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2012 – 2022 Clyde Land Use Plan

Town of Clyde, NC

Adopted by the Clyde Board of Aldermen on October 10, 2012

ACKNOWLEDGEMENTS

The 2012 – 2022 Clyde Land Use Plan is the result of a multi-year effort by the Town of

Clyde’s elected officials, appointed board and committee members, staff and citizens

working in partnership with other local and state government agencies, community

organizations, business owners, schools, and many others.

Town of Clyde Board of Aldermen

Jerry Walker, Mayor

Carroll Mease, Mayor Pro Tem

Gary Cochran, Aldermen

James Mashburn, Aldermen

Jim Trantham, Aldermen

Town of Clyde Planning Board

Howell Brown, Jr., Chair

Scott Cook

Diane Fore

Ryan Jacobson

Eddie Lail

Joseph Sellars

Dinah Smith

Mandy Williamson

Town of Clyde Land Use Plan Committee

Scott Cook, Chair

Howell Brown, Jr.

Gary Cochran

Joy Garland

Chris Hnatin

Linda Marquis

James Mashburn

Alan Trantham

Town of Clyde Staff

Joy Garland, Town Administrator

Sheila Kirkpatrick, Town Clerk

Joy Lindsey, Assistant Town Clerk

Charlie Palmer, Maintenance Superintendent

Other Contributors

Sara Queen Brown, Chair, Clyde Historic Preservation Commission

Chris Hnatin, Former Town Planner (N∙Focus)

Gerald Green, AICP, Former Town Planner (N∙Focus)

Technical assistance provided by: The North Carolina Department of Commerce Division of Community Planning Western Regional Office Karen Smith, AICP, Chief Planner*

Virginia Faust, AICP, Senior Planner

Kristy Carter, AICP, Community Development Planner

Ron Hancock, AICP, Community Development Planner

Glen Locascio, Business and Technology Applications Analyst* *2012 – 2022 Clyde Land Use Plan Project Leads

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Table of Contents

INTRODUCTION ....................................................................................................................................................... 1

Purpose of the Land Use Plan ........................................................................................................................ 1

Land Use Plan Development Process ............................................................................................................. 2

OVERVIEW ............................................................................................................................................................. 2

Location/Planning Area ................................................................................................................................. 2

Community History/Historical Context .......................................................................................................... 3

Public Involvement ......................................................................................................................................... 5

Land Use Plan Vision Statement .................................................................................................................... 5

INTRODUCTION ....................................................................................................................................................... 7

DATA SOURCES ....................................................................................................................................................... 7

POPULATION CHARACTERISTICS ................................................................................................................................. 7

Town of Clyde Population .............................................................................................................................. 7

Extraterritorial Jurisdiction and Study Area Populations ............................................................................. 10

Population Growth Rates ............................................................................................................................. 12

Municipal Proportion of County Population ................................................................................................ 13

Population Density ....................................................................................................................................... 14

Elements of Population Change ................................................................................................................... 15

Town of Clyde Population Projections ......................................................................................................... 18

2010 Census Results ..................................................................................................................................... 21

Study Area Population Projections ............................................................................................................... 22

Median Age .................................................................................................................................................. 22

Age Distribution ........................................................................................................................................... 23

Race and Ethnicity........................................................................................................................................ 24

Households................................................................................................................................................... 25

INTRODUCTION ..................................................................................................................................................... 27

TRANSPORTATION ................................................................................................................................................. 28

Roads and Bridges ....................................................................................................................................... 28

Bicycle Facilities ........................................................................................................................................... 34

Pedestrian Facilities ..................................................................................................................................... 36

Public Transit ............................................................................................................................................... 38

Railroad Transportation ............................................................................................................................... 39

WATER SUPPLY AND WASTEWATER DISPOSAL SYSTEMS ............................................................................................... 39

Water Supply Systems.................................................................................................................................. 40

Wastewater Disposal Systems ..................................................................................................................... 44

Water and Sewer System Planning, Financing and Administration ............................................................. 45

OTHER PUBLIC FACILITIES AND SERVICES .................................................................................................................... 49

Town of Clyde Facilities and Properties ....................................................................................................... 50

Schools ......................................................................................................................................................... 51

Other Public Facilities and Properties .......................................................................................................... 53

Flood Buyout Properties ............................................................................................................................... 53

Government Services ................................................................................................................................... 54

GOALS, RECOMMENDATIONS, AND STRATEGIES .......................................................................................................... 57

INTRODUCTION ..................................................................................................................................................... 62

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WATER RESOURCES .............................................................................................................................................. 62

Watersheds and River Basins ...................................................................................................................... 62

Water Quality.............................................................................................................................................. 62

Water Quality Management and Regulations ............................................................................................ 65

Water Quality Protection Plans and Programs ........................................................................................... 71

Wetlands ..................................................................................................................................................... 72

Drought and Water Quality ........................................................................................................................ 73

FLOOD PRONE AREAS ........................................................................................................................................... 75

Flood Hazard Areas ..................................................................................................................................... 75

Floodplain Management ............................................................................................................................. 77

Flooding History .......................................................................................................................................... 81

STEEP SLOPES AND MOUNTAIN RIDGES .................................................................................................................... 88

Slope Categories.......................................................................................................................................... 88

Development on Slopes ............................................................................................................................... 88

Steep Slope and Mountain Ridge Protection Regulations ........................................................................... 89

Other Steep Slope and Mountain Ridge Protection Resources and Efforts ................................................. 90

GOALS, RECOMMENDATIONS, AND STRATEGIES ......................................................................................................... 93

INTRODUCTION .................................................................................................................................................... 95

DOWNTOWN REVITALIZATION ................................................................................................................................ 95

Setting ......................................................................................................................................................... 95

Character .................................................................................................................................................... 96

Community Appearance .............................................................................................................................. 97

Business Area Redevelopment Planning Grant ........................................................................................... 99

Carolina Boulevard Improvements ............................................................................................................ 101

Downtown Buyout Properties ................................................................................................................... 102

Downtown Planning .................................................................................................................................. 102

ECONOMIC DEVELOPMENT .................................................................................................................................. 104

County Economic Tier Rankings ................................................................................................................ 105

Income ...................................................................................................................................................... 106

Poverty ...................................................................................................................................................... 106

Employment .............................................................................................................................................. 107

Unemployment ......................................................................................................................................... 111

Existing Businesses .................................................................................................................................... 113

Tourism ..................................................................................................................................................... 114

Economic Development Resources and Plans ........................................................................................... 114

GOALS, RECOMMENDATIONS, AND STRATEGIES ....................................................................................................... 117

COMMUNITY CHARACTER .................................................................................................................................... 120

Community Appearance ............................................................................................................................ 120

Historic Resources and Preservation ......................................................................................................... 120

Cultural Amenities and Resources ............................................................................................................. 122

Rural/Agricultural Character ..................................................................................................................... 123

The Pigeon River........................................................................................................................................ 129

Community Events .................................................................................................................................... 129

Community Facilities ................................................................................................................................. 130

QUALITY OF LIFE ................................................................................................................................................ 131

Community Health .................................................................................................................................... 131

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Local Foods ................................................................................................................................................ 133

Housing ...................................................................................................................................................... 134

GOALS, RECOMMENDATIONS, AND STRATEGIES ........................................................................................................ 144

EXISTING LAND USE ............................................................................................................................................. 149

Existing Land Use ....................................................................................................................................... 149

Summary of Existing Land Use Findings..................................................................................................... 150

DEVELOPMENT PATTERNS AND TRENDS ................................................................................................................... 151

Previous Land Use Plans ............................................................................................................................ 152

Development in the Clyde Area .................................................................................................................. 154

Current Land Use Pattern and Prior Land Use Plans ....................................... Error! Bookmark not defined.

FUTURE LAND USE .............................................................................................................................................. 159

Introduction ............................................................................................................................................... 159

Public Input ................................................................................................................................................ 160

Guiding Principles for Future Land Use ...................................................................................................... 160

Future Land Use Categories and Map ........................................................................................................ 161

Using the Future Land Use Categories and Map ....................................................................................... 165

GOALS, RECOMMENDATIONS, AND STRATEGIES ........................................................................................................ 166

Lists of Maps, Tables and Figures

Figure 1: Town of Clyde Population, 1890 – 2010 ................................................................................. 8

Figure 2: Town of Clyde Population Growth Rate, 1890 – 2010 ........................................................... 9

Table 1: 2009 Population Estimates Compared to 2010 Census Results ............................................ 10

Table 2: Town of Clyde’s Extraterritorial Jurisdiction 2010 Population Estimates1 ............................. 11

Table 3: Population Growth: Municipal, County and State, 1960 to 2010 ......................................... 12

Table 4: Incorporated and Unincorporated Area Populations in Haywood County, 1980 - 2010 ...... 13

Figure 3: 2010 Haywood County Incorporated and Unincorporated Area Populations ..................... 14

Table 5: Population Density (Persons per Square Mile): Municipal and County, 1990-2000 ............. 14

Table 6: Components of Population Growth in Selected Counties and State, 1980 to 19901 ............ 15

Table 7: Components of Population Growth in Selected Counties and State, 1990 to 20001 ............ 15

Table 8: Population Growth in Selected Counties, 2000 to 2010 ....................................................... 16

Table 9: In-migration1: Municipal and County, 1980-2000 ................................................................. 17

Table 10: Town of Clyde Annexation History, 1980-2011 ................................................................... 17

Table 11: 2009 Estimated Population: Town of Clyde and Haywood County ..................................... 18

Table 12: Town of Clyde Population Projections, 2010 – 2030 (Method 1)........................................ 18

Table 13: Town of Clyde Projected Population Growth, 2010 – 2030 (Method 1) ............................. 19

Table 14: Town of Clyde Population Projections, 2010 – 2030 (Method 2)........................................ 19

Table 15: Town of Clyde Projected Growth, 2010 – 2030 (Method 2) ............................................... 19

Table 16: Summary of Method 1 and Method 2 Population Projections for the Town of Clyde ....... 20

Table 17: Comparison of Method 1 and Method 2 Population Projections for the Town of Clyde ... 20

Figure 4: Comparison of Population Projections for the Town of Clyde, 2010 – 2030* ...................... 21

Table 18: Population Projections: Town of Clyde, Clyde Extraterritorial Jurisdiction and Land Use

Plan Study Area, 2010 – 2030............................................................................................................... 22

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Table 19: Median Age, 1980-2010 Haywood County, Haywood County and North Carolina ............ 23

Table 20: Projected Median Age: Haywood County and North Carolina, 2020 & 2030 ..................... 23

Table 21: Town of Clyde Age Distribution, 1990, 2000 and 2010 (Combined Age Cohorts) .............. 24

Table 22: Racial Composition of Population (Percent), 2000 and 2010 ............................................. 24

Table 23: Hispanic or Latino Ethnicity of Population (Percent), 2000 and 2010 ................................ 25

Table 24: Number of Households: Municipal, County and State, 1980 – 2010 ................................... 25

Table 25: Persons per Households (Average Household Size): Municipal, County and State, 1980 –

2010 ..................................................................................................................................................... 26

Table 26: Deficient Bridges in Clyde Land Use Plan Study Area ......................................................... 32

Table 27: Clyde Water System Improvement Projects Proposed in the Wastewater System Master

Plan and Preliminary Engineering Report ............................................................................................ 41

Table 28: Preliminary Cost Estimates for Recommended Capital Improvement Projects in the Clyde

Stormwater Management Master Plan ............................................................................................... 68

Figure 5: Riverine Floodplain Illustration ............................................................................................ 76

Table 29: Flood Hazard Areas in the Clyde Land Use Plan Study Area ............................................... 77

Table 30: Largest Recorded Floods on the Pigeon River in Clyde ....................................................... 81

Table 31: Town of Clyde Flood Remediation Actions Recommended by the 2006 Flood Damage

Reduction Planning Report .................................................................................................................. 83

Table 32: Estimated Construction Costs for Recommended Flood Damage Reduction Projects (2009)

............................................................................................................................................................. 85

Table 33: Distribution of Slope Categories within the Clyde Land Use Plan Study Area .................... 88

Figure 6: Example of Best Management Practices for Building Placement on Slopes ....................... 89

Table 34: 2006-2010 Income Estimates ............................................................................................ 106

Table 35: 2006-2010 Estimated Poverty Rates ................................................................................. 107

Table 36: 2006-2010 Labor Force Estimates ..................................................................................... 107

Table 37: 2000 Labor Force ............................................................................................................... 108

Table 38: 2006-2010 Place of Work Relative to Place of Residence Estimates ................................ 108

Table 39: 2006-2010 Commute to Work Methods Estimates .......................................................... 109

Table 40: 2000 Commute to Work Methods .................................................................................... 109

Table 41: 2006-2010 Civilian Labor Force by Industry Estimates ..................................................... 110

Table 42: 2000 Civilian Labor Force by Industry ............................................................................... 111

Table 43: 2006-2010 Unemployment Rate Estimates ...................................................................... 112

Table 44: 2006-2010 Unemployment Rate Estimates by Level of Educational Attainment (Population

25 to 64 Years of Age) ........................................................................................................................ 112

Table 45: Examples of Economic Development Organizations Working in Western North Carolina115

Table 46: Town of Clyde Housing Characteristics, 1980 - 2010 ........................................................ 135

Table 47: Number of Housing Units per Structure in Clyde (2006-2010 Estimates) ........................ 135

Figure 7: Owner Occupied Housing Units as Percentage of Occupied Housing Units ...................... 136

Table 48: Median Value of Owner-Occupied Housing Units (1980-2000 Census) ........................... 137

Table 49: Median Value of Owner-Occupied Housing Units (2000 Census Figures and 2006-2010

American Community Survey Estimates ) .......................................................................................... 137

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Table 50: Median Gross Rent for Renter-Occupied Housing Units in North Carolina, Haywood

County and Municipalities (1980 – 2010) .......................................................................................... 138

Table 51: Estimated Gross Rent for Renter-Occupied Housing Units – Town of Clyde (2006-2010

Estimates) ........................................................................................................................................... 139

Table 52: Town of Clyde - Gross Rent as a Percentage of Household Income (2006-2010 Estimates)

............................................................................................................................................................ 139

Table 53: 2011 Fair Market Rents for Rental Housing Units in Haywood County............................. 140

Table 54: 2011 Rental Housing Costs Relative to Wages for Haywood County and North Carolina 140

Table 55: Age of Housing in Clyde (2006-2010 Estimates) ................................................................ 141

Table 56: Lack of Complete Kitchen or Plumbing Facilities in Occupied Housing Units, Town of Clyde

and Haywood County (2006-2010 Estimates) .................................................................................... 141

Table 57: Occupants per Room in Occupied Housing Units, Town of Clyde and Haywood County

(2006-2010 Estimates) ....................................................................................................................... 142

Table 58: Town of Clyde Population 65 Years of Age and Older, 1980 - 2010 .................................. 142

Table 59: One Person Households Age 65 and Older, 1980 – 2010 .................................................. 143

Table 60: Existing Land Use Categories – Clyde Land Use Plan Study Area ...................................... 150

Table 61: Existing Land Uses – Clyde Land Use Plan Study Area, Town Limits, and Extraterritorial

Jurisdiction .......................................................................................................................................... 151

Table 62: Residential Land Uses – Clyde Land Use Plan Study Area, Town Limits, and Extraterritorial

Jurisdiction .......................................................................................................................................... 151

Table 63: Current Zoning – Clyde Land Use Plan Study Area ............................................................ 157

Table 64: Parcel Sizes by Zoning District and Location – Clyde Land Use Plan Study Area, Town

Limits, and Extraterritorial Jurisdiction .............................................................................................. 158

Table 65: Average Parcel Sizes in Residential Zoning Districts in Clyde’s Zoning Jurisdiction.......... 158

Table 66: Future Land Use – Clyde Land Use Plan Study Area .......................................................... 161

Town of Clyde 2012-2022 Land Use Plan

Element One: Introduction and Overview | 1

Element One: Introduction and Overview

Introduction

The Town of Clyde previously completed at least two land use plans, a Land Use Survey and

Development Plan in 1964 and a Land Development Plan Update in 1975-76. Between 1976 and

2008, the Town enacted a variety of land development regulations and policies and has completed

some topic-specific plans; however it did not update its prior land use plan or develop a new one. In

effect, the other plans, ordinances and policies became the Town’s de facto land use plan.

In 2008, the Town of Clyde Board of Aldermen decided to undertake a comprehensive land use

planning project. The Board appropriated funds for the project in its fiscal year 2008-2009 budget.

In the fall of 2008, the Board appointed a 7-member Land Use Plan Committee comprised of

members of the Town’s Board of Aldermen, Planning Board and staff. It also enlisted the services of

the North Carolina Department of Commerce, Division of Community Assistance (now the Division

of Community Planning), to help the Town prepare its first land use plan in more than 30 years.

Purpose of the Land Use Plan

In general, a land use plan is a document that expresses a community’s long-range vision for its

future growth and development and recommends actions for achieving the vision.

The 2012 – 2022 Clyde Land Use Plan (also referred to herein as the “CLUP,” the “Land Use Plan” or

the “Plan”) is intended to serve as a guide for future planning and decision-making related to capital

improvements budgeting, development activities, downtown revitalization, the protection of

sensitive natural areas and more for the next 10 years. It contains information on existing

conditions, trends, issues and planning activities related to growth and development in areas such

as land use, water and sewer infrastructure, transportation, economic development, the

environment and natural resources and community facilities. It establishes growth and

development goals for the community based upon a vision statement developed by the Town of

Clyde and the community as well as analysis and discussion of the information described above. The

Plan also recommends strategies and actions that the Town of Clyde (and others) could take to

implement the established goals.

