This report describes a design and implementation strategy for downtown Belhaven, North Carolina. It is the second report prepared by Allison Platt & Associates for the Town of Belhaven. The first was completed in October of 2003 in conjunction with an economic feasibility study prepared by Hunter Interests, Inc. Earlier work suggested that there was a definite market for new waterfront residential (and some related retail) development in the downtown and especially along the waterfront near the downtown, much of which is either undeveloped or underutilized. The Hunter Interest work stated that the market for new residential development should be strongly based on the proximity of Belhaven to the intracoastal waterway, its direct roadway connections from the Raleigh and Research Triangle areas, and the availability of thousands of feet of waterfront with excellent accessibility and draft for boaters.

The recommendations and market outlined in the report have proven to be very successful. A developer based in Nags Head has purchased one key downtown waterfront property and will begin construction on waterfront condominiums later this year. Several significant properties to the west of the downtown (between the downtown and the State Route 92 bridge) are optioned. And interest in downtown properties has increased dramatically.

One of the recommendations of the first report was that the town promote the formation of a downtown development corporation that could oversee downtown development and ensure that the results are as the community envisions them. Another was that a more detailed study of the historic downtown of Belhaven be undertaken to determine the best manner for this area to be revitalized. This report is the result of these two strategies being realized by the community.

This report is the project of Belhaven's new DOC, Belhaven DARE, and is jointly funded by local citizens and businesses (through DARE), the Town of Belhaven, and the Beaufort County Committee of 100. There will be an additional set of tasks once the report is completed: to write and implement design guidelines that will help ensure that future development meets the goals of the community as outlined in this report and the previous one.

Summary of Previous Work


The reader is referred to the previous studies by Hunter Interests and Allison Platt & Associates (available on the Beaufort County Economic Development Commission web site beaufortedc.com). This section outlines those elements of the study upon which this work is based.

Market Analysis 2003

The following is an excerpt from the executive summary of the Hunter Interests study:

The market analysis focuses on market potentials for marina development, residential development, and the development of food and beverage, lodging, and retail establishments. Our assignment was to look first at marina development potentials, taking advantage of Belhaven's unique characteristics on the Intracoastal WatelWay (ICW), and the extent to which marina development can launch other development activities that result in revitalization of downtown Belhaven.

The analysis showed local markets to be relatively flat, and characterized by only slow growth. However, the regional economy is well diversified and growing rapidly, thereby increasing future prospects for Belhaven to realize future opportunities for growth and development.

Most importantly, the analysis showed the development potential of the Belhaven waterfront to be quite high. The strengths of the area for high quality water-oriented residential development and accompanying retail/ lodging and food/beverage development include the following:

In summary, the market analysis indicated development on the Belhaven waterfront in the immediate future would not be a "demand push" situation, but rather, it could be a "supply pull" situation assuming carefully prepared initial developments succeed and test the market for quality residential development and supporting uses in an attractive marine environment. The quality tone established by initial developments like Cypress Landing begins to define target markets/affluent seniors, second home North Carolinians, and savvy investors who understand the benefits of ground floor investments in high quality marine communities.

Existing Conditions Analysis 2003

Strengths

The Belhaven waterfront has tremendous potential for redevelopment. The following are strengths of the area:

Issues

Issues to be overcome in order to realize the potential of the downtown include the following:

2003 Land Use and Design Framework

Existing 2003 land use and the design framework drawings are shown on the next page. On page 6 is an overlay on the Water¬front Master Plan that provides information of some of the revitalization activities that have taken place wince the first plan was completed.

2005 Update

The map on page 6 shows the 2003 Waterfront Master Plan and indicates which properties have changed hands or are under contract to develop uses in accordance with the plan. In addition to the larger properties shown in this drawing, many additional downtown properties have also changed hands, or are planned for renovation/redevelopment by the present owners.

With these changes, some existing issues are more urgently in need of answers, and a new a new set of issues and opportunities must be addressed:

Downtown Analysis

The existing conditions in the downtown area have not changed dramatically since the Waterfront Master Plan was completed in 2003. Dixon-Hole Partners has purchased the former Sea Safari property, demolished the buildings on the site, and obtained approval for a plan including 36 condominiums and 42 boat slips. Construction on this project is scheduled to begin in late summer/early fall 2005. The same company also has an option on the Town-owned property at the foot of Pamlico Street, the former Belhaven Fish and Oyster property.

