area are served by sewer and
' water service.
I

Figure 16
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® Developed
Transition
Community
ElRural
QConservation
LAND CLASSIFICATION MAP
The preparation of this map 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
amendedg which is administered by the Office of
Ocean and Coastal Resource Management, National
Oceanic and Atmospheric Administration.

114
TRANSITION
Transition land is categorized as the lands providing for
intensive urban development within the ensuing ten years. These
areas will be scheduled for provision of water and sewer in the
future. They will also serve as the overflow sites for develop-
ment when additional lands are needed to accommodate growth.
They will eventually become a part of the urban area.
The Transition classification includes the areas located
adjacent to the transportation routes that run through Windsor.
An additional concentration of the transition class exists
between the Town limits and Highway 13 Business extending south
an both sides of Highway 17 south of Town. Other areas classi-
fied as transition are the currently undeveloped areas in
the vicinity of the industrial park. The existing land use
analysis showed that these areas are undergoing a transition
from undeveloped agricultural and forested land to residential
and industrial land uses. Most of the transition areas do not
have physical constraints to limit these changes in land use;
,many of the soils are generally suitable for septic tanks and
all of this area is outside the hurricane hazard zone.
The relationship between the Developed and Transition
classes is important in a predominantly rural area like Bertie
County. The area within these classes is where detailed local
land use and public investment planning will occur. Large
amounts of vacant land suitable for urban development within the
Developed class should be taken into account when calculating the
amount of additional lands needed to accommodate projected

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growth. The local zoning ordinance recognizes this by speci-
fying allowable land uses and intensity of use in zones within
the Developed and Transition land classes. The Developed areas
are served by sewer and water and are zoned for commercial,
industrial and residential uses. The Transition areas are
zoned as having potential for future growth. The zoning ordin-
ance specifies some of these areas for rural uses, but areas
along traffic arteries are incrementally zoned for less intensive
commercial and residential uses. The zoning ordinance recognizes
that future development will likely occur in these areas.
COMMUNITY
The "Community" classification is usually characterized by
a small cluster of mixed land uses in a rural area which do
not require municipal services. It usually serves to meet the
housing, light shopping, employment and public services needs of
a rural area. The Community classification typifies crossroads
areas along primary and secondary roads.
In the Windsor planning area, the only area classified as
Community is in the vicinity of the Sandy Point Church. This
community includes a small cluster of homes and several churches.
It is anticipated that Windsor's municipal services will be
extended to this community. Wells and septic tanks currently
serve the basic needs of this community, and there is a limited
need to provide additional services to this area.
RURAL
The "Rural" classification is designed for agriculture,
forestry, mineral extraction and other low intensity uses.
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Urban services are not required because of the great dispersion
of development in these areas. These are lands identified as
appropriate locations for resource management and related uses;
agricultural, mineral, or forest lands; or areas with enough
limitations to make development hazardous or economically
unfeasible.
Much of the land within the planning area is categorized as
Rural. Most of this land is under currently under agricultural
and/or forestry production, but other uses can be accommodated.
The Resource Production and Management policy statements empha-
size that development should not be precluded from the agricul-
tural lands located in this classification; this designation
merely implies that urban services will not be extended to
accommodate future development within the next five years. if
development seems probable, the Town Board can amend the land
classification map.
The "Conservation" class provides for the effective long
term management of significant, limited or irreplaceable re-
sources. This includes, as a minimum, all of the statutorily
defined AECs. In Windsor, the AEC includes the public trust
waters of the Cashie River. The hardwood swampforests located
in the Cashie floodplain are also included in the Conservation
class. They extend for a distance of 100 feet back from the
mean high water mark on both banks of the Cashie River. Swamp -
forests, although recognized for their uniqueness, are not
1