The CLUP is not an ordinance that the Town of Clyde must enforce. Rather, it establishes policies

that will provide the Town with a basis for decision-making and problem-solving. For example, as

the Town considers amendments to its Zoning Ordinance text and/or map, it would refer to the

Land Use Plan for guidance regarding how such changes will fit with or further the community’s

vision and goals. Town leaders may look to the Plan’s long-range recommendations related to

infrastructure and community facilities, for example, as they consider and budget for future capital


2 | Element One: Introduction and Overview

improvements. The Plan should be useful to citizens, developers and others looking to invest in the

Study Area because it explains the Town of Clyde’s intentions regarding land use management in the

future.

The value of the CLUP as a planning and decision-making tool will depend on its implementation and

use. The recommendations are intended to be somewhat flexible. Some may be implemented in

ways that are not specified in the Plan while for others, the implementing strategy is to conduct

further study. The Plan should be reviewed routinely to be sure that it is still relevant to what the

community wants to achieve. The Town of Clyde may find that it needs to alter the Plan from time

to time to meet changing conditions in or needs of the community. The Town should also consider

conducting a full update of the Plan before the end of its 10-year lifespan.

Land Use Plan Development Process

The 2012-2022 Clyde Land Use Plan evolved through a multi-faceted planning process between

November of 2008 and May of 2012. The Clyde Land Use Plan Committee (the “LUPC” or the

“Committee”) held regular meetings with North Carolina Division of Community Planning (NC DCP)

staff to discuss existing conditions, trends and issues, to plan community input processes and review

their results, to identify key land use and development issues and to develop the Plan’s vision

statement, goals, recommendations and action strategies. At times, the Committee had guests

attend meetings to address particular topics, such as the Town’s water and sewer systems,

downtown revitalization, economic development and the Haywood Community College Campus

Master Plan.

The Committee voted on April 23, 2012 to recommend a draft of the CLUP to the Clyde Planning

Board and Board of Aldermen. It presented the draft CLUP at joint meeting of the two boards on

May 3, 2012. The Planning Board reviewed the draft CLUP at its June 5, 2012 and August 7, 2012

meetings and voted on August 7, 2012 to send a favorable recommendation on the CLUP to the

Board of Aldermen. The Board of Aldermen held a public hearing on the CLUP on October 9, 2012,

and voted unanimously to approve it on October 10, 2012.

Overview

Location/Planning Area

The Town of Clyde is located near the center of Haywood County, North Carolina; approximately 6

miles northeast of the Town of Waynesville (the county seat) and approximately 3.5 miles west of

the Town of Canton (see Map 1, Vicinity Map). It is one of four incorporated towns in Haywood

County.

Clyde is bisected from east to west by Interstate 40 (I-40), U.S. Highway 19/23, the Pigeon River and

a Norfolk Southern railroad line. U.S. Highway 74 is located to the west of the town and connects



U.S. Highway 19/23 with I-40. Both I-40 and U.S. Highway 19/23 provide easy access to Asheville,

the largest city in Western North Carolina, which is approximately 25 miles northeast of Clyde.

Early in the development of the Land Use Plan, the LUPC determined that the Plan should focus on a

Study Area containing the area within both the Town of Clyde’s corporate limits and its

extraterritorial jurisdiction (ETJ). The extent of the CLUP Study Area (the “Study Area”) is shown on

Map 2, Study Area). The Study Area encompasses an area of approximately 5.5 square miles (3,514

acres) and has an estimated population of 3,700.1

Community History/Historical Context

Haywood County, previously part of Buncombe County, was established in 1808. An area known as

the Lower Pigeon Township (now Clyde Township) in Haywood County was formed in 1877 from

parts of three townships, Pigeon, Beaverdam, and Waynesville, that had been part of Buncombe

County.

The Town of Clyde was incorporated by an act of the North Carolina General Assembly in 1889. The

town’s initial corporate limits formed a circle with a one-half mile radius centered on the former

railroad depot. Clyde’s charter established a Board of Aldermen comprised of a mayor and three

aldermen. It authorized the Town to abate nuisances and to adopt, “…all by-laws, rules and

regulations necessary for the good government of said town….” In 1986, the Town amended its

charter to add one additional seat on the Board of Aldermen.

Anyone familiar with small towns in Western North Carolina knows that each usually has a good

story or two. In Clyde, all one has to do is ask about the origin of the town’s name. One person

might say it was named after a man who moved to the area from a place along the River Clyde in

Scotland. The river and mountains in the area reminded him of home so he began to call it Clyde.

Another might tell you that there was a foreman named Clyde who had supervised railroad

construction in the area. Railroad workers could be heard calling out, “Clyde, have you seen my

hammer?” or “Hey, Clyde, can I take a break?” People along the railroad heard Clyde’s name so

often that they began referring to the town as Clyde. It would not be surprising to hear a third story

that connects the town’s name with the old steel truss bridge that used to span the Pigeon River.

Some will tell you that the iron for the bridge came from Clyde Iron Works. People grew

accustomed to seeing the name “Clyde” stamped on the bridge and the name stuck. No one really

knows for sure which, if any, of the stories is true. However, good tales often have a grain of truth

running through them. Each of Clyde’s naming stories has a grain of truth that speaks to the town’s

history. Settlers from overseas, the shaping influence of the railroad and the ever-present Pigeon

River flowing through, and occasionally flooding, the middle of town are all markers of Clyde’s

history.

Cherokee Indians were early inhabitants of the Clyde area. Their settlements were destroyed and

their people were displaced when General Griffith Rutherford led a Patriot militia in an expedition in



1776, which became known as the Rutherford Trace, to decimate the Cherokee for their alliance

with the British.

Clyde’s European-American settlement history picks up where the Rutherford Trace expedition

ends. Jacob Shook was in the militia regiment that took part in the expedition. He and others that

had probably traveled through Pigeon River Valley during the expedition later returned between the

late 1700s and early 1800s and were the Clyde area’s first white settlers. Shook’s legacy is one that

is still alive in Clyde today. The house Jacob Shook built for his son, now known as the Shook-

Smathers House, is a museum and is recognized by Preservation North Carolina as the oldest

standing frame house west of the Blue Ridge. It is also known for its connection to Bishop Francis

Asbury, the first Methodist Bishop consecrated in America, who conducted worship services in the

Shook home. Jacob Shook gave land next to his home to be used for church camp meetings and also

land upon which the Louisa Chapel United Methodist Church and Pleasant Hill Cemetery were later

established.

Following Shook and other early settlers was the next wave of settlement that arrived with the

construction of the Southern Railroad line. With the railroad, completed in 1883, came increased

commercial activity, including a livestock yard first owned by the railroad company, and later owned

by local citizens. The railroad was an avenue to transport crops and livestock which were the staples

of Clyde’s agricultural economy. It has been reported that the Southern Railroad in Clyde was once

the largest shipper of livestock on the eastern seaboard.

Once the railroad was complete, Clyde began to look more like a town with a main street corridor

that was hemmed in to the south by the railroad and by the north by the Pigeon River. Commercial

activity in the early 1900s included a meal and flour mill, liveries, a pharmacy, grocery and other

retail stores, hotels, boarding houses and more. A boarding school known as the Haywood Institute

(previously Pigeon Valley Academy) operated in the area until 1927. The area also grew as a resort

for summer tourists. Clyde is still home to the Skyland Camp for Girls, which began hosting campers

from across the country in 1917. The Clyde Public School, built in the mid to late 1800s, served area

students until Clyde High School opened in 1918 for elementary and high school students.

As industrial operations expanded in nearby Asheville and the neighboring towns of Waynesville and

Canton through the late 1950s and early 1960s, Clyde transitioned from an agricultural community

to a bedroom community for workers employed by Champion Paper (now Evergreen Packaging) in

Canton, the former Dayco plant in Waynesville and General Dynamics in Waynesville, among others.

Haywood Community College (previously Haywood Industrial Education Center), one of Haywood

County’s largest institutions, opened in the Study Area in 1965.

Just as the railroad on the south side of downtown changed the nature of Clyde, the Pigeon River on

the north side was, and continues to be, just as influential. The earliest recorded flood to hit the

Clyde area, which remains on record its largest flood, occurred in 1876. In August of 1940, twenty

homes were lost when the Pigeon River flooded the former US Highways 19 and 23 (now Broad

Street). The flood also washed away the old steel truss bridge used to cross the river. A 1949 flood



was not nearly as damaging but was still a significant event for the town. In 2004, remnants of

Hurricanes Frances and Ivan brought Clyde’s most devastating floods, causing substantial

destruction in downtown Clyde and other parts of the Study Area.

Among Clyde’s more prominent historical markers are the Shook-Smathers House, the “Big Gun”

veterans’ memorial on the town square, the former Haywood Institute, Louisa Chapel and the much

loved Clyde High School (now Central Haywood High School). Combined with the history of its

people, the railroad and the river, these artifacts link today’s residents to the town’s rich past.

Public Involvement

To have a plan that truly represents the community as a whole, it is important to involve the public

in the planning process. The Land Use Plan Committee planned and conducted two formal public

involvement efforts in 2009 to inform its work on the CLUP: the Town of Clyde 2009 Community

Survey (or Community Survey) and a community planning meeting consisting of a visioning exercise.

The LUPC, several Town staff and the Clyde Historic Commission Chair also took part in a visioning

exercise prior to the community planning meeting. The public hearing held by the Board of

Aldermen presented another opportunity for the public to comment on the CLUP.

The Community Survey was conducted in April and May of 2009. It was made available in paper

form at the Clyde Town Hall and various other public locations in the Study Area. The Town also

made an electronic version of the survey available on its website. The survey asked people what

they liked about Clyde and what they wanted to see happen regarding growth and development in

the future. Anyone was welcome to complete the survey and 306 were returned. The CLUP refers

to survey results in various sections. The survey results are summarized in a separate document

that the LUPC reviewed on June 23, 2009.

Clyde held a community planning meeting for the CLUP on the evening of October 20, 2009, at the

Clyde Central United Methodist Church. A NC DCP staff member led meeting attendees through a

process to develop a shared vision for the future of the Study Area. At its November 16, 2009

meeting, the LUPC reviewed notes from, discussed and completed the visioning exercise from the

community planning meeting. In December of 2009, the LUPC began developing the CLUP’s vision

statement.

Land Use Plan Vision Statement

A vision statement expresses a community’s desired future. The LUPC developed a vision statement

for the Clyde Land Use Plan using recurring themes that emerged from the Community Survey

results, the visioning exercises, existing and anticipated local and regional planning efforts and

Committee work. The vision statement reads as follows:

The Town of Clyde is striving to be a sustainable, attractive and affordable

community for its current and future residents by building on and improving its small

mountain town opportunities, including those provided by its downtown area, its



proximity to Haywood Community College and the MedWest - Haywood Regional

Medical Center, its heritage and historical assets, and its people. It is embracing its

location on the Pigeon River by providing recreational opportunities, open space and

environmental protection that will contribute to revitalizing the community. As it

works to implement its future plans, the Town will continue to provide, maintain,

and enhance the services that contribute to the high quality of life valued by Clyde

residents.

The vision statement is the backbone that supports the goals, recommendations and action

strategies presented in the Land Use Plan.


Element Two: Community Profile |7

Element Two: Community Profile

Introduction

In order for a community to plan for its future, it is helpful to look at what has occurred in its past.

The Community Profile examines demographic trends for the Clyde Land Use Plan Study Area such

as population size, composition, distribution, density and growth, as well as socioeconomic and

other characteristics. It also considers the causes of such trends, whether such trends might change

and what impact such trends could have on the Clyde area in the future.

For comparison purposes, the Community Profile uses demographic information for the State of

North Carolina, Haywood County, towns within Haywood County and, in some cases, data for

counties adjacent to Haywood County

For purposes of this Land Use Plan, the term “municipality” refers to incorporated cities and towns.

Data Sources

The United States Census (“U.S. Census” or “Census”) Bureau released 2010 Census population

totals and data on some other demographic characteristics for the State of North Carolina on March

2, 2011. The Clyde Land Use Plan uses 2010 Census data, if available. As additional and more

detailed 2010 Census data is released over the next year or so, tables and figures in this Community

Profile (and elsewhere in the Land Use Plan, if applicable) should be updated.

The Land Use Plan also relies on a variety of other sources of demographic data, such as earlier

Census results, the Census Bureau’s American Community Survey, and the North Carolina Office of

State Budget and Management (including the Demographic and Economic Analysis Section and the

State Data Center).

Population Characteristics

Town of Clyde Population

A change in the size of a community’s population can directly impact a local government. For

example, population growth or decline may affect the provision of public services, alter

development patterns, lead to an increase or decrease in state-shared revenues, determine

eligibility for grants and other programs and resources, and so forth.


8 | Element Two: Community Profile

Based on U.S. Census figures, the Town of Clyde had a population of 90 in 1890. Each U.S. Census

between 1890 and 2000 shows positive growth for the Town of Clyde (see Figure 1). The 1900

Census showed a significant (171.1 percent) increase as the population grew to 244 people in

Clyde’s first decade as a town (see Figure 2). The Town’s population grew by 41 percent the

following decade and then the rate of growth decreased to 5.5 percent between 1910 and 1920.

The growth rate accelerated again between 1920 and 1930 by 26.2 percent, raising the population

to 458. From then until 1980, the population grew each decade at rates between 12 and 24

percent. By the 1970 Census, the town’s population had reached 814.

Population growth continued, but the rate of growth dropped to 3.3 percent between 1980 and

1990 and then increased to more than 20 percent according to the 1990 and 2000 Censuses. By the

2000 Census, the Town of Clyde’s population had reached 1,324, which is an increase of 1,234

people (1,371 percent) over the 1890 population. According to the 2010 Census, Clyde’s population

decreased during the prior decade by 7.6 percent to 1,223. This is the first decline in population

reported for Clyde by a decennial Census in the town’s history.

Figure 1: Town of Clyde Population, 1890 – 2010

Source(s): U.S. Census Bureau; N.C. Office of State Budget and Management; and Log Into North Carolina (LINC) website (http://data.osbm.state.nc.us/pls/linc/dyn_linc_main.show).

90

244

344 363

458 516

598

680

814

1,008 1,041

1,324

1,223

0

200

400

600

800

1,000

1,200

1,400

1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010

Po

pu

lati

on

Decade

http://data.osbm.state.nc.us/pls/linc/dyn_linc_main.show



Figure 2: Town of Clyde Population Growth Rate, 1890 – 2010

Source(s): U.S. Census Bureau; North Carolina Office of State Budget and Management; and Log Into North Carolina (LINC) website (http://data.osbm.state.nc.us/pls/linc/dyn_linc_main.show)

Prior to the release of the 2010 Census data, the NC DCP staff reviewed 2009 municipal population

estimates from the North Carolina Office of State Budget and Management (NC OSBM) and the US

Census (see Table 1). The NC OSMB estimates are used for purposes of distributing state-shared

revenues. The agency’s 2009 estimates, released in September of 2010, showed the Town of Clyde

had a 2009 population of 1,401; an increase of 77 people (5.82%) over the 2000 Census population.2

However, the Census estimate for the 2009 population of Clyde was 1,2863, a decrease of 38 people

(-2.87%) from the year 2000. The 2009 Census population estimate for Clyde indicated a declining

population trend that 2010 Census data confirmed.

Both the 2009 NC OSBM and the 2009 Census population estimates for Clyde exceeded the actual

population reported by the 2010 Census. Of the two, the 2009 Census estimate was closest to the

actual 2010 population of Clyde. As shown in Table 1, the 2010 population was 63 people (almost 5

percent) less than the 2009 Census estimate whereas it was 178 people (almost 13 percent) less

than the 2009 NC OSBM population estimate.

171.1%

41.0%

5.5%

26.2% 12.7% 15.9% 13.7% 19.7% 23.8%

3.3%

27.2%

-7.63% -20%

0%

20%

40%

60%

80%

100%

120%

140%

160%

180%

Po

pu

lati

on

Gro

wth

(P

erc

en

t)

Decade




Table 1: 2009 Population Estimates Compared to 2010 Census Results Difference: 2010

Census Population Minus 2009 NC OSBM

Population

Difference: 2010 Census Population Minus 2009 Census

2009 NC OSBM

Population Estimate

2009 Census

Population Estimate

2010 Census

Population Number Percent Number Percent

Clyde 1,401 1,286 1,223 -178 -12.7% -63 -4.9%

Canton 4,097 3,855 4,227 130 3.2% 372 9.6%

Maggie Valley 1,602 906 1,150 -452 -28.2% 244 26.9%

Waynesville 10,144 10,191 9,869 -275 -2.7% -322 -3.2%

Unincorporated Area

40,784 40,871 42,567 1,783 4.4% 1,696 4.1%

Haywood County 58,028 57,109 59,036 1,008 1.7% 1,927 3.4%

North Carolina 9,382,609 9,380,884 9,535,483 152,874 1.6% 154,599 1.6%

Source(s): NC Office of State Budget and Management and the U.S. Census Bureau.

Town of Clyde government leaders and staff have stated that the 2004 floods were the main cause

of the loss of population between 2000 and 2010. The floods damaged approximately 60 homes

and displaced even more residents. While some relocated to other housing within the Town, others

moved elsewhere. Mountain Projects, in partnership with the Town of Clyde, Haywood County, the

United States Department of Agriculture, church groups and other nonprofit and governmental

agencies, with funding from a Community Development Block Grant and other sources, developed

the Barefoot Ridge subdivision in Clyde to provide permanent, affordable housing outside of the

flood hazard area for residents who could not return to homes flooded in 2004. A number of homes

in the Barefoot Ridge subdivision were still under construction at the time of the 2010 Census.

Therefore, if those who would eventually reside in the homes were not already living somewhere

else in Clyde, they were not included as part of the town’s 2010 Census population.