The former Robb's Marina is now closed and for sale, as are several waterfront properties to the west of the hospital. Quite a few downtown properties have also changed hands, are for sale, or the present owners are in the planning stages of revitalization or redevelopment.

The drawings shown below were prepared from "windshield" surveys taken in November, 2004, and presented in February, 2005. The Land Use drawing shown at left reveals that there is only a very small core of traditional retail uses in the downtown. There are many government and institutional uses, and quite a few vacant properties.

The Architectural Quality drawing reveals that there are a few significant structures, many of them clustered around the intersection of Pamlico and Main Streets. These should be preserved if possible, keeping in mind that they will need to be ftoodproofed if that has not already been done. Contributing buildings should be considered on a case-by-case basis if any change is considered. The buildings classified as having had significant alterations or as non-contributing should be considered for redevelopment.

The Building Condition drawing reveals that many of the architecturally significant buildings have been well-cared-for and are in excellent condition. This will help to reinforce the recommendation to preserve these buildings. If desired, property owners could consider applying for listing of individual buildings on the National Register. If major renovations are being considered, the federal and potentially state tax credits could be very beneficial to the renovation process.

Considered together, the analysis drawings suggest to the consultants that the remaining significant buildings should be preserved, but that the majority of buildings could be replaced over time. In order to reinforce any historic context that remains, it will be important to ensure that new buildings enhance and complement the historic buildings. That means that new buildings should be similar in style, materials, and proportions to the best examples of historic buildings in Belhaven and elsewhere in the eastern North Carolina communities. The second phase of the downtown plan includes preparation of design guidelines for the entire waterfront master plan area.

The Downtown Master Plan

The Downtown Master Plan is shown on the following page, and a sketch prepared from the plan is shown below. The plan will be discussed in detail in this section, and supplemented with street-scape cross-sections and elevations of typical proposed buildings.

Addressing the Flooding Problem

One of the most persistent problems the plan addresses is downtown flooding. Allison Platt & Associates is a landscape architecture and urban design firm, so to solve this problem the consultants talked with state agencies and civil engineers who could help us to formulate a workable solution. The biggest problem with intermittent flooding is around Wynne's Gut, and is caused by wind-driven water and rain events. It is acknowledged that flooding from major storms, such as hurricanes, cannot be controlled, but the flooding caused by lesser events can be alleviated by several methods used in combination, including:

The actual drawings and plans for this work will need to be prepared by engineers and hydrologists and approved by the State, but with the advice we have received, AP&A feels confident in recommending this solution, as shown on the left.

The down side of the solution is that if a backflow prevention device is installed at Water Street, the Gut will no longer be navigable. As it is, however, the Gut is only marginally navigable, and the up side is that if the road is lifted over Main Street, the interior portions of Wynne's Gut and the created wetlands will become navigable. If properly designed and maintained, this interior area could become a draw for the community, and offer the chance for paddle boats, canoes, and/or kayaks to enjoy the Gut and the new wetlands. This type of boating experience is not possible now be¬cause for many people, Pantego Creek and the Pungo River are too dangerous for this type of casual use by small craft. The created wetlands also provides opportunity for educational trails, markers, and walks and for a small business to rent boats.

If it is not possible to use a backflow prevention device at Water Street because of concerns about navigability, it will still be possible to alleviate the flooding problem through a combination of other measures. Backflow prevention will also be necessary where water drains into the Gut, whether or not it is installed at Water Street.

One strong recommendation regarding implementation of this project: to ensure an attractive solution rather than a strictly functional solution, we advise hiring consultants with a portfolio of projects that show the ability to design not only a well-engineered project, but also an attractive amenity. The consultants visited the flood control project at Jack's Creek in Washington, and although it accomplishes flood control, it is by no means an open space amenity.