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considered AECs, and are therefore not protected by the State
regulations.
The Conservation class does not imply "non-use". It is
intended to provide for careful and cautious management of the
uses allowed in it. Preservation, on the other hand, implies
total restriction of all uses in an effort to keep the natural
environment in tact. Through conscientious management, the
Conservation class requires all uses to be as unoffensive as
possible. The intention of the Conservation class is to strike a
balance between careful long-term management of sensitive natural
and cultural resources and the freedom of landowners to utilize
their property to its best use.
Within the public trust water AEC, development is regulated
by the State. All development permit applications must be made
to the Division of Coastal Management. The swampforests,
although not recognized as AECs, are considered wetlands by the
federal government. All non -coastal wetlands are under the
jurisdiction of the Army Corps of Engineers Section 404 Dredge
and Fill program. Any development projects that propose to fill
the wetlands with the intention of altering their character,
must be permitted by the Corps. Additional wetland protection
measures have been set up by the Town. The Floodway Ordinance
prohibits any type of construction within 100 feet of the natural
floodway and the Floodplain Ordinance sets construction standards
for all development located in the floodplain. The Town has
opted to protect all areas classified as Conservation (See
Resource Protection policy statements).
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In order to protect its natural integrity, various types
of land uses should be prohibited from the Conservation classifi-
cation. The Town has decided that the NCAC permitted uses for
statutorially-defined AECs are consistent with the Town's long
term goal of resource protection. The Town does not feel the
requirement to add specific uses to this already satisfactorily
list of restrictive uses. All uses permitted in AECs by the
state will be considered consistent with the Town's objectives.
In order to maintain consistency with the Resource Protec-
tion policy statements to protect water quality by encouraging
the maintenance of natural vegetation as a filtering device for
pollutants, severe deforestation activities will be discouraged
in the swampforests located in the Conservation areas. Each
logging request must be brought before the Town Board and
reviewed on a case -by -case basis. The Town realizes that this
is more restrictive than the state and federal government
guidelines for allowable uses. The removal of any vegetation
along the shoreline increases the potential for pollutants to
enter the Cashie. It is also intended to protect the valuable
hardwood swampforest's role as a wildlife habitat.
For illustrative purposes, the Town will also allow the
following types of uses * in the Conservation class:
1. Water -oriented,, uses such as docks, piers and
marinas, if they are shown not to cause detriment to the public
trust waters or Conservation lands.
2. Necessary utility service lines, such as water,
sewer, electrical, natural gas, etc., when demonstrated that the

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environmental integrity of the Conservation area will not be
' violated.
'
3.
Roadways
and improvements to existing roads when
construction
of roadways can be conducted without significantly
altering the
ecological
system, and in compliance with existing
federal, state and local
regulations.
'
4.
Marinas,
provided that they are in compliance with
size and water quality requirements set by state.
* Note: This list is for illustration only. Specific uses
permitted in the wetlands and public trust waters will be
determined by the appropriate state and federal authorities, and
the Town Board. For more detail on the permitted uses in the
Conservation classification, please refer to NCAC Subchapter 7H
for permittable uses in AECs.
In conjunction with the Policy Statements section of this
plan, each application for a "developed" use in the Conservation
classification shall be reviewed individually by the Town Board.

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RELATIONSHIP OF POLICIES AND LAND CLASSIFICATION
As required by the Coastal Resources Commission, this plan must
discuss the manner in which the policies developed in the
Policy Statements section will be applied to each of the land
classes. In addition, an identification must be made of the
types of land uses which are appropriate in each class.
DEVELOPED AND TRANSITION CLASSES
Recent trends have shown that most of the growth in the
Windsor planning area is occurring on the fringes of the Town
limits, as well as in previously developed areas in Town. This
is the area where basic services such as water, sewer and
community support services are available or might be feasible
within the planning period. 4 These classes are designed to
accommodate all intensive land uses, including residential,
commercial, industrial, transportation and community facilities.
Hazardous or offensive uses, such as land application systems,
electrical generating facilities, airports, and noxious indus-
tries will not be permitted in the classes.
COMMUNITY CLASS
Intensive development will not be encouraged in this class
due to the lack of urban services and/or physical limitations.
The general range of acceptable uses are limited to residences,
isolated convenience stores and churches, and other public
facilities.
RURAL CLASS
The rural class is the broadest of the land classes and is
designated to provide for agriculture, forest management,

121
mineral extraction and other low intensity uses. Development
will be allowed in these areas. Residence may be located within
the rural class where urban services are not required and where
natural resources will not be permanently impaired. Energy -gen-
erating facilities and airports will be limited to this class.
CONSERVATION CLASS
The conservation class is designed to provide for the
effective, long-term management of significant limited or
irreplaceable areas including Areas of Environmental Concern and
the hardwood swamp forest located adjacent to the river.
Development in the riverine system should be limited to uses
described in the NCAC Subchapter 7H. In addition to development
restrictions in wetlands established by Section 4049 the Town
has decided to limit other land use practices in order to
maintain consistency with other policy statements to protect
water quality. Logging and other deforestation activities will
not be permitted in the hardwood swampforests within 75 feet of
the mean high water mark in the Cashie River without the express
permission of the Windsor Town Board. This policy is an attempt
to mitigate the effects of storm water runoff on the river. The
removal of any type of vegetation from this area will increase
the potential for pollutants to enter the riverine system. The
previous section entitled "Land Classification System" addresses
Windsor's intentions for development in fragile areas.