According to the State Demographer, the next round of county and municipal population estimates

will use the 2010 Census data as the new base and municipal boundaries as of July 2, 2010.4 The NC

OSBM typically releases new population estimates every fall.

Extraterritorial Jurisdiction and Study Area Populations

As stated previously, the 2020 Land Use Plan Study Area encompasses land within Clyde and its

extraterritorial jurisdiction (ETJ). The Census Bureau does not use ETJ boundaries for collecting data.

Therefore, to estimate the Study Area’s overall population size, the approximate population of the

ETJ must be determined.

For the CLUP Study Area, rough calculations of the ETJ population were made based on the

approximate number of dwelling units in the ETJ in early 2010 (based on Haywood County



Geographic Information System information), dwelling unit vacancy rates from the 2000 Census and

average household sizes, also from the 2000 Census.

The 2000 Census average household sizes for Clyde and Haywood County are similar, at 2.33 and 2.3

respectively. However, the 2000 Census shows a significant difference between the dwelling unit

vacancy rates of Clyde, at 9.9 percent, and Haywood County as a whole, at 19.9 percent. Clyde has

consistently had one of the lowest housing vacancy rates of all of the towns in Haywood County (see

the housing subsection section in Element 6 for statistics), whereas the Town of Maggie Valley

typically has a very high vacancy rate due, in large part, to the number of seasonally occupied homes

there. The Maggie Valley figures as well as seasonal and other vacant homes throughout Haywood

County impact the county’s vacancy rate.

Homes in Clyde’s ETJ are located in the unincorporated portion of Haywood County; therefore, the

Haywood County vacancy rate could be applicable to the ETJ. However, development patterns in

the ETJ are influenced somewhat by the Town of Clyde (through its land development regulations,

for example) and some ETJ dwellers have access to public water and sewage treatment services

through the Junaluska Sanitary District that are similar to services provided by the Town of Clyde to

its residents. For these reasons, the Town of Clyde’s vacancy rate could also be applicable to the ETJ

(or parts thereof).

Two 2010 population estimates were made for the ETJ using the 2000 Census data (Table 2). One

uses the Clyde dwelling unit vacancy rate and average household size while the other uses the

Haywood County figures. The estimate based on Clyde data is the higher of the two, exceeding the

estimate based on Haywood County data by 277 people. As indicated above, the county’s much

higher vacancy rate is what creates the difference.

The January 2010 ETJ population estimate based on Clyde’s 2000 Census data is 1.7 times the NC

OSBM’s 2009 population estimate of the town alone.

Table 2: Town of Clyde’s Extraterritorial Jurisdiction 2010 Population Estimates1

Estimated Number of Dwelling Units in

Clyde ETJ (January 2010)2

Dwelling Unit Vacancy Rate (2000 Census)

Average Household Size (2000

Census)

Estimated Clyde ETJ Population (January

2010)

Clyde Data 1,140 9.9% 2.33 2,393

Haywood County Data 1,140 19.9% 2.3 2,116

Difference 0 -10.0% 0.03 277

Source(s): Haywood County Geographic Information System; U.S. Census Bureau, 2000 Census Notes: 1. Estimates prepared by the NC Department of Commerce, Division of Community Planning, Western Regional Office. 2. Figure is probably lower than the actual number because multiple manufactured homes on a lot were counted as one.

To provide an approximate population figure for the entire Land Use Plan Study Area, the ETJ

population estimate based on Clyde’s 2000 Census data (2,393) was added to the NC OSBM July

2009 population estimate for the town (1,401). The result is an estimated January 2010 Study Area



population of 3,794. Adding the same ETJ population estimate to the 2010 Census population of

Clyde (1,223) yields an estimated Study Area population of 3,616 (a difference of 178 people

compared to the other estimate).

Population Growth Rates

Table 3 shows the population and population changes for the four towns within Haywood County,

Haywood County as a whole and all of North Carolina over the past fifty years. Between 1960 and

1990, the Town of Clyde was the fastest growing municipality in Haywood County.

The population growth rate declined in all of the municipalities in Haywood County between 1980

and 1990, as it did for the county itself and, to a lesser extent, the state. With a growth rate of 3.3

percent between 1980 and 1990, Clyde was the only municipality in the county to have a positive

growth rate for the decade.

Table 3: Population Growth: Municipal, County and State, 1960 to 2010

Clyde Canton

Maggie Valley1

Waynesville Haywood

County North

Carolina

1960 Population 680 5,068 No data 6,159 39,711 4,556,155

1970 Population 814 5,158 No data 6,488 41,710 5,084,411

% Change 1960 to 1970

19.70% 1.80% --- 5.30% 5.00% 11.60%

1980 Population 1,008 4,631 202 6,765 46,495 5,881,766

% Change 1970 to 1980

23.80% -10.20% --- 4.30% 11.50% 15.70%

1990 Population 1,041 3,790 185 6,758 46,942 6,628,637

% Change 1980 to 1990

3.30% -18.20% -8.40% -0.10% 1.00% 12.70%

2000 Population 1,324 4,029 607 9,232 54,033 8,049,313

% Change 1990 to 2000

27.20% 6.30% 228.10% 36.60% 15.10% 21.40%

2010 Population 1,223 4,227 1,150 9,869 59,036 9,535,483

% Change 2000 to 2010

-7.60% 4.90% 89.50% 6.90% 9.30% 18.50%

Source(s): U.S. Census Bureau; North Carolina Office of State Budget and Management; and Log Into North Carolina (LINC) website (http://data.osbm.state.nc.us/pls/linc/dyn_linc_main.show). Note(s):

1. Maggie Valley incorporated in 1974. The NC Office of State Budget and Management estimates population for areas that incorporate between Census years based on data from the previous Census but does not do so for Census years earlier than the Census immediately preceding incorporation. Therefore, the 1960 and 1970 population figures for Maggie Valley are not available.

Haywood County and the municipalities in it grew at a significant rate between 1990 and 2000.

Clyde, however, was no longer the fastest growing town. Maggie Valley experienced a very large

increase in population and had the highest growth rate between 1990 and 2000 (228.2 percent).

Waynesville had the second highest growth rate (36.6 percent), followed by Clyde (27.2 percent),

and then Canton (6.3 percent). Haywood County grew by 15.1 percent during that period.




With the exception of Clyde, the populations of the state, Haywood County and its municipalities

continued to grow between 2000 and 2010, but at a decreasing rate. The county grew by 9.3

percent during that time. Among the municipalities, Maggie Valley grew considerably more than

the others with a rate of 89.5 percent. Waynesville had the next highest municipal growth rate at

6.9 percent, followed by Canton at 4.9 percent. Clyde, on the other hand, experienced a 7.6 percent

decline in population.

Municipal Proportion of County Population

As Haywood County’s overall population has grown, the proportion of its population comprised by

municipalities has changed in various ways. Table 4 shows the composition of the county’s

population in terms of incorporated and unincorporated areas between 1980 and 2010. The

unincorporated area has a larger population than the combined population of all of the towns

within the county. During each decade since 1980 (the first decennial Census year in which all of the

current Haywood County towns existed), the population of the unincorporated area has grown. The

unincorporated area population has occupied between 72 and 75 percent of the overall county

population over the past 30 years and currently stands, as of the 2010 Census, at 72.1 percent.

While Clyde’s share of the county population has changed very little since 1980 (ranging from 2.1 to

2.5 percent), it declined for the first time between 2000 and 2010 (see Table 4). Maggie Valley was

the only town that grew in proportion to the county population between 2000 and 2010 and its

growth since 1990 has brought it very close to occupying the same percentage of the county

population as Clyde. Figure 3 shows the 2010 incorporated and unincorporated populations of the

towns and unincorporated area in proportion to the overall Haywood County population.

Table 4: Incorporated and Unincorporated Area Populations in Haywood County, 1980 - 2010

1980 Population

Percent of 1980

County Population

1990 Population

Percent of 1990

County Population

2000 Population

Percent of 2000

County Population

2010 Population

Percent of 2010

County Population

Clyde 1,008 2.2% 1,041 2.2% 1,324 2.5% 1,223 2.1%

Canton 4,631 10.0% 3,790 8.1% 4,029 7.5% 4,227 7.2%

Maggie Valley 202 0.4% 185 0.4% 607 1.1% 1,150 1.9%

Waynesville 6,765 14.5% 6,758 14.4% 9,232 17.1% 9,869 16.7%

Unincorporated Area

33,889 72.9% 35,168 74.9% 38,841 71.9% 42,567 72.1%

Haywood County 46,495 100.0% 46,942 100.0% 54,033 100.0% 59,036 100.0%

Source(s): U.S. Census Bureau; NC Office of State Budget and Management; and Log Into North Carolina (LINC) website.



Figure 3: 2010 Haywood County Incorporated and Unincorporated Area Populations

Source(s): U.S. Census Bureau; NC Office of State Budget and Management; and Log Into North Carolina (LINC) website.

Population Density

Although the population of Clyde is relatively small compared to the overall population of Haywood

County and most of the towns therein, its population density (persons per square mile) was the

highest according to the 1990 and 2000 Censuses.

In 2000, the Town of Clyde’s population of 1,324 was distributed over less than one (0.84) square

mile of land area, resulting in a population density of 1,579 persons per square mile. Of all of the

municipalities in Haywood County, in 2000 the Town of Clyde had the smallest land area, the second

smallest population, and the highest population density (see Table 5). In 1990, it had the second

smallest land area, the second smallest population, and the highest population density.

According to Census figures, the land area of the Town of Clyde did not change between 1990 and

2000, however its population, and, therefore, its population density, increased. The Town actually

added land during that period through a 1997 annexation of 0.371 acres. However, the addition did

not change the Town’s overall land area enough to affect its population density.

Table 5: Population Density (Persons per Square Mile): Municipal and County, 1990-2000

1990 2000

Population Land Area (Sq. Mi.)

Population Density

Population Land Area (Sq. Mi.)

Population Density

Clyde 1,041 0.84 1,239.3 1,324 0.84 1,579.2

Canton 3,790 3.54 1,070.6 4,029 3.82 1,054.6

Maggie Valley 185 0.75 246.7 607 1.63 372.8

Waynesville 6,758 5.78 1,169.5 9,232 7.75 1,191.8

Haywood County 46,942 553.89 84.7 54,033 553.66 97.6

Source(s): U.S. Census Bureau; N.C. Office of State Budget and Management; Log Into North Carolina (LINC) website (http://data.osbm.state.nc.us/pls/link/dyn_linc_main.show); and N.C. Department of Commerce, Division of Community Planning, Western Regional Office calculations.

Clyde 2.1%

Canton 7.2% Maggie Valley

1.9%

Waynesville 16.7%

Unincorporated Area

72.1%

http://data.osbm.state.nc.us/pls/link/dyn_linc_main.show



Elements of Population Change

Changes in a community’s population often result from natural increase (the difference between the

number of births and deaths) and net migration (the difference between the number of people

moving in and moving out). Another factor that can lead to a change in population is a

municipality’s annexation activity.

Natural Increase and Net Migration

The State of North Carolina provides information on natural increase and net migration for counties

but not for municipalities. Table 6 and Table 7 show such data for Haywood County, the counties in

North Carolina that surround it and the State of North Carolina between 1980 and 2000.

Table 6: Components of Population Growth in Selected Counties and State, 1980 to 19901

County 1980

Population 1990

Population Growth

% Growth

Births Deaths Natural Growth

Net Migration

Migration as % of Growth

Buncombe 160,897 174,357 13,460 7.7 21,217 17,031 4,186 9,695 69.8

Haywood 46,495 46,948 447 1.0 5,165 4,790 375 72 16.1

Henderson 58,617 69,747 11,130 19.0 7,659 7,016 643 10,066 93.9

Jackson 25,811 26,835 1,024 4.0 2,914 2,111 803 232 22.4

Madison 16,827 16,953 126 0.7 1,840 1,735 105 21 16.7

Swain 10,283 11,268 985 9.6 1,772 1,332 440 545 55.3

Transylvania 23,417 25,520 2,103 9.0 2,836 2,095 741 1,362 64.8

North Carolina

5,880,095 6,632,448 752,353 12.8 901,708 527,545 374,163 378,190 50.3

Source(s): N.C. State Data Center, State Demographics Unit (www.demog.state.nc.us). Notes: 1. Corrections to 1990 Census population figures issued by the Census Bureau are included; however growth, births, deaths and other statistics have not been changed by the State Data Center.

Table 7: Components of Population Growth in Selected Counties and State, 1990 to 20001

County 1990

Population 2000

Population Growth

% Growth

Births Deaths Natural Growth

Net Migration

Migration as % of Growth

Buncombe 174,357 206,330 31,973 18.3 23,473 20,219 3,254 28,719 89.8

Haywood 46,948 54,033 7,085 15.1 5,424 5,768 -344 7,429 104.9

Henderson 69,747 89,173 19,426 27.9 8,816 9,604 -788 20,214 104.1

Jackson 26,835 33,121 6,286 23.4 3,198 2,663 535 5,751 91.5

Madison 16,953 19,635 2,682 15.8 2,075 2,014 61 2,621 97.7

Swain 11,268 12,968 1,700 15.1 1,700 1,416 284 1,416 83.3

Transylvania 25,520 29,334 3,814 14.9 2,863 2,926 -63 3,877 101.7

North Carolina 6,632,448 8,046,813 1,416,865 21.3 1,054,045 638,171 415,874 1,000,991 70.6

Source(s): N.C. State Data Center, State Demographics unit (www.demog.state.nc.us). Notes: 1. Includes corrections to 2000 Census figures issued by the Census Bureau and subsequent adjustments to other statistics by the State Data Center.

http://www.demog.state.nc.us/




Between 1980 and 1990, most of Haywood County’s growth came from natural increase (almost

84%). Of the seven counties listed in Table 6, four had more than 50 percent of their growth from

net migration while Haywood County had the lowest percentage of growth (16.1 percent) due to net

migration.

In all seven of the counties profiled in Table 7 above, more than 80 percent of their growth between

1990 and 2000 came from net migration. Net migration contributed to more than 70 percent of

North Carolina’s growth during that time. Haywood County had the highest percentage of growth

from net migration at 104.9 percent due to a higher number of deaths compared to births and a

substantial increase in the number of people moving to the area. Data regarding how natural

increase and net migration have directly affected Clyde’s population is not readily available;

however the jump in Haywood County’s net migration rate between 1990 and 2000 surely had an

impact on the population of the Study Area.

Data is not yet available regarding natural increase and net migration for North Carolina counties

between 2000 and 2010. The populations of all seven of the counties highlighted in this section

continued to grow, but at a declining rate (see Table 8). One might expect that growth from net

migration continued to outpace growth from natural increase in a majority of the seven counties,

particularly for the first half of the decade, due to the significant amount of lot creation and new

home construction that was happening in western North Carolina.

Table 8: Population Growth in Selected Counties, 2000 to 2010

County 2000

Population 2010

Population Growth % Growth

Buncombe 206,330 238,318 31,988 15.5

Haywood 54,033 59,036 5,003 9.3

Henderson 89,173 106,740 17,567 19.7

Jackson 33,121 40,271 7,150 21.6

Madison 19,635 20,764 1,129 5.7

Swain 12,968 13,981 1,013 7.8

Transylvania 29,334 33,090 3,756 12.8

North Carolina 8,046,813 9,535,483 1,488,670 18.5

Source(s): N.C. State Data Center, State Demographics unit (www.demog.state.nc.us) and U.S. Census Bureau, 2010 Census (http://factfinder2.census.gov/main.html)

The Census Bureau collects data at the municipal level on in-migration, which is one component of

net migration. In-migration refers to the number of people (five years or older) who lived outside of

a given county five years prior to a Census. As shown in Table 9, in-migration declined in Clyde

between 1980 and 2000.


http://factfinder2.census.gov/main.html



Table 9: In-migration1: Municipal and County, 1980-2000

1980 1990 2000

Clyde 192 191 174

Canton 532 573 527

Maggie Valley 68 66 178

Waynesville 1,028 1,052 1,650

Haywood County 6,010 6,417 8,819

Source(s): N.C. State Data Center, Log Into North Carolina (LINC), http://linc.state.nc.us/

It is possible that net migration decreased in Clyde between 2000 and 2010 because of an increase

in out-migration due to the 2004 floods and the potential for a continued decline in in-migration

given the trend in the previous three decades. The Census Bureau has not yet released migration

figures for the 2010 Census.

Annexation

Since its incorporation, the Town of Clyde has expanded its town limits and in some cases, its

population, through annexation. Clyde originally contained approximately 502.65 acres (0.78 square

miles). The town is now approximately 552.55 acres (0.86 square miles), having added almost 50

acres through annexation.

Since 1980, the Town of Clyde annexed land that added almost 40 acres (28 acres of which are in

the Barefoot Ridge subdivision) and 15 permanent residents to the corporate limits. The Barefoot

Ridge annexation comprises more than half of all of the land annexed by the Town since its

incorporation. At the time of the Barefoot Ridge annexation, there were no permanent residents

added to the town because homes had not yet been built in the subdivision. Table 10 summarizes

the Town of Clyde’s annexation activity since 1980.

Table 10: Town of Clyde Annexation History, 1980-2011 Year Annexation

Effective Acres Annexed

Permanent Residents Added

1981 6 10

1986 0.84 2

1997 0.371 1

2005 28 0

2007 1.5 0

2008 3 2

Totals 39.711 15

Source(s): Town of Clyde – Boundary and Annexation Survey data submitted to the U.S. Census; NC Department of the Secretary of State, Division of Certification and Filing, Land Records Management Section; and U.S. Census Bureau.

http://linc.state.nc.us/



Town of Clyde Population Projections

Projecting the size of a community’s future population is challenging because there are so many

factors that influence population growth and decline, including annexation activity, economic

conditions and natural disasters, for example. The projections presented in this Land Use Plan are

intended to provide a general idea of what could happen in the future for planning purposes.