The solution to the flooding problem also presents the opportunity to create an open space amenity, a gateway, and a new image for Belhaven. At the present time, when Main Street floods, this creates a negative impression of the community at a major gateway into the downtown. Allen Street would probably have to be partially closed north and south of Main Street in order to berm Wynne's Gut and raise the road over it. Although the Main Street crossing would technically be a culvert, we recommend that it be designed as a distinctive bridge, with pedestrian walks and special paving and lighting. This will form an attractive gateway and highlight the conversion of Wynne's Gut from a drainage area to water feature.

Once the road at Main Street is lifted, Wynne's Gut and the created wetlands will no longer be separated into two parts at Main Street, allowing the entire length of the waterway to become an (re)unified waterway. The plan shows new parkland with interconnected walkways, adjacent restaurants, an amphitheater, and access to nearby ball fields. When the railroad right of way is converted to a hiking/biking trail, access to open space will expand dramatically in Belhaven. Parking can be accommodated behind the John A. Wilkinson Center to the west.

The open space around Wynne's Gut also connects to planned waterfront walkways around the hospital and on the property at the foot of Pamlico Street. Many citizens expressed a desire for a waterfront promenade similar to that in New Bern, but this is not possible because of the many inlets and private ownership along the water. This plan seeks to address this desire by expanding waterways into the heart of the downtown and creating public access along the Creek on both sides of Wynne's Gut and on the hike/bike trails on the railroad right of way.

New Streetscapes and New Buildings

While designing improvements to the streetscapes downtown, it was also necessary to consider how new buildings would fit into the street and with adjacent buildings, given that these new buildings would be raised 4' to avoid flooding. The consultants chose several sites that might be appropriate for redevelopment and that illustrated different sets of problems that required solutions if raised buildings were to work within the existing and planned context. These examples should not be taken as literal recommendations for these sites, but rather as possibilities.

Pamlico Street Improvements

Pamlico Street between Main Street and Water Street serves as the heart of the downtown more than any other block, both because of the predominance of retail uses, and because it terminates with a view to the water. The goal for this and all downtown street improvements is first and fore¬most to provide sufficient sidewalk width to make the sidewalk comfortable and inviting for pedestrians. The downtown should be a place where you park your car and walk.

The public right of way on Pamlico is quite narrow at 60 feet. The upper cross section at left shows the street as it is now, and the lower cross section shows the proposal for improvements. Sidewalks on Pamlico Street between Water Street and Pungo Street have been widened from 8 feet to 11.5 feet, mostly by removing head-in parking and replacing it with parallel parking. Detailed design for the streets will be undertaken at a later time, but if possible, the consultants recommend that downtown sidewalks be paved with brick.

The cross section on the previous page also shows how the change in elevation would work with new buildings. The building shown there is also shown in the plan detail at left and the elevation below. To accomplish a 4 foot change in elevation in a confined area (50 feet of ramp is required to go up 4 feet at 8%-¬the maximum grade allowed), the ramp must double on itself, plus provide intermediate 5 foot landings for turning at the top, the middle, and the bottom (see cross section and elevation). This requires 35 feet of frontage. Stairs would require another approximately 6-10 feet of frontage. The frontage shown on this building is 80 feet, and although stairs and a ramp could fit in frontage of only about 45', it is recommended that the minimum frontage for new buildings be at least 70-80 feet, allowing for some area(s) of wider pavement at the upper level. To accommodate the width of ramps doubled on themselves, the minimum setback of new buildings from the street should be approximately 20', or 10' clear of ramps and stairs at the upper level. As illustrated in the section and elevation, this standard allows a comfortable clearance and a graceful transition in height, and provides space for outdoor dining, seating, and landscaping, essentially expanding the streetscape to the upper level.

Main Street Improvements

The second streetscape cross section, plan and elevation are on Main Street, and these are drawn near the intersection with Pamlico, where a collection of vacant land and underutilized buildings provides the opportunity for a significant new building.

The street cross section at the top shows the existing conditions on Main Street between Allen and Pamlico Streets. The street right of way in this area is 70 feet, although it varies considerably from block to block, and some¬times even within blocks. Wide moving lanes and head-in parking on the south side, combined with narrow sidewalks with no amenities, make this street seem very uninviting both for pedestrians and as a gateway into the downtown. Because this is a state road, it will probably not be possible to make the moving lanes narrower (although if NCDOT could be convinced, it would be worth it), so they are shown remaining at 14 feet. The extra width for the sidewalks is accomplished by removing head-in parking as in the previous example on Pamlico Street. There is adequate parking supplied in off-street lots as shown in the plan.