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INTERGOVERNMENTAL COORDINATION
The land use plan is a tool for coordinating numerous
policies, standards, regulations and other governmental activi-
ties. The plan provides the framework for budgeting, planning,
and the provision and expansion of community facilities such as
water, sewer, school and road systems. It is the principal
policy guide for governmental decisions and activities which
affect land use in the Windsor area. The implementation of
policies in the land use plan requires coordination between the
local government and the state and federal governments. Enforce-
ment of the policies and goals requires a consistency with the
higher levels of government. The formation of a policy without
means of enforcement defeats the intention of the land use plan
update.
Windsor has worked to ensure compatibility between the
Bertie County and Windsor Land Use Plans. There appeared to be
no inconsistencies between the policies in each plan. A good
working relationship exists between the Town of Windsor and
Bertie County. During its development period, the plan was
continuously evaluated for its consistencies between state and
federal regulation.
The Town of Windsor intends to foster intergovernmental
coordination by working with state and federal agencies to
implement policies to improve water quality, as well carry out
goals for the agriculture, forestry and commercial fishing
industries. In addition, Windsor will work with the N.C.
Department of Cultural Resources in protecting and enhancing its

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heritage.
Coordination between the Division
of Coastal
Manage-
U.S. Army Corps Engineers
ment and
of will be
maintained
in the
permitting
process for development in areas
classified as
wetlands.
All additional efforts will be
made to
promote
'
cooperation
between the statep federalq county
and local
govern-
ments.
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APPENDIX A
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FEDERAL DEVELOPMENT REGULATIONS
Aoengy
Army Corps of Engineers
(DEPARTMENT OF DEFENSE)
Coast Guard
(DEPARTMENT OF TRANSPORTATION)
Geological Survey
Bureau of Land Management
(DEPARTMENT OF INTERIOR)
Nuclear Regulatory Commission
(DEPARTMENT OF ENERGY)
Licenses and Permits
- Permits required under
Sections 9 and 10 of the
Rivers and Harbors Act 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; permits to undertake
dredging and/or filling
activities.
- Permits for bridges, cause-
ways and 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.
- Approval of OCS pipeline
corridor rights -of -ways.
- Licenses for siting, con-
struction and operation
of nuclear power plants
required under the Atomic
Energy Act of 1954 and
Title II of the Energy
Reorganization Act of
1974.
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125
Federal Energy Regulation
Commission (DEPPARTMENT OF
ENERGY)
Permits for construction,
operation and maintenance
of interstate pipelines
facilities required under
the Natural Gas Act of
1938.
- Orders of interconnection
of electric transmission
facilities under Section
202 (b) of the Federal
Power Act.
- Permission required for
abandonment of natural
gas pipelines and associated
facilities under Section
7C (b) of the Natural
Gas Act of 1930.
Sources CAMA Land Use Plan Update, Hertford County, NC,
5 1980.
11

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STATE DEVELOPMENT
REGULATIONS
Agency
Licenses and Permits
DEPARTMENT OF NATURAL RESOURCES
- Permits to discharge to sur-
AND COMMUNITY DEVELOPMENT
face waters or operate waste-
water treatment plants or oil
discharge permits; NPDES Per-
mits, (G.S. 143-215).
'
Division of Environmental
- Permits for septic tanks that
Management
serve industrial process
water flow or are community
'
owned. Such systems owned
by the State or Federal
government are under the
jurisdiction of the Health
'
Department, (G.S. 143-215.3).
- Permits for air pollution
'
abatement facilities and
sources (G.S. 143-215.108).
- Permits for construction of
complex sources; e.g. parking
lots, subdivision, stadiums,
'
etc. (G.S. 143-215.109).
- Permits for construction of
a well over 100,000 gallons/
day (G.S. 87-88).
Division of Coastal
- Permits to dredge and/or fill
'
Management
in estuarine waters, tide-
lands, etc. (G.S. 113-229).
- Permits to undertake develop-
ment in Areas of Environ-
mental Concern (G.S. 113A-
'
110).
Note:, Minor development
'
permits are issued by the
local government.
1