The State Demographer in the North Carolina Office of State Budget and Management provides

both population estimates and projections for counties but only provides population estimates for

cities and towns. Beginning in late 2011 or early 2012, however, the State Demographer will begin

producing municipal population projections. In the meantime, the North Carolina Department of

Commerce, Division of Community Planning, prepared population projections for the Town of Clyde

using several methods suggested by the State Demographer. It is important to note that the

following population projections were developed prior to the release of 2010 Census data.

Population Projections – Method 1 (Constant Share)

Method 1, referred to as a constant share projection technique, uses the State’s 2009 population

estimates for Clyde and Haywood County (see Table 11) and State projections for Haywood County’s

population through 2030 (see Table 12) to project the Town of Clyde’s population during the same

period. It assumes that Clyde’s population is a constant proportion of the county population. In

2009, Clyde’s estimated population was 2.41 percent of the estimated county population therefore

it serves as the constant used to project Clyde’s population through 2030 using Method 1 (see Table

13).

Table 11: 2009 Estimated Population: Town of Clyde and Haywood County

Community July 2009 Estimated

Population

Clyde 1,401

Haywood County 58,028

Clyde Population as Percentage of Haywood County Population 2.41%

Source(s): NC Office of State Budget and Management, updated 09/16/10.

Table 12: Town of Clyde Population Projections, 2010 – 2030 (Method 1)

Year Haywood County

Projected Population Town of Clyde Projected

Population

2010 58,354 1,406

2015 60,331 1,454

2020 62,304 1,502

2025 64,281 1,549

2030 66,256 1,597

Source(s): NC Office of State Budget and Management and calculations by the NC Department of Commerce, Division of Community Planning, Western Regional Office.



The projections resulting from Method 1 (see Table 12, above, and Table 13, below) show that Clyde

will grow by 96 people (6.8 percent) to reach a population of 1,502 by 2020. It will grow by another

95 people (6.3 percent) to a population of 1,579 by 2030. Overall, Method 1 results show that Clyde

is projected to grow by 191 people (13.6 percent) by 2030.

Table 13: Town of Clyde Projected Population Growth, 2010 – 2030 (Method 1) Projected Population by Decade Growth 2010-2020 Growth 2020-2030 Growth 2010-2030

2010 2020 2030 Amount Percent Amount Percent Amount Percent

1,406 1,502 1,597 96 6.8% 95 6.3% 191 13.6%

Source(s): NC Department of Commerce, Division of Community Planning, Western Regional Office.

Population Projections – Method 2 (Arithmetic)

Method 2 is known as an arithmetic projection technique. It uses the town’s population growth

over a period of time (excluding growth due to annexation) to calculate the average number of

people added per year. Population is then projected by adding that same average number of people

per year for each year up to a point in the future. This method assumes a steady rate of growth.

According to the State Demographer5, the Town of Clyde’s non-annexation population growth

between April 2000 and July 2009 was 56 people. Therefore, in 9.25 years, Clyde’s population grew

by an average of 6 people per year. Table 14 shows the resulting population, in 5-year increments, if

6 people are added to the 2009 population estimate (from the NC OSBM – see Table 11) through

2030. In 2020, the projected population is 1,467 and by 2030, it is 1,527. Table 15 shows that,

under Method 2, Clyde is expected to grow by 60 people per decade between 2010 and 2030,

increasing by a total of 8.5 percent.

Table 14: Town of Clyde Population Projections, 2010 – 2030 (Method 2)

Year Town of Clyde Projected

Population

2010 1,407

2015 1,437

2020 1,467

2025 1,497

2030 1,527

Source(s): NC Department of Commerce, Division of Community Planning, Western Regional Office

Table 15: Town of Clyde Projected Growth, 2010 – 2030 (Method 2) Population Projection by Decade Growth 2010-2020 Growth 2020-2030 Growth 2010-2030


1,407 1,467 1,527 60 4.2% 60 4.1% 120 8.5%




Comparison of Method 1 and Method 2 Population Projections

The population of Clyde is projected to grow at a much faster rate under Method 1 compared to

Method 2 (see Table 16).

Table 16: Summary of Method 1 and Method 2 Population Projections for the Town of Clyde

Projected Population by Decade

Growth 2010-2020

Growth 2020-2030

Growth 2010-2030

Projection Method


1 1,406 1,502 1,597 96 6.8% 95 6.3% 191 13.6%

2 1,407 1,467 1,527 60 4.2% 60 4.1% 120 8.5%


As shown in Table 17, the Method 1 and Method 2 projections of Clyde’s 2020 population differ by

35 people (a 2.4 percent difference in the growth rate). For 2030, they differ by 70 people (a 4.6

percent difference in the growth rate). Haywood County’s rate of growth, as projected by the State

Demographer, is the main determinant of Clyde’s more accelerated rate of growth in Method 1.

Method 2 relies on Clyde’s own recent growth estimates. The Method 1 and Method 2 projections,

and the average of the two projections, are plotted in Figure 4.

Table 17: Comparison of Method 1 and Method 2 Population Projections for the Town of Clyde

Year Method 1 Projected

Population

Method 2 Projected

Population

Difference (Method 1 minus Method 2)

Percent Difference

Average

2010 1,406 1,407 -1 <0.1% 1,407

2015 1,454 1,437 17 1.2% 1,446

2020 1,502 1,467 35 2.4% 1,485

2025 1,549 1,497 52 3.5% 1,523

2030 1,597 1,527 70 4.6% 1,562




Figure 4: Comparison of Population Projections for the Town of Clyde, 2010 – 2030*

Source(s): NC Department of Commerce, Division of Community Planning, Western Regional Office *Note: Projections were made prior to the release of 2010 Census data.

The population projections suggest that by 2020, the Town of Clyde could gain between 60 and 96

people, growing by 4.2 to 6.8 percent. Between 2010 and 2030, the town may add between 120

and 191 people if, as suggested by the projections, the growth rate is between 8.5 and 13.6 percent.

2010 Census Results

As noted earlier in this section, the 2010 Census total population figure for Clyde was lower than the

2009 population estimates provided by both the NC OSBM and the U.S. Census. The opposite was

true for Haywood County as a whole. The NC OSBM and the Census estimates of the 2009

population for the county were lower than the population recorded by the 2010 Census (shown

previously in Table 4). These differences will certainly have implications on the population

projections for both Haywood County and for Clyde. Following the release of the initial 2010 Census

results in March of 2011, it was too early for the State Demographer to predict how such results

would affect the State’s long term projections for Haywood County but she thought they might be

somewhat higher than the projections her office made based on the 2009 population estimate

because that estimate was low. For Clyde, the 2009 estimate was higher than the actual population

and the State Demographer though the trend data would probably cause the population projections

to be lower.6

The State Demographer’s next sets of population estimates and projections (to be released in late

2011 and early 2012, respectively) will be based on the 2010 Census data. Once such figures

1,324

1,406

1,454

1,502

1,549

1,597

1,324

1,407

1,437 1,467 1,497

1,527

1,324

1,407

1,446 1,485

1,523 1,562

1,000

1,200

1,400

1,600

1,800

2000 2010 2015 2020 2025 2030

Po

pu

lati

on

Year

Method 1Method 2Average



become available, this section of the CLUP (and other relevant sections) should be reviewed and

revised accordingly.

Study Area Population Projections

For the long-range planning purposes of the Land Use Plan, rough projections of the population of

the overall Study Area have been made. The uncertainties that accompanied the preparation of

estimates of the ETJ population earlier in this section are likely compounded by using such estimates

to project future population size.

Two methods were used to project the future population for the Town of Clyde and each used

different rates of growth. Given that the State Demographer expects the next NC OSBM population

estimate and projections for the town to be lower due to the 2010 Census results, the lower

projections and growth rates for Clyde from Method 2 (Table 15) along with the ETJ population

estimate based on Clyde’s 2000 vacancy rate and average household size (Table 2) were used to

generate 2010, 2020 and 2030 population projections for the Town of Clyde, its ETJ and the Study

Area as a whole, as shown in Table 18. The projections assume that the size of the town and the

size of the ETJ remain constant. In each decade, the Study Area’s projected population is 1.7 times

that of the town.

The population projections for the Land Use Plan Study Area should be reviewed and revised as

needed once additional information is available from the 2010 Census and the State Demographer.

Table 18: Population Projections: Town of Clyde, Clyde Extraterritorial Jurisdiction and Land Use Plan Study Area, 2010 – 2030

Area Projected Population by Decade

2010 2020 2030

Town of Clyde 1,407 1,467 1,527

Clyde ETJ 2,393 2,496 2,597

Land Use Plan Study Area 3,800 3,963 4,124

Source(s): Haywood County Geographic Information System; NC Office of State Budget and Management; U.S. Census Bureau, 2000 Census; NC Department of Commerce, Division of Community Planning, Western Regional Office.

Median Age

Median age is the age at which half of the population is older and half is younger. Clyde’s median

age has gone up and down since 1980. According to the 2010 Census, the median age of Clyde

residents was 38.3. This is 3.3 years older than the median age in 1980; 2.3 years younger than the

median age in 1990 and 0.5 year older than the median age in 2000 (see Table 19). In 2010, Clyde’s

population had the lowest median age compared to the other towns in Haywood County and to the

county population as a whole. It was almost 1 year older than the median age of North Carolina

residents in 2010.



Table 19: Median Age, 1980-2010 Haywood County, Haywood County and North Carolina

1980 1990 2000 2010

Clyde 35.0 40.6 37.8 38.3

Canton 41.6 47.3 43.3 40.9

Maggie Valley 37.5 53.9 49.0 53.3

Waynesville 37.1 42.0 44.0 46.7

Haywood County 34.4 39.8 42.3 45.6

North Carolina 29.6 33.2 35.3 37.4

Source(s): U.S. Census Bureau, 1970, 1980, 1990 and 2000 Censuses

The state’s median age rose with each decennial Census since 1980. The North Carolina State Data

Center projects that it will continue to rise, as shown in Table 20. Haywood County’s median age

steadily increased during the same period, is projected to continue to rise to 48.25 by 2020 and will

decline very slightly to 48.23 by 2030 (see Table 20). The State Data Center’s projections for median

age are updated over time. For example, in 2006, it projected Haywood County’s median age would

be 51.3 in 2020, almost 5 years older than the current projection for 2020.7

Because changes in Clyde’s median age did not consistently follow those of Haywood County

between 1980 and 2010 and because there are no median age projections available at the municipal

level, it is difficult to say how it will trend in the future. However, if in-migration (discussed

previously), particularly of older adults, continues to influence population growth in Haywood

County, it is likely that it, combined with the aging of baby boomers, will cause the median age of

Clyde and the rest of the Study Area to increase.

Table 20: Projected Median Age: Haywood County and North Carolina, 2020 & 2030 2020 2030

Haywood County 46.33 45.16

State of North Carolina 38.48 38.89

Source(s): North Carolina State Data Center (http://www.osbm.state.nc.us/demog/prsage.html)

Age Distribution

Table 21 provides a generalized look at Clyde’s age distribution in 1990, 2000 and 2010 and also

illustrates how the age categories have changed over the past 20 years.

The number of children and teenagers increased by 89 (almost 37 percent) between 1990 and 2010

and together comprised more than one quarter (25.6 percent) of the town’s total population (up 2.4

percent from 1990). The 20 to 64 age group grew by 109 (18.7 percent) between 1990 and 2010. It

remained at close to the same proportion (56.6 percent) of the total population in 2010 as it did in

1990 (56 percent). The 65 and older segment of Clyde’s population grew in numbers between 1990

and 2000, but comprised a smaller percentage of the total population in 2000 compared with 1990.

http://www.osbm.state.nc.us/demog/prsage.html



By 2010, the age group was smaller than it was in 1990 by 16 people (a 7.4 percent decrease over 20

years) and was also smaller in proportion to the total population.

Table 21: Town of Clyde Age Distribution, 1990, 2000 and 2010 (Combined Age Cohorts)

Age 1990

Population

Percent of Total 1990 Population

2000 Population


2010 Population


Numerical Change

1990-2010

Percent Change

1990-2010

Under 20 241 23.2% 339 25.6% 330 27.0% 89 36.9%

20-64 583 56.0% 747 56.4% 692 56.6% 109 18.7%

65+ 217 20.8% 238 18.0% 201 16.4% -16 -7.4%

Totals 1,041 100.0% 1,324 100.0% 1,223 100.0% 182 17.5%

Source(s): U.S. Census Bureau, 1990, 2000 and 2010 Censuses

Race and Ethnicity

Race

The racial composition of the population of the towns in Haywood County, the county itself and the

state are compared in Table 22. Table 22 only shows data for 2000 and 2010 because the Census

Bureau changed the way it collected data on race in 2000. For example, respondents could identify

themselves as being of more than one race beginning in 2000.

Between 2000 and 2010, the percentage of North Carolina’s population that was of a race other

than white or African American (such as American Indian, Asian or Pacific Islander, and others) grew,

while the white population declined. The African American population declined slightly. These

trends are generally reflected, although to a lesser degree, in the populations of Haywood County

and the municipalities therein.

While the racial composition of Clyde did not change drastically between 2000 and 2010, its greatest

change was the increase in populations other than white and African American.

Table 22: Racial Composition of Population (Percent), 2000 and 2010

One Race

Two or More Races

White African American Other

2000 2010 2000 2010 2000 2010 2000 2010

Clyde 94.9% 94.8% 2.5% 2.0% 1.8% 2.6% 0.8% 0.7%

Canton 96.1% 93.6% 1.6% 1.8% 1.6% 2.9% 0.7% 1.7%

Maggie Valley 96.4% 92.6% 1.3% 0.6% 1.6% 5.8% 0.8% 1.0%

Waynesville 94.4% 92.4% 3.3% 2.4% 1.6% 4.0% 0.7% 1.3%

Haywood County 96.8% 95.5% 1.3% 1.1% 1.1% 2.3% 0.7% 1.1%

North Carolina 72.1% 68.5% 21.6% 21.5% 4.9% 7.9% 1.3% 2.2%

Source(s): U.S. Census Bureau, 2000 Census and 2010 Census.



Ethnicity

As defined by the United States Office of Management and Budget, “Hispanic or Latino,” refers to “a

person of Cuban, Mexican, Puerto Rican, South or Central American, or other Spanish culture or

origin regardless of race.”8 Federal agencies that collect and present data, such as the U.S. Census

Bureau, must use at least two ethnicities: “Hispanic or Latino” and “Not Hispanic or Latino.”

Ethnicity data for the municipalities within Haywood County, Haywood County and North Carolina is

presented in Table 23.

Table 23: Hispanic or Latino Ethnicity of Population (Percent), 2000 and 2010

2000 2010

Clyde 1.9% 3.0%

Canton 2.4% 5.0%

Maggie Valley 0.2% 5.3%

Waynesville 2.0% 5.7%

Haywood County 1.4% 3.4%

North Carolina 4.7% 8.4%

Source(s): U.S. Census Bureau, 2000 Census and 2010 Census.

The Hispanic or Latino populations in all of the jurisdictions listed in Table 23 grew as a percentage

of the overall populations between 2000 and 2010. Clyde had smallest percentage of Hispanic or

Latino persons in the county as well as the lowest rate of increase between 2000 and 2010.

Households

Between 1980 and 2000, the number of households in Clyde grew with each decennial census (see

Table 24). Given the decline in Clyde’s total population between 2000 and 2010, one would expect

that the number of households declined as well. It did, but by only 1 household (or -0.2 percent)

according to the 2010 Census.

Table 24: Number of Households: Municipal, County and State, 1980 – 2010

1980 1990

% Change 1980 - 1990

2000 % Change

1990 - 2000 2010

% Change 2000 - 2010

Clyde 362 431 19.1% 547 26.9% 546 -0.2%

Canton 1,870 1,715 -8.3% 1,819 6.1% 1,791 -1.5%

Maggie Valley 96 89 -7.3% 297 233.7% 551 85.5%

Waynesville 2,600 2,898 11.5% 4,106 41.7% 4,426 7.8%

Haywood County 16,965 19,211 13.2% 23,100 20.2% 25,563 10.7%

North Carolina 2,045,714 2,517,026 23.0% 3,132,013 24.4% 3,745,155 19.6%

Source(s): U.S. Census Bureau, 1980, 1990, 2000 and 2010 Censuses.



The average household size declined somewhat significantly in each of the municipalities in

Haywood County, Haywood County itself and the State of North Carolina between 1980 and 1990

(see Table 25). Canton and Clyde saw slight increases in the number of persons per household

between 1990 and 2000 while the rest of the jurisdictions experienced declines. Clyde’s average

household size declined again between 2000 and 2010, as it did in Waynesville, Haywood County

and North Carolina.

Table 25: Persons per Households (Average Household Size): Municipal, County and State, 1980 – 2010

1980 1990 2000 2010

Clyde 2.43 2.30 2.33 2.24

Canton 2.44 2.15 2.17 2.32

Maggie Valley 2.85 2.08 2.04 2.09

Waynesville 2.54 2.27 2.16 2.11

Haywood County (All) 2.70 2.40 2.30 2.28

North Carolina 2.78 2.54 2.49 2.28

Source(s): U.S. Census Bureau, 1980, 1990, 2000 and 2010 Censuses.


Element Three: Public Facilities,

Services, and Infrastructure |27

Element Three: Public Facilities, Services, and Infrastructure

Introduction

A primary function of local government is to provide services to its residents. In North Carolina, the

only service a city or town must provide (on its own or through a contract with another entity) is

building code enforcement. However, many cities and towns, including Clyde, perform other

functions and provide a variety of services, such as maintaining roads, making drinking water

available, disposing of sewage, picking up trash, offering parks and recreation facilities, and

providing police protection.