The new building shown on the next page and in the plan is approximately 250' in length. Such a large amount of frontage allows the ramps to be run straight along the edge of the sidewalk, rather than doubling back, providing additional room for outdoor dining, seating, and landscaping. The consultants do not recommend that the upper ramp be allowed to be narrower, since the scale of a building of this size will require more space to feel in scale with the rest of the downtown.

Proposed cross sections for Main Street from Haslin Street west to the bridge will be prepared with the design guidelines.

Water Street Improvements

Water Street is the narrowest of the downtown streets (35 feet in some locations, although this width varies), yet it is a very significant street because it is the only public waterfront "address" within the downtown. Although all the streetscape should be similar in choice of materials and fixtures, it is recommended that Water Street receive some special treatment to celebrate its waterfront identity. This might be conveyed through banners, artwork, color, signage, or some combination of these elements. Wherever possible, the treatment of public waterfront walkways should be similar to the design of Water Street to provide visual cues regarding public and private space.

Because of the narrow right of way, the streetscape cross section was set up to work in the 35 foot section, with two moving lanes and 12 foot sidewalks. In areas where more room is avail¬able or where it is possible to acquire additional right of way, a parking lane on one or both sides can be added. The cross section shows two 13 foot moving lanes, or it could also include two 10 foot lanes plus a bike lane. In either case, the 26 foot width is needed to allow passage of a third vehicle in case a vehicle is parked or disabled, or to provide emergency access. If additional right of way can be obtained along the entire length of Water Street from Robb's Marina west to past the hospital, then parking and/or additional amenities for this important street can be included when this street is designed in detail.

Waterfront Development Opportunities

The most important downtown waterfront development site now available for redevelopment is the former Belhaven Fish and Oyster Company property at the foot of Pamlico Street, now owned by the Town and optioned to a developer. The community has expressed a strong desire to have access to the water at this site be¬cause of its prominent location at the foot of Pamlico Street. The plan shown at left illustrates the preferred development plan, one that has gained acceptance by the community, and one that will require the cooperation of the Town and the developer to implement. The left hand portion of the wharf is the portion owned by the Town and optioned to the developer (shown in white). The building shown on the plan cannot be built at this density without acquisition of the land on the right half of the wharf (shown in yellow and privately owned), and perhaps also the triangular parcel on the left (shown in orange and owned by the Town). The yellow parcel would need to be acquired by the Town, and would eventually become the public part of the wharf, ensuring the protection of viewshed down Pamlico Street to the water. This yellow and orange portions of the site would be transferred to the developer in order to provide sufficient land area to allow construction of a higher density building and to meet the requirements for waterfront development permitting. Once this is accomplished, the triangular parcel and the left-hand parcel can be deeded back to the Town as a public park. A Memorandum of Understanding (MOl) can be prepared to ensure that the goals and responsibilities of all parties are met.

The plan shows public access around the entire perimeter of the site on wooden walkways, and a gazebo at the end of the pier for viewing the Creek and for occasional events or concerts. The parking lot is shown paved as a plaza, and although this is not evident on the drawing, it will also be necessary to ensure that the parking area is a "pervious" surface (allowing water to drain in place). Stormwater collection areas should also be located under the parking area.

The building shown is three stories, with the possibility of greater density if permitting allows and if the Town and the developer can reach an agreement regarding the public use of the land. Uses would be commercial on the ground floor and residential above. The building is surrounded by 4 foot high terraces as in the downtown, although these terraces could be wood if this will be required to meet the permitting requirements (masonry would be preferred). The raised terraces provide opportunities for restaurants with outdoor dining, and the most desirable location for this use will be at the end of the building facing the water, where a wider terrace is shown on the plan.

There are two sets of slips shown on this property. The pier on the left are intended to be for the private use of owners of the condominium units. The pier on the right is intended to be a public facility with transient slips and a dinghy dock for boats anchored offshore. There would also be additional tie-up space along the edges of the wharf on both sides.