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DEPARTMENT OF NATURAL RESOURCES - Permits to alter or construct
AND COMMUNITY DEVELOPMENT dams (G.S. 143-215.66).
Division of Land Resources
Secretary of NRCD
- Permits to mine (G.S. 74-51).
- Permits to drill exploratory
oil or gas wells (G.S. 113-
381).
- Permits to conduct geograph-
ical explorations (G.S.
113-391).
- Sedimentation erosion control
plans for any land disturb-
ing activity of over one
contiguous acre (G.S.
113A-54).
- Permits to construct oil
refineries.
Department of Administration - Easements to fill where lands
are proposed to be raised
above the normal high water
mark or navigable waters
(G.S. 146.6).
Department of Human Resources
- Approval to operate a
solid waste disposal site
or facility (G.S. 130-
166.16).
- Approval for construction
of any public water supply
facility that furnishes
water to ten or more
residences (G.S. 130-
160.1).
- Permits for septic tank
systems of 3000 gallons/day
or less capacity (G.S.
130-160).
Source: CAMA Land Use Plan Update, Hertford County, NC,
1980.

Appendix II
128
Bertie Ledger -Advance
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Thursday, November 28, 1985
Windsor begins land use plan
WINDSOR — The town of
Windsor took the first step
Wednesday night of last week
toward setting the town's land
use goals and priorities for the
next five years.
The Windsor Planning Board
met to discuss the organization
and development of the 1986land
use plan update. The meeting
was designed to introduce the
board to the planning process
and the .board's responsibilities
In plan development.
The Planning Board will meet
monthly to discuss the plan. All
meetings are'open, and public
participation Is encouraged. The
next meeting is set for 7 p.m.
December 17 in the Windsor
Town Hall.
The land use plan update is a
document used to assess and
guide development. Each of 20
counties covered by North
Carolina's Coastal Area Manage.
ment Act must update their land
use plan every five years. Plans
are optional for municipalities
such as Windsor.
Lynn Phillips of the
Washington,. N.C., based Mid.
East Commission outlined com-
ponents of the plan to be address-
ed by the Planning Board, Mid-,
Thursday, January 30, 1986
East will be providing technical
assistance to the Town. The com-
ponents. Include policy Issues
such as resource protection, pro-
duction, and management, plus
economic development.
Robert Paclocco from Mid -
East discussed techniques for In-
creasing public involvement.
Planning Board Chairman
Laurence Carter presided at the
meeting.
In addition to public meeting,
the Planning Board will explore
other methods of public educa-
tion, Including appearances on
local radio and television.
Planning board goals. met
WINDSOR — Windsor got a
"B-plus" on Its report card which
shows how well goals are ac-
complished.
The town's planning board met
last week to discuss the Land Use
Plan which is being updated. The
meeting focused on the policies
and goals set In the 1981 plan and
how well the Implementation
procedures have been carried
out since that time.
The Land Use Plan update is a
document used .to assess and
guide development. Each of 20
counties covered by North
Carolina's Coastal Area Manage-
ment Act must update Its Land
Use Plan every five years.
Municipalities, like Windsor,
have the option of updating their .
plans as well.
In a checklist format, each
policy and Implementation
strategy was analyzed to assess
how the town has moved forward
In reaching each goal. Out of the
dozen Implementation strategies
listed, 11, or 91 percent, had been
either partially or completely
fulfilled. Each policy and Im-
plementation strategy dealt with;
the Issue of resource protection,
production and mafigement, as
well as economic and community
development. -
The Planning. Board also
checked over the completed part
of Its 19m plan which'analyzes
the existing socioeconomic and
land use trends. Planner Lynn
Phillips of the Washington -based
Mid -East Commission presented
the plan to the board. The safe
placement of septic tanks In the
one -mile jurisdictional limit of
town was also discussed.
The next meeting of the Plapm
Ing Board is scheduled at 7 p.m.
February 181n the Windsor ToWn
Hall. -The agenda will cover the
town's current policies on
resource protection. All people of
the community are Invited to at-
tend.
t