The availability of funding, demographic trends, the age and condition of facilities, the way land is

used or developed, state and federal projects, and other outside influences, for example, are among

the many factors that determine the type and level of services a local government provides to its

citizens. As Clyde knows all too well, unforeseen circumstances, such as natural disasters, can also

significantly impact public facilities, services, and infrastructure.

The Town of Clyde currently provides the services listed below, either directly or through

agreements and/or contracts with other entities:

Drinking water supply (by agreement with the Town of Canton)

Wastewater disposal (by agreement with Junaluska Sanitary District and others)

Police protection

Street maintenance and lighting

Garbage collection

Leaves, brush, and junk collection

Business privilege licensing

Planning and zoning administration

Stormwater management

Flood damage prevention (through Haywood County)

Erosion and sedimentation control (through Haywood County)

Building inspections (through Haywood County)


28 |


Services, and Infrastructure

The existing public infrastructure, facilities, and services in the Clyde area, as well future plans for

such, are reviewed in more detail below.

Transportation

This section provides an overview of the components of the existing transportation system in the

Clyde area and summarizes relevant transportation planning efforts for various modes, including

vehicular, bicycle, pedestrian, public transit, and rail facilities and services.

There are inherent connections between land use and transportation planning. Land use decisions

may result in an increase in usage of certain segments or components of a transportation system.

For example, the construction of a school is likely to increase the traffic volume on roads in its

vicinity (as was the case with Clyde Elementary School), and may require the addition of turn lanes,

the widening of road shoulders, etc. Transportation system investments can also drive land use

decisions. Plans for a new highway may require zoning map amendments to accommodate the

businesses and other uses that may be attracted to the area, thereby changing the development

pattern. The interconnectedness of land use and transportation decisions demands that planning

efforts be coordinated.

The transportation recommendations found at the end of this element are intended to support the

development patterns envisioned by the Land Use Plan as well as other Plan goals.

Roads and Bridges

The Study Area has excellent access via major highways. Carolina Boulevard (US Highway 19/23 or

US 19/23) is a major artery that bisects the Study Area from east to west. This five-lane road, which

passes through the heart of the downtown area, benefits the town but also presents some

challenges (as discussed elsewhere in this Plan).

Interstate 40 (I-40) runs through the northern portion of the Study Area, almost parallel to Carolina

Boulevard. It splits from US Highway 74 (US 74) at exit 27 and heads northeast to the border of

North Carolina and Tennessee at the interchange with US 19/23. US 74 (the beginning of the Great

Smoky Mountains Expressway) joins US 19/23 southwest of the Clyde town limits. Clyde is located

less than 7 miles (road distance) from downtown Waynesville, the Haywood County seat. Asheville,

Western North Carolina’s largest city, is within a 30-minute drive of Clyde.

There are approximately 11 bridges on public (federal, state and town) roads. Two of the bridges

cross the Pigeon River. One is on US 74, between I-40 and US 19/23. It crosses Hyder Mountain

Road and Old Clyde Road/Broad Street well above grade. The other bridge that crosses the Pigeon

River is on Charles Street in downtown Clyde. The bridge on Charles Street provides the only

connection across the Pigeon River for a large section of the northern portion of the Study Area.




According to the North Carolina Department of Transportation (NCDOT), the Town of Clyde

maintains approximately 8.37 miles of roads. The Town only maintains roads within its corporate

limits. Other roads within the Study Area are either state-maintained or private.

State Funding for Municipal Streets

Each year, the State of North Carolina allocates funds to eligible, qualified incorporated

municipalities for road construction, maintenance, repair, and other improvements, for the

planning, construction, and maintenance of bikeways (within public road rights-of-way) and

sidewalks (along public roads). The funding for such allocations comes from the State Highway Fund

and the State Highway Trust Fund under North Carolina General Statutes 136-41.1 through 136-41.4

(known as the Powell Bill). The Powell Bill provides a municipality with the option of accepting all of

the allocated funds or having some or all of the funds reprogrammed for an approved project in the

State Transportation Improvement Program that is either within the municipality or within the

municipality’s metropolitan or rural planning organization area if the allocation would, in itself or

with existing programmed project funding, fund one full phase of a project.

For 2010, Clyde’s allocation of Powell Bill funds totaled $40,301.73.9 The Town uses the funds to

maintain roads and sidewalks within the corporate limits of Clyde. The funds do not fully cover the

maintenance costs; therefore the Town has to prioritize improvement projects for existing facilities

and has not been able to use the funds for planning or constructing new facilities such as bikeways

or additional sidewalks.

Traffic Counts

Each year, NCDOT provides Average Annual Daily Traffic (AADT) counts for many of the state-

maintained roads in counties and urbanized areas. The AADT counts for some roads are conducted

every other year.

Between 2001 and 2010, according to the AADT data, traffic counts did not change in 4 locations,

they decreased in 12 and they increased in 14. The most significant decrease in daily traffic

occurred on Main Street, in the downtown area, where the AADT declined by 31.6 percent, from

3,800 to 2,600 vehicles per day. The decrease is likely due to a combination of factors including the

opening of Clyde Elementary School in April of 2000 and the conversion of the segment of Charles

Street between Carolina Boulevard and Broad Street into a one-way street that allows only south to

north travel. As noted elsewhere in this plan, Charles Street is the only local road that crosses the

Pigeon River within the Study Area. Residents on the north side of the river must use the bridge on

Charles Street to access downtown Clyde, Clyde Elementary School, Carolina Boulevard, I-40, etc.

During the morning commute time on school days, traffic backs up along Broad Street as vehicles

wait to enter and exit the Clyde Elementary School parking lot. Traffic back-ups make it difficult for

those traveling south across the river on Charles Street to make left turns onto Broad Street and

then right turns onto Main Street to get to Carolina Boulevard. Before the one-way portion of

Charles Street was established, drivers from the north end of Charles Street could continue across

Broad Street on Charles Street to Carolina Boulevard. Now they turn right on Broad Street and then


30 |



take a left on Morgan Street to get to Carolina Boulevard and other destinations. Drivers traveling

on Carolina Boulevard that need to access the bridge at Charles Street also tend to make use of

Morgan Street rather than Main Street.

Chambers Mountain Road and a portion of Carolina Boulevard, east of its intersection with Pleasant

Hill Road, had daily traffic counts that decreased by more than 20 percent between 2001 and 2010.

During the same period, the most notable increases in daily traffic occurred on: Lee Road, east of its

intersection with Jones Cove Road (63.6 percent); Carolina Boulevard, between Jones Cove Road

and the western ETJ boundary (53.8 percent) and Jones Cove Road, near Haywood Community

College (51.9 percent). An increase in student enrollment and programs offered at Haywood

Community College, combined with new residential, commercial, and medical office development

near Clyde’s western ETJ boundary, have likely contributed to the increases in daily traffic on the

western end of Carolina Boulevard and on Jones Cove Road.

Planned Future Road and Bridge Projects

The Study Area is located in Division 14 of the NCDOT Division of Highways. The Division 14

Engineer’s office in Sylva (Jackson County) serves 10 of the westernmost counties in the state.

Division 14 is divided into 3 districts. Clyde falls in District 2, which is comprised of Haywood,

Jackson and Swain Counties. The District 2 Engineer’s office is located in the Whittier community in

Jackson County.

The Study Area is also part of the planning jurisdiction of the French Broad River Metropolitan

Planning Organization (MPO). The MPO is comprised of local governments, including the Town of

Clyde, within a defined urbanized area that includes Buncombe County, Henderson County and part

of Haywood County. The MPO works with the NCDOT on long-range planning for transportation

system improvements in the region. Such planning encompasses all modes of transportation

including highways, bicycle and pedestrian facilities and public transit. The Land of Sky Regional

Council provides staff assistance to the MPO.

The MPO adopted a Comprehensive Transportation Plan (CTP) in late 2007 and the NCDOT adopted

it in January of 2008. It is a 30-year plan that that identifies future transportation needs. The CTP

does not recommend any road improvement projects in the Study Area.

The NCDOT requires that the MPO develop and prioritize a list of projects for possible inclusion in

the State Transportation Improvement Program (STIP). The MPO’s 2011-2017 Priority Needs List

contains no road or bridge projects for the Study Area.

The MPO is required by the state and federal governments to prepare other transportation planning

documents as well. Such plans are incorporated into the STIP. Other than pavement rehabilitation

work on I-40, there are no road or bridge projects proposed for the Study Area in the 2009 - 2015

STIP.




Carolina Boulevard Streetscape Improvement Plan

In 2008, NCDOT installed a sidewalk and new traffic signal poles along Carolina Boulevard using

“Small Urban” project money that passed through Division 14 to District 2. The Town of Clyde

initiated discussions with the NCDOT in 2010 about improving the appearance of Carolina Boulevard

and providing on-street parking. The project is proposed to run from Smathers Street to Pleasant

Hill Road. When resurfacing Carolina Boulevard in 2010, the NCDOT, at the request of the Town of

Clyde, changed the pavement markings to establish 10 on-street parking spaces.

Town leaders want to enhance the streetscape along Carolina Boulevard with bump-outs,

landscaping, sidewalk extensions and other design elements when funding is available. The Town

would also like to provide additional on-street parking spaces. To illustrate its intentions, the Town

worked with the consulting firm N∙Focus to develop the Carolina Boulevard Streetscape Plan. The

Plan consists of a series of drawings showing how planted medians and other landscaping, turn-

lanes, additional parking spaces, and more could be accommodated within the existing Carolina

Boulevard right-of-way.

The draft 2012 – 2018 STIP includes in its Division Managed Construction Program list a non-system

project described as “Carolina Avenue – Town of Clyde.” Construction on the project is scheduled

for fiscal year (FY) 2012 and has a cost of $80,000. According to NCDOT and Town officials, the

project is a proposed sidewalk extension on the south side of Carolina Boulevard from Smathers

Street west for approximately one-eighth of a mile.

Prior to the development of the Carolina Boulevard Streetscape Plan, the LUPC discussed the

possibility of converting Carolina Boulevard to a boulevard-style road, particularly near downtown.

The NCDOT has shown more interest in the past decade in boulevards, which are typically four-lane

divided highways that have two travel lanes on each side of a median. The streetscape plan for

Carolina Boulevard reflects such a change in the road design.

Thickety Road Relocation

A planned project that is not included in the STIP is the relocation of part of Thickety Road. As part

of a proposed project to create a debris relief area along the Pigeon River (including a town park), a

section on the western end of Thickety Road is proposed to be moved. This is intended to improve

safety on the road, which was damaged by floods in 2004. Funding for the project was provided by

the 2005 Hurricane Recovery Act. The NCDOT supports the proposed relocation and will be

approving its design but will not otherwise be involved in the pre-construction or construction

phases of the project. Construction is scheduled to begin sometime in 2012.

Other Road and Bridge Issues and Needs

In addition to the road improvement projects addressed in the plans mentioned above, the LUPC

discussed some additional needs, as outlined below.


32 |



Road Issues

The LUPC identified some issues with existing roads that may need to be addressed in the future.

They include: the narrowness of Morgan Street (which has experienced an increase in traffic);

having only one road that crosses the Pigeon River; and turning problems, such as issues with

making left turns onto Carolina Boulevard from roads on its north, turning left onto Mulberry Street

from the square, and turning either way from Broad Street onto Morgan Street.

The Committee also discussed the temporary traffic back-ups created by vehicles entering and

exiting the Clyde Elementary School property. In 2011, the NCDOT Division of Transportation

Mobility and Safety, Traffic Management Unit, Municipal and School Transportation Assistance

(MSTA) program worked with Clyde Elementary School on school traffic safety issues. The MSTA

created a new design for the school’s parking area to allow for a 1,300 foot long vehicle queue on

the school’s property. The MSTA also recommended some changes for the loading and unloading of

students to and from vehicles. The school made the suggested changes and began operating

according to the new plan and loading procedures in December of 2011.

Bridge Repairs

Bridge improvements will need to be considered in the future. The NCDOT inspects bridges at least

once every two years and rates their sufficiency. The sufficiency rating is used to determine a

bridge’s eligibility and priority for replacement or rehabilitation. The NCDOT replaces or

rehabilitates the highest priority deficient bridges when funding is available.

A bridge’s sufficiency rating is based on a variety of factors related to its structural condition and

safety, level of performance, importance for public use and national security, and more. Having a

structurally deficient or functionally obsolete classification does not necessarily mean that a bridge

is unsafe. Depending on the bridge, it may mean, for example, that additional efforts (and funding)

may be needed to maintain functionality. The CTP identifies three deficient bridges in the Study

Area (see Table 26).

Table 26: Deficient Bridges in Clyde Land Use Plan Study Area Bridge

Number Road/Location

Structurally Deficient

Functionally Obsolete

73 US 74 at US 19/23 Yes No

95 US 74 / Southern Railroad Yes No

321 SR 1820 Clyde Loop Road No Yes

Source(s): French Broad River Metropolitan Planning Organization Comprehensive Transportation Plan, 2007.

The 2009 - 2015 STIP and the 2012 - 2018 Draft STIP do not include projects to replace the three

deficient bridges within the Study Area. Given the NCDOT’s biennial inspection schedule and the

time that has passed since the CTP was completed, it is likely that NCDOT will identify additional

deficient bridges in the Study Area. In early 2012, for example, NCDOT notified the Town of Clyde of




its intent to replace Bridge Number 165 on Secondary Road 1513 (Hyder Mountain Road). The

bridge crosses Chambers Branch and, according to the NCDOT, it is safe to drive on but must be

replaced to meet state and federal criteria. Work is scheduled to begin in 2012.

Private Road Standards

Until August of 2011, the Town of Clyde’s Subdivision Ordinance, which applies to the Town of Clyde

and its ETJ, required that parcels had to adjoin a public street in order to be subdivided and that new

roads built within subdivisions had to meet Town standards. The Town uses the subdivision road

standards established by the NCDOT (State standards) for acceptance into the state road system.

State standards require that roads be paved to certain specifications, have rights-of-way and

travelways of certain widths, meet curve radii and slope requirements, etc. The Town requires a 40-

foot right-of-way for subdivision streets, which is less than the 45-foot right-of-way width required

by State standards.

The Town introduced private road standards to its Subdivision Ordinance (and added references to

them in its Zoning Ordinance) in 2011. The standards allow the Town’s Planning Board to approve

subdivisions on existing private roads and to require upgrades to such roads in certain cases, if

deemed necessary. The Planning Board may also approve subdivisions containing new roads that do

not meet State standards. If permitted, upgrades to existing private roads and new private roads

must meet construction standards specified in the Subdivision Ordinance.

Access Management

Traffic congestion often occurs along major transportation corridors where numerous driveways

connect to highways. Automobiles turning into and out of such driveways, in addition to those

making turns at road intersections, reduce the flow of traffic and increase the chances of accidents.

As more development occurs along such corridors, traffic conditions may deteriorate without some

type of intervention.

Access management consists of a comprehensive set of planning, regulatory, and design strategies

that can be applied to roads and surrounding land to help traffic move more efficiently while

improving traffic safety. Often it involves managing vehicle access points to and from land adjoining

roadways through intersection and interchange spacing, traffic signal spacing, driveway spacing,

turning lanes, medians, roundabouts, and other road design techniques. According to the United

States Department of Transportation, Federal Highways Administration (FHWA), good access

management can help increase or maintain road capacity (thereby reducing the need for widening),

reduce crashes and shorten travel times.10

Some access management strategies, such as state road design standards and the issuance of

driveway permits on state highways and secondary roads, are implemented by the NCDOT. Those

that a local government might pursue include standards for property access such: as limiting ingress

and egress points; providing spacing, width, radii, and/or requirements for driveways; promoting

shared driveways; allowing for interconnected parking lots and service roads; minimizing left turns


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from driveways along highways; etc. If the Town of Clyde determines in the future that access

management tools are needed, it should work with the NCDOT to ensure that the Town’s plans

would not duplicate, be counter to, or otherwise interfere with state and federal requirements.

Property owners along roadways sometimes have concerns about the impacts that certain access

management techniques may have on their businesses and other land uses, their ability to enter and

leave their property, etc. The FHWA recommends involving the public and business community in

access management planning. It also stresses the importance of designing access management

strategies that maintain property values while allowing traffic to flow safely and efficiently.

Bicycle Facilities

There are currently no facilities in the Study Area that are specifically designated for riding bicycles.

Cyclists share the roads in and around Clyde with motorized vehicles and pedestrians.

The Town of Clyde does not have its own bicycle plan; however the French Broad River MPO’s CTP

proposes several bicycle projects for the Study Area (see below). The Town also participated in the

development of a comprehensive bicycle plan for Haywood County (discussed below).

French Broad MPO Comprehensive Transportation Plan

The CTP for the French Broad River MPO area recommends the following bicycle projects in the

Study Area:

Project B1: Poison Cove Rd (SR 1818)/Charles Street - Ratcliff Cove Road (SR 1818) to Pigeon

River. The proposed project would improve Poison Cove Road and Charles Street between

Ratcliff Cove Road and the Pigeon River in downtown Clyde to make it safer for bicycle

travel. Improvements might include widening shoulders, adding signage, etc. The project

would also provide a bicycle route between Waynesville and downtown Clyde and connect

to the future Pigeon River Greenway (CTP Bicycle Project B8).

Project B2: Old Clyde Road (SR 1523) – NC 209 to Charles Street (Clyde). The proposed

project would improve Old Clyde Road between NC 209 and Charles Street in Clyde to make

it safer for bicycling and to provide a bicycle route between northern Waynesville and

downtown Clyde as well as the future Pigeon River Greenway (CTP Bicycle Project B8). The

CTP recommends it be coordinated with highway project B24, which calls for improvements

to a section of Old Clyde Road that lies outside of the Land Use Plan Study Area.