Other development on the waterfront within the downtown has not been drawn on the plan because the disposition of several parcels is not clear at this time. Of particular interest is the Robb's Marina site. This site can probably most profitably be developed for additional housing, although maintenance of a transient marina use would be desirable for downtown business.

Other Downtown Development

Other development in the downtown is suggestive rather than literal. Buildings are shown in areas where there are vacant lots, no significant buildings, or underutilized properties. One of the significant up sides of improvements to Wynne's Gut is that if improved appropriately, many "inland" properties along the Gut will become more valuable because they will have "waterfront" views and direct access to the new open space. The numbers are keyed to the drawing on the next page.

The two buildings keyed #1 would be excellent locations for restaurants. These sites offer the opportunity to have outdoor decks overlooking the Gut and direct at-grade access to the trails along the top of the berm. These buildings are envisioned as one story, but could be two stories with upper level banquet rooms or other uses. The buildings closest to Water Street would have excellent pedestrian and boater access, and views to the Creek.

Building #2 sits on a key corner across from the Town Hall building. Like the #1 buildings, ramps and stairs would rise to an upper level on the street side, but decks at that level in the rear would provide direct access to the trail system and views south down the Gut to the more open waters of the Creek.

The two buildings keyed #3 present an opportunity to create more value on this land. At the present time these properties include several small houses and a hardware store. The hardware store would probably be more successful on Route 99, where visibility, parking, and access are better. Two buildings of at least three stories with ground floor commercial or professional offices would no doubt do well here. The uses on the ground floor (and even some upper floors) might include doctors' offices or other medical-related uses.

The building keyed #4 is located on a highly visible corner with spectacular views over the water. Because of this, it would be a very desirable location for both commercial/restaurant and residential uses. The feasibility of this project will depend on the willingness of the owners to sell, especially the owner of the very popular Farm Boy's restaurant. It may be possible to relocate the restaurant nearby, or to locate it in the ground floor of a new building.

Site #5 is slated to be used for a Town Emergency Services facility, although the consultant has not been shown any plans. It is our opinion that this block, or at least the south side of it facing Water Street, should be allowed to be developed for new commercial and residential uses. The reason for this is that the land to the west of Railroad Street will probably be developed for housing as other projects come on line over the years. If this is the case, the south side of the block will become an important pedestrian connection between the site and the downtown, so this block should have active uses attractively sited to make the walk a pleasant and inviting one. By the same token, the Boy Scout building on the southeast corner of the block could be relocated, perhaps to an area nearer the new open space system further north around Wynne's Gut. The electrical transformers on Water Street should be screened if development occurs nearby (or even if it doesn't). There are many nearby locations where an Emergency Services facility could be located, such as north of Main Street to the west of downtown, rather than locate such uses on land that is finite and will become more and more valuable over time. The Town is more likely to help pay for such a facility if they allow this block to be developed.

Site #6 is currently being used by a cable television company. Although this is not likely to be developed early in the process, when the open space around Wynne's Gut is completed there may be sufficient market to allow this site to be redeveloped for housing.

The hospital is a great asset to the community. In the long term, however, another location for the hospital would allow redevelopment of this prime waterfront site. In the near term, the plan calls for reorganization and screening of parking to allow installation of waterfront walkways and temporary docking for visitors.

Locations for downtown parking are shown outlined in blue on the plan on page 18. Funds from a TIF district or from the
general increase in tax revenues could be used to improve or create the parking areas shown, with the understanding that these will be shared parking facilities rather than dedicated spaces. With more residents living downtown and more successful businesses, this overlapping usage of shared parking usually supplies more than adequate spaces for the needs of residents, workers, and visitors. Please note that the parking lot behind the block bounded by Main, Pamlico, Water and Allen Streets is shown as paved with a decorative finish rather than with asphalt. This would allow the area to be used for Town activities from time to time.

Long Term Development Opportunities

In the long term, it may be useful to consider whether the town medical facilities and doctors' offices are best located on the waterfront. Although there is no need or reason to even consider such a move in the next five years at least, in the long term, if redevelopment of the downtown is successful, the property on which the hospital is located would become very valuable; valuable enough that it would be worthwhile to relocate to a another site on less expensive land, and use the difference in land value to help improve the facility. The hospital is not a building that requires a view, nor does water access seem to offer any great advantage. Plus the building is subject to flooding at it's present elevation. A piece of property so central to the downtown and with water access on two sides would be ideal for a small hotel or for residential/mixed use with a public/private marina.