16 Thursday, April 3,1986
Bertle Ledger -Advance
Windsor Planning Board stressing water quality
WINDSOR — The Windsor
Planning Board has decided to
stress water quality and not to
emphasize the protection of
prime agricultural land.
In proposing policy for the
town's 1996 land use plan update
last week, the planning board in-
cluded policies to protect water
quality and the , recreational
fishing industry in the Cashie
River.
The Board also elected not to
emphasize protection of prime
agricultural land. Citing the
abundance of farmland to the
area and the number of farmers
being paid not to grow crops, the
planners decided that farmland
protection efforts will, for the
near future, take a. back seat to
other forms of economic develop-
ment.
Windsor Is updating its Coastal.
Area Management Act Land Use
Plan. The planning board met
Monday night of last week with
consulting planner Lynn Phillips
of the Mid -East Commission,
who , provided technical
Board
presentation on the merits of
water quality protection.
McCullough told the board that
"all our natural resources are in-
terrelated. What happens with
the soils in one area will certain-
ly have an impact on the water of
another area" She cited the
paper mills upstream on the
Roanoke as an example. "Every
toilet flush will impact some
other resource at a later time."
The board discussed the im-
portance of the recreational
fishing industry to Windsor.
Water quality must be good to
maintain the vitality of this In-
dustry, which provides a signifi-
cant boost to the overall economy
of the area.
Good water quality initiatives
also save money in the long -run,
assistance on the plan. Resource
ecologists Melissa McCullough
and Rich Shaw from the Division
of Coastal Management gave a
(See BOARD, Page I6)
(From Page 1)
McCullough noted. When a
farmer loses chemicals from his
fields after a big rain, he Is
washing away his investment
and subsequently, money, Shaw
added. "It makes good economic
sense to work toward protecting
the water quality."
In discussing farmland In the
area, the board agreed that there
is not a shortage of profitable soil
types. The U. S. Soil Conserva-
tion Service has Identified
several aras in and around Wind-
sor as "prime agricultural
land". Preventing non-
agricultural development on this
land should not be a short-term
priority.
The board felt that due to the
recent glut in farmland, it should
not discourage any type of
development. Economic develop-
ment is a high "priority and the
Town should not prevent any
other type of land use to locate on
well -drained agricultural soils.
They proposed policies on
siting marinas and similar
facilities, and establishing a coo-
servation buffer zone along the
shoreline. They also voted to re-
quire any proposed mining ac-
tivities to apply for a special use
permit from the planning board.
The land use plan Is not yet
finalized, and public input is en-
couraged. The board will meet
again at 7 p.m. April 15 in the
Town Hall to discuss the plan.
Economic and community
development issues will be on the
agenda. Ali Windsor arae
residents are invited to attend.

1 1.30
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Thursday, April 24,1986
Berne Ledger -Advance
1 Desirable industries identified
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WINDSOR — Industries
related to furniture manufacture
ing. electronics, automobiles and
plastics would be well -suited to
the Windsor planning area, the
Planning Board decided.
The board met Tuesday night
of last week to discuss the policy
recommendations for the Land
Use Plan update. Intergovern-
mental coordination, citizen in-
volvement and economic and
community development were
some of the Issues discussed.
The land use plan is a docu-
ment used to guide and assess
develop.ent. Windsor Is up-
dating its 1981 plan. Lynn
Phillips of the Mid -East Commis-
sion is providing technical
assistance on the plan.
High -skilled, high -paying Jobs
are what the town needs and in-
dustry which falls into this
category would be especially
welcome to the planning area.
However, any Industry must
meet the town's objectives for
resource protection, as well as
resource production and
management. The board felt that
all Industry should be low pollu-
tion to remain consistent with
other goals for protection of
valuable natural resources.
The town Is also committed to
providing services to all poten-
tial industry. Town Ad-
ministrator David Overton
stated that special rates are
available to industries that
employ a certain number of
workers. Additional jobs made
available by that firm mean ad-
ditional cost cuts on utilities fees,
Overton said. The town Is able to
offer reduced electrical rates
because of Its ability to produce
Its own power by means of a
generator. The reduced electrici-
ty costs often amount to a signifi-
cant savings to a potential In-
dustry, thereby providing an ad-
ded incentive to locating In the
Windsor area.
Although excessive growth is
currently not a problem for the
town, a population ceiling of 7,000
persons should be set to avoid
problems in the future. This
figure represents the maximum
capacity of the municipal water
system. Any persons added on to
the system more than the limit of
7,000 would unduly tax the
system, thereby creating . the
need for an addition to the
system. The town's population Is.
currently around 2,200 persons.
3
The board also decided to
discourage electrical -generating
facilities, similar to the one pro-
posed by Vepco last year. Any
energy -generating facilities in-
terested In the town must apply
for a special use permit from the
Planning Board. The plant would
be limited to area classified as
"rural" on the land classification
map. This eliminates the re-
quirement for the town to
automatically provide the
necessary urban services for a
local industry.
The plan Is not yet finished,
and public opinion Is still being
encouraged. A rough draft of the
completed sections of the plan Is
available for public Inspection In
the Town Administrator's office.
The next meeting of the Plann-
ing Board is scheduled for May
27 at 7 p.m. All Interested per-
sons are Invited to attend.
1