Project B8: Pigeon River Greenway – NC 215/Existing Greenway to Clyde. The proposed

project would extend a greenway along the Pigeon River from an existing greenway in

Canton on the Pigeon River and NC 215 through downtown Clyde as proposed in the 2007

Haywood County Comprehensive System-wide Parks and Recreation Master Plan.

According to the CTP, the project is intended to “…to provide off-road connectivity between




Canton and Clyde, to promote bicycling in the area and to promote a healthy lifestyle and

recreational opportunities.”11

Haywood County Comprehensive Bicycle Plan

In 2011, Bicycle Haywood NC and the Haywood County Recreation and Parks Department began

preparing a comprehensive bicycle plan for the county. Funding for the project was provided

through grants from the French Broad MPO, the Community Foundation of Western North Carolina,

and others, as well as through contributions from businesses and individuals. The purpose of the

plan is to help improve cycling opportunities and safety in Haywood County. The plan also

addresses how cycling can benefit the county as a whole such as by improving the health and fitness

of riders, providing an alternative mode of transportation for a variety of trips (lower cost, less

pollution, etc.), and aiding in tourism development and economic development efforts. Local

governments within the county (including Clyde), Healthy Haywood, and other entities were

involved in the planning effort.

The Haywood County Comprehensive Bicycle Plan (also referred to as the Bicycle Plan) establishes a

number of goals and objectives that address topics including: the physical infrastructure for

bicycling; support facilities and programs; information, education and outreach for residents and

visitors; policy changes; and economic development. The Haywood County Board of Commissioners

adopted the plan in November of 2011. The Clyde Board of Aldermen has endorsed the plan.

The Bicycle Plan suggests that Clyde could become the bicycling hub of Haywood County given its

central location, amenities such as parks and parking, as well as its proximity recreational bicycle

routes that include Old Clyde Road, Thickety Road, Hyder Mountain Road, and Main Street / Poison

Cove Road. It notes that the Town is already the site of an annual bicycle rodeo for children to

promote bicycle safety.

The Bicycle Plan discusses the concept of “Park-n-Pedal” lots, which are similar to park and ride lots

for public transit and ridesharing, and indicates that establishing one in Clyde or near Lake Junaluska

could benefit commuters and others who would ride bicycles to certain destinations if the trips were

shorter or if there were not gaps in the infrastructure for bicycle transportation, for example. Since

the Bicycle Plan’s adoption, there has been some discussion regarding the designation of a Park-n-

Pedal lot in Clyde on County-owned property on Glance Street.

Some of the transportation corridors and intersections that the Bicycle Plan identifies as being in

need of improvements for bicyclists are located within or adjacent to the CLUP Study Area. They

include:

Old Clyde Road / Broad Street Corridor. Install shoulders for 7 miles from NC 209 to NC 215

in Canton and install Share the Road signage and/or pavement markings through downtown

Clyde until pavement re-striping can be done for travel lanes and bike lanes. Old Clyde Road

and Broad Street through Clyde form a segment of the proposed Haywood Hub, a

conceptual bicycle transportation corridor recommended by the Bicycle Plan to connect


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Waynesville, Lake Junaluska, Clyde, and Canton and to link downtowns, parks, schools,

medical and other facilities, services, and areas.

Jones Cove Road & Hospital Drive Intersection. Increase visibility of the presence of

bicyclists by installing Share the Road and wayfinding signs identifying access to Haywood

Community College, MedWest Haywood, and Tuscola High School.

Broad Street & Charles Street. Re-stripe Broad Street for bicycle lanes as identified in the

corridor recommendations. Increase visibility of the presence of bicyclists with Share the

Road and wayfinding signs related to access to bicycle routes. Pursue funding to move

utility poles out of the sight triangle.

US 23/74 & NC 209 Interchange. Improve visibility for bicyclists, install bicycle lanes, and

eliminate merging conflicts as part of NCDOT project R-4047 to widen NC 209 from the

interchange to Old Clyde Road.

The Bicycle Plan includes ten Action Steps for implementing its recommendations. Haywood County

has already completed Action Step 1, which was to adopt the Bicycle Plan. Haywood County, the

municipalities within the county, the MPO and RPOs, BicycleHaywoodNC, the NCDOT, Healthy

Haywood, the chambers of commerce and tourism development agencies, the school system,

Haywood Community College, law enforcement agencies, the public, and other partners will all be

involved in carrying out the other Action Steps. A timeline and other implementation details have

not yet been determined.

Land of Sky Regional Council Regional Bicycle Plan

Haywood County is one of seven counties involved in the development of a regional bicycle plan by

the Land of Sky Regional Council (LOSRC). The Regional Bicycle Plan is intended to help guide future

transportation planning and investments. Through a grant from the NCDOT, the LOSRC will develop

the plan in cooperation with the French Broad River MPO, the Land of Sky Rural Planning

Organization (RPO), and the Southwestern RPO. The Town of Clyde is represented on the project’s

steering committee. The LOSRC intends to complete the plan by the middle of 2013.

Pedestrian Facilities

The Town of Clyde maintains sidewalks on public roads within the town limits, including those

constructed by the NCDOT along Carolina Boulevard. The current sidewalk network includes

portions of Carolina Boulevard, Main Street, Broad Street, and Maple Street.

Some of the distinguishing features of Clyde, including the Norfolk Southern railroad track, the

Pigeon River, and Carolina Boulevard, each of which bisect the Study Area, present some of the

most substantial barriers for pedestrians. The Norfolk Southern railroad creates challenges in that it

limits pedestrian (and other transportation) connections between areas to its north and south. As

noted previously, Charles Street is the only road in the Study Area that links land on the north and




south sides of the Pigeon River. While a sizeable stretch of the south side of Carolina Boulevard has

a sidewalk, the road is a five-lane highway with few pedestrian crossing areas.

The LUPC recognized that additional sidewalks are needed to link neighborhoods to each other and

to other destinations such as the downtown business district, schools, parks, churches, and other

facilities. Interconnections between existing non-residential uses are also needed. In addition to

providing a convenient, alternative means of travel within the Clyde area, the Town wants to protect

and improve the safety of those who walk, such as by minimizing conflicts between automobiles and

pedestrians. Town leaders also recognize and want to make it easier for interested citizens to

realize the health benefits associated with walking and running.

Sidewalk Connectivity Ordinance

In 2011, the Clyde Planning Board developed a proposed Sidewalk Connectivity Ordinance that

would require the installation of sidewalks when new and redevelopment projects are constructed

on certain roads. The Ordinance is intended to add to and improve the town’s sidewalk network.

The Town’s Board of Aldermen had not yet taken action on the proposed ordinance as of the time of

publication of this Land Use Plan.

Comprehensive Pedestrian Plan

When the Town began work on the Land Use Plan, it did not have a pedestrian or sidewalk plan. In

2011, however, Clyde was selected to receive a Bicycle and Pedestrian Planning Grant from the

NCDOT to fund a Comprehensive Pedestrian Plan. The NCDOT has agreed to provide $18,000 and

the Town proposed a match of $4,500, to fund the total project cost of $22,500. After receiving

notice of the grant award, the Town learned that no local match would be required. The NCDOT has

selected a consulting firm to develop the Comprehensive Pedestrian Plan. The Town expects work

on the plan to begin in January of 2012.

The proposed Comprehensive Pedestrian Plan will help the Town identify locations where

pedestrian trips originate as well as existing and proposed destinations that do and could attract

foot traffic. Such information will help the Town develop an integrated plan that addresses

pedestrian infrastructure, public safety, and other related needs and establishes funding priorities.

Greenways and Other Trails

Within the Study Area, there are currently walking paths and trails available for public use on

County-owned property on Glance Street, at Clyde Elementary School, and at Haywood Community

College. However, sidewalks, trails and other walkways linking these facilities with each other and

with other sites are limited or non-existent.

As noted above in the discussion of bicycle facilities planning, the Haywood County Comprehensive

System-wide Parks and Recreation Master Plan (“Parks and Recreation Master Plan”) recommends

the development of a 4-mile greenway along the Pigeon River between Canton and Clyde to serve

pedestrians and bicyclists. It cites the existence of flood-prone properties along the river that were


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acquired by Haywood County and the Town of Clyde through a federal buyout program as one of

the reasons for locating a greenway in this location. The Parks and Recreation Master Plan

recommends that Haywood County, Canton, and Clyde work together to jointly fund and develop

the greenway and notes that a Clean Water Management Trust Fund (CWMTF) grant had been

awarded to the three local governments to purchase other flood-prone properties along the Pigeon

River. As explained in the Environment and Natural Resources Element of the CLUP, the CWMTF

funds were to be used for the acquisition of property and easements to establish a riparian buffer

along the Pigeon River. Some, but not all, of the parcels and/or easements proposed to be

purchased were acquired.

The Parks and Recreation Master Plan makes recommendations related to specific segments of what

could eventually be a county-wide greenway system. However, there is currently not a

comprehensive greenways master plan for Haywood County. One of the recommendations of the

Parks and Recreation Master Plan is for Haywood County and the municipalities within it to jointly

fund and develop such a master plan for greenways.

Public Transit

Haywood Public Transit (“HPT”), a division of Mountain Projects, Inc. (a Community Action Agency),

operates a limited on-demand (by request) transportation service on weekdays, except holidays,

that serves the elderly, the disabled, and the general public in Haywood County. Riders make

reservations and pay fares based on their trips. It also offers a fixed route, paratransit service. HPT

makes some out-of-county trips to Sylva and Asheville.

HPT also provides transportation services for other programs operated by Mountain Projects, Inc.,

such as Head Start, Foster Grandparents, and Senior Services, and to other human services agencies

in the county including the Haywood County Department of Social Services and Southwestern Child

Development.

There is a designated HPT bus stop located within the Study Area. It is on Carolina Boulevard, near

the Clyde Town Hall. Observations by Town officials and other LUPC members indicate that it is

rarely, if ever, used. Mountain Projects is planning to construct a new transit facility in the Study

Area on Jones Cove Road, adjacent to Haywood Community College. The facility will include an

office, parking areas for staff and visitors and a secure lot for the HPT vehicles.

According to the 2000 Census, 4,096 workers living in Haywood County commuted to jobs in

Buncombe County. That equates to 17.3 percent of the total number of workers living in Haywood

County in 2000. Approximately 17 percent of workers from Haywood County commuted to

Buncombe County in 1990. Data regarding commuting patterns to and from specific locations is not

going to be available from the 2010 Census.

In 2009, almost 32 percent of students (1,441 out of 4,532) attending Haywood Community College

commuted from outside of Haywood County.12 Given the number of commuters traveling to and




from Haywood County for work, school, and other activities, various groups, including the Haywood

County Economic Development Commission, HPT, Mountain Projects, Inc., Haywood Community

College, the Greater Haywood County Chamber of Commerce, and the NCDOT, worked successfully

to establish a park and ride facility at Exit 33 (Newfound Road) on Interstate 40 in Canton. The

MPO’s CTP also recommended having a park and ride lot at that location. The facility occupies land

owned by the NCDOT and includes a lighted parking lot and a shelter. A grant from the American

Recovery and Reinvestment Act provided funding for the project. The park and ride lot provides

commuters traveling between Haywood County and Buncombe County with an opportunity to use

public transit for part of the trip. Transit service between the two counties is provided, for a fee, by

HPT. The park and ride lot also provides a meeting place for commuters interested in ride sharing.

Because of its proximity to the Study Area, the park and ride facility provides a convenient

transportation option for those who travel from Clyde to Buncombe County.

Railroad Transportation

A Norfolk Southern Corporation railroad line passes through the heart of Clyde and the Land Use

Plan Study Area. The rail line segment in the Study Area is approximately 3 miles long and its

east/west route parallels the Pigeon River within the town limits (see Map 2, Study Area). There are

at least 6 at-grade railroad crossings in the Study Area, all of which have signals and gates.

Development in and around Clyde was strongly associated with the extension of the railroad to the

area. The rail line, completed in 1882 by the Western North Carolina Railroad Company, began

providing passenger, freight, and mail service to the Clyde area in 1883. A depot was constructed in

what is now downtown Clyde before the Town incorporated in 1889. According to research by

Town of Clyde staff, the depot was demolished sometime after 1950, probably in the early part of

that decade.

Freight trains still run on the Norfolk Southern line through Clyde several times a day. Southern

Railway, which operated the railroad line beginning in 1896, ended regular passenger train service

from Asheville to Clyde and other communities along the line in 1949. In the 1990s, due to growing

interest in having passenger rail service restored to Western North Carolina, the North Carolina

General Assembly asked the NCDOT to study options for doing so. The preferred option proposed

by the study was to provide service from Raleigh to Asheville via Salisbury. Further planning efforts

have been delayed due to funding limitations.

Water Supply and Wastewater Disposal Systems

Local governments in North Carolina are able to provide water and sewer services through their

statutory authority to operate and fund public enterprise services. Complying with changes to state

and federal regulations, fulfilling obligations of contracts with other water and sewer service

providers, keeping up with everyday system functions and maintenance issues, reviewing requests

for line extensions, planning for future system needs, and other tasks can be challenging, time-


40 |



consuming, and, often, expensive for the Town of Clyde. Nevertheless, the Town has been able to

keep its water and sewer systems financially viable while providing a high level of service to

customers.

Water Supply Systems

The Land Use Plan Study Area is served by two public water systems: one owned and operated by

the Town of Clyde and the other by the Junaluska Sanitary District. Map 3, Water Service, shows the

service areas for both systems. There are also properties in the Study Area that use private,

individual wells.

Town of Clyde Water System

In 1966, the Town of Clyde entered into a 45-year contract to purchase treated water from the

Town of Canton in order to provide it to customers inside and outside of the Clyde town limits.

Clyde constructed a water distribution system and Canton extended an 8-inch water main along Old

Clyde Road to where it crosses Sally Haynes Branch in order to connect the two systems. Clyde

installed a pump station near the site where the systems merge. While the contract was in effect,

Clyde was not required to pay for capital improvements to Canton’s water system. Canton also

could not raise Clyde’s water rate without increasing, by the same percentage, the rate it charged its

own customers. One of Clyde’s obligations under the contract was to build a water tank with a

400,000 gallon capacity. The water tank, which Clyde maintains, is located off Fern Lane, east of the

Study Area.

The towns entered into a new contract for the sale and purchase of water effective July 1, 2011.

The new contract has a term of 10 years with the option of 4 additional 10-year renewal periods. In

addition to a rate increase, one of the more significant differences between the 1966 and 2011

contracts is that the newer contract does not link the rate Canton charges Clyde to the rate it

charges its own customers.

According to Clyde’s 2010 Local Water Supply Plan (LWSP) approved by and on file with the North

Carolina Department of Environment and Natural Resources (NC DENR), its system has 23 miles of

water distribution lines that serve approximately 2,775 people through 1,181 metered connections

(1,123 residential, 56 commercial, 2 institutional, and 0 industrial). The Town has added about 2

miles of water line in the past 10 years. The 2011 Wastewater System Master Plan and Preliminary

Engineering Report for the Town of Clyde (“Wastewater Master Plan”) shows that 506 of Clyde’s

residential water customers were located within the town limits and 631 were outside. The

Wastewater Master Plan also indicated that of 47 non-residential customers, 38 were inside of the

town limits. Clyde also supplies water to the Evergreen Farm subdivision area, located outside of

the Study Area, southwest of the Town’s southern ETJ boundary.

The Clyde water system uses an average of 197,000 gallons per day (gpd). Clyde’s contract with

Canton does not specify a minimum or maximum amount of water available to Clyde. Canton’s




2010 LWSP indicates that its average daily withdrawal from the Pigeon River is 1.233 million gallons

per day (mgd) and that it has 6.8 mgd of raw water available. Such figures suggest that the water

supply from Canton is more than sufficient to accommodate the growth that is projected to occur in

Clyde over the next twenty years. However a detailed analysis may be needed if there are

substantial changes in conditions that could alter growth projections and/or create substantial

water demand.

The Town of Clyde maintains the water lines within the Town’s water service area. While the water

lines, which vary in terms of pipe size and construction material, are aging and have the potential to

be problematic, the Town has identified no significant maintenance issues at this time. According to

Town staff, some lines are at or are close to reaching capacity. Repairs and replacements of water

lines are managed by the Town of Clyde as they arise. Clyde has a Capital Improvements Plan (CIP);

however the Town has not addressed the scheduling and funding of water system maintenance and

improvements such as replacing water lines, pumps, hydrants, etc.

Although Clyde does not have a written, long-range, plan for upgrading or expanding its water

system, the CIP section of the Town’s Wastewater Master Plan proposes funding for 4 water system

improvement projects in the next 10 years (see Table 27), as well as some administrative projects

that will serve both the water and sewer systems. The preliminary engineering to extend both a

water line and a sewer line on Nelson Street was done prior to completion of the Wastewater

Master Plan. According to Town staff, both projects are combined into one in the sewer portion of

the CIP recommended by the Wastewater Master Plan (addressed later in this section).

Table 27: Clyde Water System Improvement Projects Proposed in the Wastewater System Master Plan and Preliminary Engineering Report Project No. Project Name Estimated Cost

1 Water Tank Rehabilitation $125,000

2 Water Meter Replacement $59,000

3 Water Tank Supervisory Control and Data Acquisition (SCADA) System $40,000

4 Pump Station (Replacements) $12,000

Total $236,000

Source(s): Town of Clyde Wastewater System Master Plan and Preliminary Engineering Report, McGill Associates, P.A., 2011

Junaluska Sanitary District Water System

The Junaluska Sanitary District (JSD) operates a water distribution system that serves an

unincorporated area to the west of the Town of Clyde, including part of Clyde’s ETJ. The JSD

purchases its water from the Town of Waynesville. The JSD system serves as an emergency water

supply source for Clyde’s water system. A valve connects the JSD and Clyde water systems near the

intersection of US 19/23 and US 74.