Although no change is anticipated in the near future, it might be wise to anticipate future change by placing a requirement on any future use (or change in use) to provide public access around the edge of the property, or by establishing a public right of way.

Infrastructure

The previous plan already discusses many of the requirements and recommendations regarding infrastructure changes and improvements needed to help implement the plan. One main barrier to streetscape improvements will be the overhead electrical lines, especially on Main Street. These are not as much of a problem west of Haslin Street, but the lines will interfere with street trees from Haslin east to Pamlico Street. Because of the size of these lines and the tremendous cost of burying them, the consultants recommend that the Town consider rerouting them behind the buildings. Then the only place they might need to be buried would be under the intersection of Main and Pamlico Streets.

This view looking southwest.from the northeast corner of Main and Pamlico shows the many overhead utility lines. Although it will probably not be feasible to bury the lines, they could be re-routed to allow planting of street trees on main and Pamlico Streets. The lines could be run along the backs of the buildings on the north and/or south side of Main.

Revitalization Strategies

Introduction

Much of the private sector development may happen with very little help from the public sector, but this is not necessarily a desirable outcome. With no guidance, the community will have little control over the form and character of new development, other than what is specified by zoning. An excerpt from the Hunter Interest report bears repeating here:

Together, these three properties [detailed in their report, including a waterfront marina and residential development], developed in the sequence described herein, will ensure that downtown Belhaven is, in fact, revitalized by the economic activity associated with its waterfront development, and furthermore, that these properties are developed in the proper market tone to ensure their highest and best use. The developers of Cypress Landing could have opted for a lesser quality development, seeking the mainstream of the market, rather than the higher end. Fortunately, they didn't do that, and they demonstrated successfully that higher quality development is indeed possible if it is properly done, with excellent amenities, even in these rural county areas.

The development of the Belhaven waterfront should be implemented carefully, very deliberately, in sequence, as markets are tested and created for the uses that will eventually come in. If these few key waterfront properties are allowed to develop prematurely for lesser quality development at lower densities, the opportunity for exemplary development of the Belhaven waterfront will be lost in the process, prospects for downtown revitalization in Be/haven will be much less than they otherwise can be.

Working Towards the Future

The rest of this section recommends a series of overlapping actions needed from the public sector to help ensure orderly and appropriate development that will create an enhanced image and improved economy for Belhaven. Not all of these actions may turn out to be feasible. Rather these recommendations should be considered a "kit of parts" that can be utilized as needed or as opportunities and challenges arise. We have also suggested timeframes and the groups, departments or organizations that would be responsible for overseeing implementation or funding parts of the plan. These groups may change over time, but the overall goals remain the same.

Administrative Actions Needed

Approve the Plan. One of the most important steps that should be taken is for the Town to approve and adopt the plan. This will give the development community assurance that they can proceed with plans for redevelopment with confidence they will be supported by the public sector. Responsibility: Town. Timeframe: as soon as possible, given the development pressure in play.

Write, approve, and implement design guidelines. The best way to ensure quality development is to set standards, and be willing to demand they be met. Development for its own sake is not necessarily desirable. Design guidelines set standards for architecture, site planning, landscaping, screening, signage, materials, and other elements that help define the character of a place. Zoning by itself only sets minimum standards for construction rather than community goals. The best developers are not put off by design guidelines, since they know if they build a quality project, their investment will be protected because others will be held to the same standards. Implementation of design guidelines will probably involve the creation of zoning overlay districts and the formation of a design review committee, which will work with the planning board. Preparation of design guidelines is the next phase of work for Allison Platt & Associates. Responsibility for approval and implementation: Town Council and planning board. Timeframe: as soon as possible after completion, given the projects already in the planning and approvals stages.