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Thursday, June26,1986
Berne Ledger -Advance
Future growth areas talked
WINDSOR — The Windsor
Planning Board met Tuesday
night of last week to discuss
areas of future growth in Wind-
sor as Identified on the Land
Classification map.
The Land Classification map Is
a visual summary of the town's
intentions for growth over the
next 10 years. It is a component
of the 1986 Land Use Plan update,
a document used to guide growth
and existing development in the
Windsor planning area. The
Board has been working on the
Plan since November.
The Land Classification map
categorizes land Into four
categories based on the amount
of development that currently
exists or is planned to take place
through annexation or other
types of development. The
Developed classification iden-
tifies areas that are currently
served by water and sewer and
other urban services. Most of the
land within the town limits was
placed into this classification.
The Transition classification
shows areas undergoing a slow
change from undeveloped to an-
ticipated growth. Land situated
between the town limits and
Highway 13 Business and areas
adjacent to Highways 13 and 17
wR-&&L_-_._--_ _____ _♦ -A
North were placed In this
category.
Significant natural areas, such
as the Cashie River and Its hard-
wood swamp floodplain, were
placed in the Conservation class.
In order to protect the natural
resource, all land uses occurring
In these areas must be restricted
In some manner. In addition to
the protection Imposed by this
classification, the Town's Flood.
way and Floodplaln ordinances
restrict the amount and form of
development In the fioodplain.
Only water -dependent uses
which do not require the tradi-
tional water and sewer services
provided by the Town are per-
mitted In the Conservation area.
The Board also elected to restrict
the amount of logging in the
swampforest by requiring a
review of all logging proposals
by the Town Council.
The Board also reviewed writ-
ten drafts of the Resource Pro-
tection, Productlan and Manage-
ment and Economic and Com-
A
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munity Development policies
that had been formed at earlier
meetings. Planner Lynn Phillips
of the Mid -East Commission
answered questions on these me.
tions of the Land Use Plan.
All parts of the plan have been
written and are in draft form.
The public Is able to pick up
copies at the Town Hall for
review. The final draft of the
plan should be ready by mid -July
for submission to the Windsor
Town Council.
MAYFAG
Sales & Service I I I
' Harrell's
Auto 3 Sports
w T 10, Store
Main Street
Ahoskie, N. C.
1

Appendix C 1.32
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COMMISSION
February 3, 1906
Mr. James Gilliam
Ghent Street
Windsor, North Carolina 27983
Dear Mr. Gilliam:
The Town of Windsor and the Mid -East Commission are currently
engaged in updating the 1981 Windsor Land Use Plan. The land
use plan is a document used to assess and guide development.
It will be used by the county CAMA Permit Officers, developers
and other stated and federal agencies to make decisions about
development and preservation activities in the town.
Thus far, our work has concentrated on establishing a data
base on the existing conditions, all plans and policies, and
physical constraints which might pose a development impediment
in the future. The next task of the planning board is to
formulate ;recommendations for policy on future development
issues.
Your input in this decision -making process is essential. You
have been listed as one of the more prominent residents in the
Windsor community who has an interest in the future of the
town. We invite you to be heard in the community forum.
During the next meeting scheduled for February ie, we will
begin making policy statements on resource protection in the
area. Also, we will be discussing the most relevant issues
facing Windsor today. The incorporation of your opinion on
these issues is one of our goals.
The meeting is scheduled for February 18 at 7:00 pm in the
Town Hall. Subsequent meetings will be held on the third
Tuesday of each month at the time given above. We encourage
you to attend to provide guidance and direction.
1
. E. Peterson Building ■ 310 West Main St ■ FD. Drawer 1787■ Washington. North Carolina 27889 a (919)

133
If you have any questions about the plan and its purpose or
the meeting, please feel free to call me. We look forward to
working with you to guide the future of your town.
Sincerely,
Lynn Phillips
Consulting Planner
LP/lrw
n