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Haywood Community College is served by the JSD system. A utility analysis done during the

development of the Haywood Community College Campus Master Plan indicated that there is not

enough water system capacity and flow to the campus, which could pose a problem if there is a

fire.13

Available data for the JSD system does not distinguish between customers within the Clyde ETJ and

other customers. Also, the digital mapping for the JSD water system available through Haywood

County does not show all of the smaller lines. The CLUP does not provide JSD water system

information for the Study Area other than what is shown on Map 3.

Other Water Supply Sources

The Town of Clyde allows for the construction of new wells in the town limits but prohibits the use

of private wells for supplying water for gain or profit.14 However, virtually all residences, businesses,

public facilities and other institutional uses within the town limits are connected to Clyde’s water

system. Within the ETJ, there are areas and properties that do not have public water available and,

therefore, rely on individual private wells for water supply. In accordance with changes to state law,

in 2008 Haywood County implemented a well inspection and testing that includes permitting

requirements. When the program began, the County Health Department’s Environmental Health

Division estimated that wells provided water to approximately 52% of the households in the county.

Drought Response and Water Conservation

Water Shortage Response Planning

North Carolina General Statutes (N.C.G.S.) § 143-355.2 (Water Conservation Measures for Drought)

and North Carolina Administrative Code Section .0600 (Water Use During Droughts and Water

Supply Emergencies) require local governments with water systems to have a plan and procedures

in place to conserve water in the event that drought or other conditions lead to water shortages.

The NC DENR, Division of Water Resources (DWR), reviews and approves such Water Shortage

Response Plans (WSRPs). The plans must provide for tiered levels of water conservation measures

or other response actions, the restrictiveness of which depend on the severity of the water

shortage. The State requires that WSRPs be updated at least every five years. Clyde’s WSRP,

approved in 2010, is based, in part, on the plan and procedures used by its water supplier, the Town

of Canton. Clyde’s plan can be found on the DWR website:

http://www.ncwater.org/Water_Supply_Planning/Water_Shortage_Response_Plans/.

Water System Efficiency Requirements

According to N.C.G.S. § 143-355.4 (Water System Efficiency), local government water systems must

require separate meters for new in-ground irrigation systems on lots created and recorded after July

1, 2009 that are connected to the water system. The Town of Clyde enacted water tap fees for

irrigation systems at the beginning of FY 2011.

http://www.ncwater.org/Water_Supply_Planning/Water_Shortage_Response_Plans/




In 2010, amendments to N.C.G.S. § 143-355.4 also established requirements that water systems

must meet in order to be eligible for water infrastructure funds from the State’s Drinking Water

Revolving Fund, the Drinking Water Reserve, or other grant or loan funds the General Assembly

provides to State agencies or nonprofit organizations for extending waterlines or expanding water

treatment capacity. To be eligible for such funding, a local government must:

Have a water rate structure sufficient to cover the full costs of maintaining, repairing, and

operating the system during both periods of normal use and reduced water use due to

implementation of water conservation measures.

Have implemented a leak detection and repair program.

Have an approved water supply plan as required by N.C.G.S. § 143-355.

Meter all water use except uses that are impractical to meter such as water used for

firefighting, flushing waterlines, etc.

Not have a water rate structure that charges residential water customers a lower per unit

water rate as usage increases.

Have evaluated the extent to which its water system could use reclaimed water to meet

future needs.

Have implemented a consumer education program on water conservation.

The Town of Clyde is in compliance with most of the water system efficiency standards enacted by

the State in 2010. It has both an approved LWSP and WSRP and, as stated above, it instituted

separate metering for irrigation in FY 2011. The Town began some significant revisions to its water

and sewer rate structure and rates beginning with FY 2011 as a result of the statutory requirements

and recommendations in its 2011 Wastewater Master Plan. Such revisions are described in the

Wastewater Disposal Systems section, below. The Town does not have a formal, written, leak

detection and repair program but it monitors the water system daily and responds when leaks are

known or suspected. It has not yet assessed the potential for using reclaimed water. It also does

not have a water conservation public education program in place; however water conservation is a

long-term goal (see below) and public education will be a significant component of the Town’s

efforts to meet it. Knowing that future grant applications for water system improvements could be

affected if the outstanding water system efficiency standards are not met, Clyde’s Board of

Aldermen has had discussions about how they might be addressed.

Water Conservation

The Town’s WSRP provides short-term management actions for periods of water shortages.

Compliance with the State’s water system efficiency standards, which include implementation of a

water conservation education program, will allow the Town to be eligible for state funding for water

system improvements. The Town of Clyde, however, views water conservation as an ongoing goal

for the Town and its citizens. Therefore, it plans to go beyond meeting minimum requirements and

develop a long-term strategy for practicing and promoting water conservation.


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Wastewater Disposal Systems

Town of Clyde Wastewater Collection System

Map 4, Sewer Service, shows the current extent of Clyde’s wastewater collection (sewer) system.

Most of the Town’s sewer lines are located within its corporate limits. The Town has operated a

sewer system since the 1920s.

At one time the system included a wastewater treatment plant (WWTP) located on Hyder Mountain

Road. The Town of Clyde stopped operating its WWTP in 2000 following its decision to enter into a

contract to join an existing water treatment facility agreement between the JSD, the Town of

Waynesville and Haywood Community College. The contract allowed Clyde to connect its

wastewater collection system to one operated by the JSD and send up to 350,000 gpd of

wastewater to the Waynesville WWTP. Clyde had to construct a pump station and a 15-inch gravity

sewer line to connect to the JSD system. It also had to pay some of the costs of upgrading the JSD

system to accommodate its wastewater flow and must share in the cost of operating and

maintaining the system. Clyde must obtain permission from Waynesville in order to extend sewer

lines.

Per the Town of Clyde’s 2010 LWSP, the Town’s wastewater collection system had 665 connections.

Its average annual daily discharge to the JSD (and, therefore, to Waynesville’s WWTP) is 106,000

gpd, which is less than one-third of the amount allowed by its contract.

The Town of Clyde has not typically addressed ongoing sewer system maintenance projects, such as

replacing pipes, in its CIP. However, the Town will soon begin to do so in order to implement

recommendations in its Wastewater Master Plan (discussed later in this section).

The only sewer system expansion project that was in the planning stages as the Land Use Plan was

being developed was the extension of a line on Nelson Street (in conjunction with a water line

extension). The Board of Aldermen set aside funds in its CIP over several budget cycles for the

engineering work for the project. The Nelson Street project is addressed in the Town’s Wastewater

Master Plan; however it is shown as the lowest priority of the 18 proposed sewer system

improvement projects and is not proposed to be funded until after FY 2021-22.

The LUPC discussed where the Town of Clyde might extend its sewer system in the future. The

members suggested that the US 19/23 corridor between Clyde and Canton was a likely expansion

area for several reasons, including: (1) Canton had run a sewer line to the Midway Crossing

commercial development; (2) Clyde had recently built a water line in that area; and (3) there is




undeveloped land along the corridor that might be suitable for residential, commercial, and mixed

use development.

Junaluska Sanitary District Wastewater Collection System

The JSD owns and operates a sewer system that serves properties in its service area, which includes

part of the western portion of Clyde’s ETJ (see Map 4, Sewer Service). According to the JSD’s 2010

LWSP, its wastewater collection system has 1,085 connections. This figure includes all connections

within the JSD’s full service area, not just those in the JSD portion of the Study Area. As noted

previously, the wastewater collected by the JSD system is sent to Waynesville’s WWTP.

Sewage from Haywood Community College is transported to the Waynesville WWTP via the JSD

wastewater collection system. Although the JSD maintains the sewer line that runs between the

campus and the JSD system, Haywood Community College owns the line and is responsible for any

costs associated with maintaining it.

Other Wastewater Disposal Options

According to the Town’s 2010 LWSP, 542 of the service connections to the Town’s water system had

associated septic systems. This figure includes water connections in both the town limits and the

ETJ. The Town of Clyde does not allow new septic tanks to be constructed within the town limits.

There are some pre-existing septic tanks in Clyde that were not required to connect to the Town’s

wastewater collection system. New buildings must connect to the system. Most of the 542 septic

tanks within the Town’s water service area are, therefore, located in the portions of Clyde’s ETJ that

are outside of the JSD’s water service area.

The 2010 LWSP for the JSD shows that there are 717 water service connections with septic systems.

However the 717 includes those in the JSD’s full service area, not just the portion of the JSD service

area within the Clyde ETJ.

Water and Sewer System Planning, Financing and Administration

Clyde Wastewater System Master Plan and Preliminary Engineering Report

In 2011, McGill Associates completed the Wastewater System Master Plan and Preliminary

Engineering Report for the Town of Clyde. The Wastewater Master Plan includes: an assessment of

the physical condition of Clyde’s sewer system and issues related to infiltration and inflow; an

evaluation of the Town’s future wastewater treatment options; recommendations for projects to

maintain, improve, and extend the wastewater collection system over a 20-year period; a CIP with

sewer system, water system, and related administrative projects to be programmed over a 10-year

period; and a financing strategy for the CIP projects. The Clyde Board of Aldermen approved the

Wastewater Master Plan in June of 2011.

Clyde Wastewater Collection System Improvements


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The Wastewater Master Plan recommends and prioritizes 18 projects that are intended to improve

the operation and maintenance of the sewer system and provide the infrastructure that will enable

the Town to meet projected future wastewater collection needs for the next 20 years. McGill

Associates described the sewer system as being in fair condition and found that upgrades are

needed as a result of the system’s age, materials used in its components, the proximity of lines to

sources of inflow and infiltration (such as streams and drainage ways), and other factors.

Of the 18 projects recommended in the Wastewater Master Plan, 17 propose improvements to the

existing wastewater collection system, including replacing or rehabilitating components such as

pipes and manholes, installing additional manholes and relocating sewer line sections. The 18th

project calls for extending a sewer line to serve properties along part of Nelson Street and planning

for the possibility of providing sewer service to the Stoney Brook and Redfield Drive neighborhoods.

It is the only sewer line extension project proposed in the Master Plan. The total estimated cost of

implementing all of the projects is almost $3.5 million based on preliminary estimates by McGill and

Associates. For each of the recommended projects, the Wastewater Master Plan provides a

description, an explanation of the need for the project, and additional information about the

estimated cost. It proposes that 7 of the recommended projects be programmed between FY 2012

and FY 2021.

Capital Improvements Plan

The Wastewater Master Plan provides a 10-year plan for capital improvements for Clyde’s sewer

system and contains several water system and related administrative projects. It also includes

$5,000 to improve the Hyder Mountain Road sewer pump station. The capital improvements plan in

the Wastewater Master Plan lists the recommended projects and the fiscal year in which they are

recommended for implementation. Over the next 10 years, Clyde will need approximately $2.9

million to fund the recommended projects.

Financial Analysis

The Wastewater Master Plan includes a financial analysis that studied the Town’s current water and

sewer rates, options for rate changes, and the projected financial impact of such changes on the

Town and its customers. Based on the financial analysis, the Wastewater Master Plan

recommended a series of changes to the water and sewer rate structures in order to increase

revenues. It also proposed a change in the water rate structure to bring the Town into compliance

with another aspect of the State’s drought legislation that requires water providers to encourage

water conservation. Full details of the proposed rate structures are contained in the Master Plan.

The increases in water and sewer revenues to be generated by the rate changes are intended to

help the Town pay for proposed capital projects and to prepare it to incur additional operating and

capital costs as well as new debt service payments associated with the CIP projects. The

Wastewater Master Plan proposes a financing strategy for the $2.9 million in CIP projects to be

implemented in the next 10 years. The strategy relies on a combination of cash payments (capital




outlays in certain fiscal years and contributions from capital reserves) and new debt issuance (a

loan) for long-term financing of improvements. The Master Plan recommends that the Town of

Clyde review the water and sewer rate structure and the CIP financing strategy annually using

updated budget data and accounting for changes in the economic climate, in the demand for water

and sewer, etc.

Because the timing of its adoption of the Wastewater Master Plan and its adoption of the FY 2011-

12 Town budget coincided, the Clyde Board of Aldermen was able to begin implementing the

recommended changes to the water and sewer rate structure effective July 1, 2011, one year earlier

than proposed by the Wastewater Master Plan.

Additional Funding Sources for Water and Sewer System Improvements

The Town should look continue to explore all potential funding sources as it plans for future capital

projects. The Town already charges water and sewer tap fees. A similar way to generate additional

revenue to support water and sewer systems is through the use of system development charges

(also referred to as impact fees, capacity depletion fees, and capital recovery fees, for example).

Communities collect one-time system development charges from new customers and use the fees

to offset the costs of increasing the capacity of water and/or sewer systems to accommodate

additional demand due to growth. The State of North Carolina also allows utilities to use special

assessments under certain limitations.

The CIP financing strategy in the Wastewater Master Plan did not include potential grant funds.

Clyde has had some success in the past at securing grants for water and sewer projects. Many grant

programs, however, are not being funded at the same level as in the past, making those that do still

exist more competitive.

Other Administrative Matters

Water and Sewer Extension Policy

The Town of Clyde has a Water and Sewer Extension Policy that applies to line extensions, taps, and

reimbursement to developers. For line extensions, the policy addresses pre-construction plan

approval, easement acquisition, post-construction engineering certification, and the dedication of

lines for acceptance by the Town. It contains some general line size specifications for sewer

depending on the location and the amount of development to be served, subject to approval by the

Town and the State. Developers must dedicate all 6-inch and larger sewer lines to the Town. The

Town must approve the size of all proposed water lines and may require larger lines based on

expected future demand. The policy also makes the developer responsible for the cost of any

repairs, leaks, or stoppages during the first year after the Town accepts a water or sewer line.

Water and sewer tap locations must be approved by the Town and the Town installs the taps.

Developers are responsible for connecting buildings to the taps.

Under the policy, the Town will reimburse developers who install water and/or sewer lines for up to

60 percent of their costs. The Town funds such reimbursements by assessing a surcharge on future


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taps to the new lines. Although the policy states that the surcharge is $200.00 per tap, the Town

has increased its tap fees considerably since the policy was established. The time period within

which the Town must reimburse developers varies depending on the line length.

The Board of Aldermen had some discussions about updating the Water and Sewer Extension Policy

in 2010 and in 2011 to address items such as: general requirements for water and sewer line

extensions; the process for handling requests for the Town to take ownership of and other

responsibilities associated with private systems; taps and other fees; annexation of properties

needing water and/or sewer service; service commitments from water and/or sewer service

suppliers; reimbursement to developers for line extensions; and design and construction standards

for water and sewer extensions and improvements. To date, the Board has not made changes to

the Water and Sewer Extension Policy.

The Water and Sewer Extension Policy would benefit from some language clarifying whether

developers may be reimbursed for water and sewer lines of all sizes. Including more specific

information about the costs that are eligible for reimbursement may also be helpful. The Town

should remove the reference to a specific tap fee and include a general reference, instead, to its

water and sewer fee schedule. If the Town develops written construction standards for water and

sewer lines, the policy should also refer to such standards.

The policy does not require that property for which Clyde water and/or sewer line extensions have

been requested be within the Clyde town limits. It may be worthwhile for the Town to study the

costs and benefits of extending water and/or sewer only to areas inside the town limits.

Clyde Water and Sewer System Design and Construction Standards

Other than the few specifications stated in Clyde’s Water and Sewer Extension Policy (see above)

and some general provisions in its subdivision and zoning ordinances (see below), the Town does

not have a written set of minimum design and construction standards for extending, improving,

and/or connecting to the Town’s water and sewer systems. However, the Water and Sewer

Extension Policy requires engineered plans and approval by both NC DENR and the Town of Clyde.

Clyde Subdivision Ordinance Requirements

The Subdivision Regulations of the Town of Clyde, North Carolina (“Subdivision Ordinance”) contains

some requirements regarding approval of water and sewer system plans and installation as they

relate to the approval of preliminary and final subdivision plats. As indicated below, there are some

minor internal issues or inconsistencies in the Subdivision Ordinance regarding the approvals that

are required. The Subdivision Ordinance does not contain or direct applicants to specific design and

construction specifications for public water and sewer systems, probably due, at least in part, to the

Town’s planning jurisdiction being served by more than one water and sewer service provider.

Clyde’s Subdivision Ordinance requires that subdivisions be approved by the Town prior to water

and/or sewer systems being extended or connected to them. For new systems or expansions to




existing systems that serve two or more connections, approval must be in accordance with state

statutes. One section of the Subdivision Ordinance states that plans for public water and sewer as

well as documentation of approval of such plans by the appropriate utility must be submitted with

preliminary plats. Another section requires, at the time of preliminary plat submittal, written

assurance from the developer that plans for new or expansion of existing water and/or sewer

systems have been approved by the appropriate state and/or local agency.

The Subdivision Ordinance requires that subdivisions be connected to Clyde’s water and sewer

systems where feasible. It also states that water and sewer systems may be owned and operated by

public or private entities. To obtain final plat approval, developers must install water and sewer

systems that serve more than one connection (or provide a financial guarantee of such installation)

in accordance with the required specifications of the utility provider and submit to the Town of

Clyde written approval of the same. Developers who install water and/or sewer systems prior to

final plat approval must submit written approval of such installation by the appropriate state and/or

local agencies. Those who choose to financially guarantee water and/or sewer system installation in

order to obtain final plat approval must submit written approval of plans for the systems from the

appropriate state and/or local agencies.