Consider placing a moratorium on building permits for major new development within the waterfront and downtown development areas until design guidelines, overlay districts, and a review process are in place. An important recommendation of this and the previous plan has been to ensure that the first few projects completed in Belhaven be considered carefully and that the Town require high quality development. In the absence of any objective criteria or standards by which to judge new development, the consultants urge the community to consider a moratorium on new building permits in the plan area so that guidelines can be written, reviewed, approved and put in force. It is important to understand that there is nothing at fault about the agencies or codes in place, except that the codes are based on Belhaven's past, not its future, and they may not be relevant to the type of waterfront development being planned. Timeframe: Within the next three months, and until the guidelines, overlay districts, and review process are in place. Responsibility: Town Council, Planning Board, and planning staff.

Evaluate the need for a Self-Financing (TIF) district. See next section for details about the need for and the benefits of a Tax Increment Finance District for the downtown. Responsibility: Belhaven DARE and Town Council. Timeframe: begin investigation immediately, with the goal of having a district in place (if this is the decision) within a year.

Contract for design development work on the Wynne's Gut flood control/beautification project and begin identifying potential sources of funding. Solicit proposals for feasibility studies and design development of the Wynne's Gut area. It will be essential that any firm or firms chosen for this work has a portfolio that demonstrates the capability of creating an amenity rather than just a functional flood control project. At the same time, begin research and discussion with any foundations or state and federal agencies that could provide funding for such a project. If any prospective developers require wetlands remediation, this project might provide the opportunity to partially fund the project in this manner. Timeframe: a goal of having a consultant under contract by the end of 2005. Responsibility: Town of Belhaven, with assistance from Belhaven DARE and the Beaufort County EDC.

Reconsider appropriate uses for the block bounded by Railroad, Water, Haslin and Main. The Planning Board and the Town Council should consider whether all or part of this block might be allocated for private development rather than strictly for public use. Timeframe: within six months.

Take action to ensure public access to selected waterfront properties. The public has said repeatedly that they feel it is important to have access to the waterfront at key points within the downtown, and the plan shows such access around the periphery of the hospital and at the foot of Pamlico Street. To accomplish this, it will be necessary to negotiate with the current property owners and with prospective developers. In order to obtain these rights of way, negotiation between the developers/owner and the Town will be necessary. In return for allowing public access, the Town could agree to a range of benefits for the developers, including relaxing parking requirements, allowing higher densities, contributing to or paying for site improvements for public areas, and so on. These types of negotiations and agreements are common in larger cities, and can be used to advantage by the Town of Belhaven to accomplish desired benefits for its citizens. Timeframe: Begin immediately, since the Be/haven Fish and Oyster property is now under option. Responsibility: Town of Be/haven, with assistance from Be/haven DARE and consultants as needed.

Creation of a Self-Financing District

Just this January, North Carolina voters approved the creation of special districts to assist communities with revitalization. To quote from a publication of Kennedy Covington, the law firm that helped draft the legislation (the full text of this publication is included as an appendix to this report, with permission):

This revitalization tool is used widely throughout the country with great success. Several projects have begun to work their way through state approvals, and it is the consultant's opinion that Belhaven is a strong candidate for such a district. In the current climate of budget deficits, where it becomes less likely that grant money can be obtained to help implement plans such as this one, such districts could be an invaluable "self-help" strategy. Other possible strategies for raising funds to cover public infra¬structure improvements are included in the next section.

The Town of Belhaven is currently about a square mile in area, and if five percent of the total land area can be included, that results in a possible district of 32.5 acres. The illustration on the previous page shows how such a district might be configured in the downtown. It might be possible to expand this area through annexation of additional land as part of the town, but this is a difficult and time-consuming undertaking in itself, so the risk! benefit calculation would be needed to see if such a course makes sense.

The district as shown would probably be large enough to generate significant tax increments for public improvements within the downtown. To capture these funds, it will be necessary to move forward with plans for the district as soon as possible, because if a project is already built (as the project on the former Sea Safari site almost certainly will be by the time a district can be put in place) it cannot be used to calculate the tax increment, but will instead become part of the base value (see appendix A for a more thorough discussion of these issues).

Other Funding Strategies

In addition to, or instead of Self-Financing Districts, other possible sources of funding public improvements should be pursued. Begin identifying possible funding sources for specific projects as soon as possible. All interested agencies, individuals, and groups should share ideas on ways to get elements of the plan implemented.

Responsibility: All agencies and entities concerned with revitalization. Timeframe: begin immediately, ongoing.