Clyde Zoning Ordinance Requirements

There are a few references to the provision of water and sewer services in the Zoning Ordinance of

the Town of Clyde, North Carolina ("Zoning Ordinance”). For conditional use permits, including

those for planned unit developments, the Zoning Ordinance requires that applicants provide

documentation of approval of plans for proposed water and sewer systems by the appropriate state

and local agencies. The Zoning Ordinance does not provide or direct conditional use permit

applicants to any specific standards for designing or constructing such systems except in the case of

manufactured home parks. The Ordinance states that manufactured home parks must be served by

a public water system that meets the plumbing installation requirements for manufactured homes

and parks in the North Carolina Plumbing Code. It also says that if a manufactured home park is

served by a public sewer system, the system must also meet the plumbing standards for

manufactured homes and parks in the State Plumbing Code.

Water and Sewer System Capacities for Future Development

Because the Town has approval authority for development proposals in areas where it does not

have full or direct control of water and sewer service, those who plan to develop property could find

themselves in situations in which Clyde has approved a project, yet the water or sewer system has

insufficient capacity for the project. Similar problems could arise for development that will depend

on other water and sewage disposal systems such as individual wells, small community water

systems, septic tanks, and package treatment plants. The Town may want to consider adding

language to its land development regulations to have developers address water and sewer system

capacity prior to obtaining subdivision, zoning, site plan, and similar approvals from the Town.


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Other Public Facilities and Services

Clyde has an array of public buildings, facilities and services available to the community. The Town

owns and/or manages some, while others are provided by Haywood County and other public

entities. They, along with those provided by churches, non-profit organizations, and others, help the

Town manage its daily operations and contribute to the quality of life in the Clyde area. Changes in

growth and development trends, the age of the population, and other factors can affect the need

for and the quality of public facilities and services.

As illustrated on Map 5, Community Facilities, the Study Area contains a variety of public buildings

and community facilities owned and operated by the Town of Clyde as well as other governmental

and non-governmental agencies.

Town of Clyde Facilities and Properties

Existing Facilities

The Town of Clyde currently owns and operates the buildings and facilities in the Study Area

described below. Facilities associated with water and sewer systems are addressed elsewhere. The

Town uses its CIP to schedule capital expenditures associated with its facilities.

Town Hall. The Clyde Town Hall, located on a 0.53 acre parcel at the corner of Carolina

Boulevard and Main Street, houses the Town of Clyde’s Administrative Offices and Police

Department. Town boards and committees hold meetings in the building. Meeting spaces

are also available for public use.

Maintenance Department. The Town of Clyde Maintenance Department operates from a

building on 0.2 acre on Mulberry Street, between Carolina Boulevard and Broad Street. It

uses the property to store materials, equipment, and vehicles.

Clyde Park. Clyde Park is located on almost 1 acre of rolling, partially wooded land on

Spencer Street, adjacent to the Skyland Camp for Girls. It has a large shelter with picnic

tables, uncovered picnic tables, grills, restrooms, and a parking area.

Lynn’s Park. Located on 0.35 acres at the corner of Main and Broad Streets in downtown

Clyde, Lynn’s Park offers a shelter with picnic tables, a playground, restrooms, and a parking

area (accessible from an easement off Broad Street).

Former Wastewater Treatment Plant (WWTP) Property. The property consists of 1.6 acres

located on Hyder Mountain Road, near the US 74 Connector’s bridge over the Pigeon River.

The Town closed the WWTP in 2000 and uses the property to store equipment and

materials.




Broad Street Commercial Building. The 0.29 acre parcel on the southeast corner of Broad

Street and Charles Street contains a 2-story building that the Town currently leases to a

church.

Future Projects

Some of the public facilities projects that the Town of Clyde may undertake in the next decade

include the following:

Future Park. The Town of Clyde has plans to develop a new park near the large bend in the

Pigeon River at the town limits. It is part of a recommended flood protection project that

will establish a debris relief area between the river and Thickety Road.

Community/Senior Center. The Clyde Board of Aldermen has included a Senior Citizen

Center project in the Town’s CIP. The FY 2010-11 through 2014-15 CIP shows the project

being proposed for funding in FY 2013-14. However, the Board may need to delay the

programming date depending on its budget and other factors.

The Town also has acquired some properties near the Pigeon River through the federal and state

Hazard Mitigation Acquisition (buyout) programs following the 2004 floods. The parcels have

restrictions on their use (as described in the Environment and Natural Resources Element). The

Town has not yet developed plans for the future use of the buyout properties. See below for

additional information about buyout parcels owned by Haywood County.

Clyde Facilities Use and Special Event Policies and Procedures

The Town of Clyde does not have written policies covering the public use of its facilities such as the

Town Hall, parks, streets, buyout properties, etc. The Town accepts reservations for the covered

shed areas at its parks but does not charge a fee for such usage. At its annual retreat in 2010, the

Board of Aldermen discussed the need for a policy or guidelines on the use of Town facilities.

Procedures for reserving facilities, building access, and room set up and clean up, for example, are

just a few of the items that such a policy might cover.

The Board also talked during its 2010 retreat about establishing requirements for groups and

individuals that want to hold special events in Clyde, particularly in the downtown area. Liability and

insurance, security, parking, closing roads, permits, and others issues might be addressed in a

special events policy.

Schools

The Study Area has a variety of public and private educational facilities, as described below.

Haywood County Schools

The Haywood County Schools system operates 3 schools in the Study Area:


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Clyde Elementary School. Located on approximately 20.3 acres on Old Clyde Road, Clyde

Elementary School serves approximately 500 students in kindergarten through 5th grade that

are mainly from Clyde and the surrounding area.15 The school had 90 employees in March

of 2012. The property contains a multi-purpose athletic field and walking trail. Its

gymnasium is used by youth basketball leagues and, when needed, serves as an emergency

shelter. The school was near or at capacity when it opened in April of 2000 and a new wing

has since been added.

Central Haywood High School. Central Haywood High School occupies the former Clyde

High School on Broad Street in Clyde. It is an alternative high school with approximately 20

employees that served 104 students from throughout Haywood County during the 2009-

2010 academic year.16 The school property contains 12.2 acres divided by the Pigeon River

and Hyder Mountain Road. The buildings and grounds are at great risk of flooding as much

of the property is located in the floodway and the rest is within the 100-year floodplain. The

school has sustained flood damage in the past. The school campus includes the main

classroom building and the Haywood County Board of Education Building on the south side

of the river. The portion north of the river and Hyder Mountain Road contains a

gymnasium, a football stadium, a multi-purpose athletic field, and several other small

buildings.

Haywood Early College. Haywood Early College (HEC) opened in 2006 on the campus of

Haywood Community College. HEC provides students who are traditionally

underrepresented in colleges and universities with the opportunity to complete both a high

school diploma and an Associate degree in 5 years. The school had 137 students enrolled in

2011.17

Haywood Community College

Almost all of the approximately 110-acre Haywood Community College (HCC) campus is contained

within the Study Area. The campus adjoins the southwestern boundary of the Clyde ETJ and is

bounded on the north by US Highway 19/23 and on the west by Jones Cove Road.

Part of the North Carolina Community College System, HCC offers Certificates, Diplomas and

Associate in Applied Science degrees in a range of programs of study including Agriculture and

Natural Resources, Business, Commercial and Artistic Production, Construction, Engineering, Health

Sciences, among others. It also offers an Associate in General Education degree and college transfer

programs with Associate in the Arts, Fine Arts, and Science degrees. In addition to educational

facilities, HCC has a childcare center, an auditorium, an arboretum, a walking trail, a picnic area, a

softball field, and an outdoor volleyball court available for public use.

In 2010-11, HCC had 3,493 students enrolled in curriculum programs and 5,400 students in

continuing education and adult education programs. HCC has had a significant increase in student

enrollment in recent years that strained available instructional space. It developed a 15-year




Campus Master Plan in 2008 to address facility improvements and expansion needs and provide for

the preservation of the natural setting and other significant features of the HCC property. The

Campus Master Plan proposes to add 8 new buildings (to the existing 22) and expand 3. Haywood

County provides HCC with funds for maintenance and for building construction and renovations.

Proceeds from a 1/4-cent sales tax approved in 2008 are also being used to fund construction

projects recommended in the Campus Master Plan.

Haywood Christian Academy

Haywood Christian Academy (HCA) is a private school that opened in Clyde in 2007. HCA offers pre-

kindergarten (pre-K) and kindergarten through 12th grade classes from two facilities in Clyde. It

holds pre-K through 6th grade classes at New Covenant Church on Lee Road. Middle and high school

students attend classes at the HCA campus on Old Clyde Road. In 2011, HCA had 111 enrolled

students and more than 20 employees. HCA uses a field at Central Haywood High School for soccer

games.

Other Public Facilities and Properties

Some of the other public facilities and properties in the Study Area include:

Clyde Post Office. The Clyde Post Office occupies 1.5 acres on Carolina Boulevard within the

Clyde town limits.

Clyde Volunteer Fire Department. The Clyde Volunteer Fire Department (VFD) was

established in 1925. The VFD’s station is situated on 0.69 acres on Carolina Boulevard inside

the Clyde town limits. Its service area includes properties both inside and outside of the

Town of Clyde.

Haywood Public Transit Facility. Mountain Projects, Inc., is building a new facility for

Haywood Public Transit (HPT) on 3.7 acres on Jones Cove Road, adjacent to HCC in the Clyde

ETJ. It will house the HPT office and a parking area for the HPT vehicles.

National Guard Armory. A National Guard Amory is located off Jones Cove Road adjacent to

HCC in Clyde’s ETJ. It serves the North Carolina Army National Guard’s 211th Military Police

Company.

North Carolina Forest Service Office. The office of the Haywood County Ranger of the North

Carolina Forest Service is located on Ed Green Road in the Clyde ETJ.

North Carolina Highway Patrol Office. The office of Troop G, District V (Haywood and

Jackson Counties), of the North Carolina Highway Patrol is located on Lee Road in Clyde’s

ETJ.

Shook Museum at the Shook-Smathers House. A 3.62-acre parcel on Morgan Street, just

within the Clyde town limits, is the site of the Shook-Smathers House. The house is listed on

the National Register of Historic Places. The Shook Museum occupies the house and the


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property also contains the museum’s visitor center and gift shop. The previous owner of the

Shook-Smathers House donated the property to the Haywood County Historical and

Genealogical Society in December of 2011. The Quality of Life and Community Character

Element contains additional information about the history of the Shook-Smathers House.

Flood Buyout Properties

As noted above and elsewhere in the Land Use Plan, there are 42 flood-prone parcels in the Study

Area that Haywood County acquired through the federal and state buyout programs following the

2004 floods. Haywood County has since transferred some of the parcels to the Town of Clyde. The

Haywood County Recreation and Parks Department oversees the management of the buyout

parcels, which are subject to significant use and building restrictions. Haywood County has not yet

developed specific plans for the buyout properties. The wide distribution of the parcels throughout

the Study Area creates some challenges for trying to link them. The variation in buyout parcel sizes

will also affect their viability for certain uses. The County has leased some of the properties to

adjacent property owners for use as gardens.

Government Services

Numerous government and other community services are available to people in the Clyde area. The

information below focuses on some of those provided by the Town of Clyde and other government

entities that are the most directly related to the elements addressed in this Land Use Plan. Services

related to providing water and sewer, road maintenance, and several others are covered elsewhere

in the Land Use Plan.

Public Safety and Emergency Services

Law Enforcement

The Clyde Police Department serves the area within the town limits of Clyde. In addition to standard

law enforcement services, the Police Department offers a service for elderly and disabled citizens

that wish to receive a daily check in call.

The Haywood County Sheriff’s Office is the primary law enforcement agency in the Clyde ETJ. There

is a county-wide mutual aid agreement between the various county and municipal law enforcement

agencies. As a result, the Clyde Police Department frequently responds to calls in the ETJ.

HCC has its own Security Department that provides 24-hour, 7-day a week, public safety and security

services on the school’s campus. According to its website, the HCC Security Officers work closely

with local law enforcement agencies to enforce local, state, and federal laws on campus. They are

trained to respond to accidents and fire, medical, weather-related, and other campus emergencies

and are in communication with county emergency agencies.18

Fire Services




The Clyde Volunteer Fire Department (VFD) is part of the Central Haywood Fire District. At one

time, it was an agency within the Town of Clyde government. The VFD receives funding from

Haywood County through a fire district tax. It serves both the Town of Clyde and its ETJ. The VFD

has an emergency warning siren that it uses to notify the community if an evacuation is necessary

due to impending floods and other emergency events. VFD personnel are trained in water rescue.

The VFD also issues burning permits, performs child safety seat inspections, and conducts other

services.

The Haywood County Fire Marshal’s Office performs fire code inspections for businesses,

institutional uses, multi-family residential uses, and hazardous facilities within the Study Area. The

Office also assists the Clyde VFD with fire investigations.

Emergency Medical Services

Haywood County Emergency Medical Services (EMS) has 6 advanced life support paramedic level

ambulances, one of which is stationed at the Clyde Fire Department. EMS paramedics respond to all

emergency medical calls and other emergencies. According to the EMS web page, a comprehensive

“move-up and standby plan” is used to relocate ambulances to other areas of Haywood County to

respond to medical emergencies as quickly as possible.

The Haywood Rescue Squad, a paramedic level service comprised of volunteers, provides back-up

support to the Haywood County EMS. It provides a variety of emergency response and rescue

services and also operates a county-wide, non-emergency, medical transportation service.

Emergency Management

Haywood County Emergency Management coordinates all types of disaster planning, preparation,

response, and recovery for the entire county. The Town of Clyde is one of the many local

governments, agencies, etc., that are involved in disaster management and hazard mitigation in

Haywood County.

911 Communications and Property Addressing

Haywood County’s 911 Communications Center provides 24-hour emergency dispatch services for

Clyde and the rest of the Study Area. The County is also responsible for providing permanent

physical addresses for all properties in the Study Area to aid in emergency dispatch and response

efforts.

Solid Waste Management

The Town of Clyde contracts with a private solid waste service to provide weekly residential trash

and recyclables collection services within the town limits. The Town charges residential property

owners a garbage collection fee whether they use the solid waste services or not. Clyde ETJ

property owners and tenants hire private haulers. Area residents may also bring trash to the White


56 |



Oak Landfill in Waynesville and recyclables to the County’s Materials Recovery Facility (MRF) west of

the Clyde ETJ.

Haywood County will close its solid waste transfer station, which is located just outside of the Study

Area (near the MRF), at the end of FY 2011-12. The closing will impact the Town of Clyde because

its solid waste hauler will have to transport trash to the White Oak Landfill, which will add to the

company’s transportation costs. The Town will be planning for the changes in the County’s solid

waste operations when its contract with its current hauler expires in June of 2013.

The Town of Clyde also picks up junk and brush from residences and businesses within the town

limits. The Town will pick up one dump truck load of junk and/or brush per customer per year for

free, but imposes a fee if it has to haul any additional loads in the same year.

Public Library

There is not a branch of the Haywood County Public Library located in the Study Area. Therefore,

residents use the main library in Waynesville and a branch in Canton. The Town of Clyde is not

aware of whether the County has considered having a branch in Clyde.

Other Town of Clyde Services

In addition to operating public water and wastewater collection systems, performing road

maintenance, and providing police protection, the Town of Clyde provides streetlights, it maintains

its parks and other property, and it administers the Town Code of Ordinances and several additional

ordinances affecting land development including zoning, subdivision, and stormwater management

regulations. The Town also issues business privilege licenses within the town limits, maintains a

Town website, and publishes a Town newsletter. Haywood County administers flood damage

prevention and erosion and sedimentation regulations for Clyde and also manages building

inspections for the Town.




Goals, Recommendations, and Strategies

1. Goal: Develop and maintain an efficient, multi-modal transportation system that serves the needs of residents, the traveling public and businesses.

1.1. Recommendation: Improve US 19/23 (Carolina Boulevard) through Clyde in a manner

that complements plans for revitalizing the downtown area.

Strategies:

a. Work through the French Broad River Metropolitan Planning Organization to add a

project to its Comprehensive Transportation Plan/Long Range Transportation Plan

and the North Carolina Statewide Transportation Improvement Program, to

convert US 19/23 (Carolina Boulevard) through Clyde to a boulevard-style road.

b. Work with the North Carolina Department of Transportation to control the

number of new driveway entrances on US 19/23 (Carolina Boulevard) by using

access management strategies such as frontage roads.

c. Seek and find additional funding opportunities for ongoing street improvement

projects contained within the Carolina Boulevard Streetscape Improvement Plan.

1.2. Recommendation: Improve connectivity between points of interest and destinations

within and near Clyde such as downtown, community facilities, schools, Haywood

Community College, churches, parks, medical facilities, businesses, etc.

Strategies:

a. Use sidewalks, walking trails, and bicycle routes to link facilities used by the public.

b. Encourage developers to provide for connections to be made between new,

existing, and proposed projects.

c. Investigate options for providing a new road to connect (across the railroad tracks)

Broad Street and Carolina Boulevard to serve the area between Mulberry Street and

the eastern ETJ boundary. Such a road, if located near Clyde Elementary School,

could provide an additional means of access for Clyde Elementary School, for

example.

d. Identify transportation facilities needing safety improvements and make

recommendations for funding.


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1.3. Recommendation: Develop plans to provide pedestrian and bicycle facilities in Clyde.

Strategies:

a. Develop pedestrian and bicycle plans to help identify and assess existing facilities

and needs, recommend improvements to existing facilities, propose new facilities,

and suggest ways to link such facilities to each other and to other destinations.

b. Seek funding assistance to prepare pedestrian and bicycle plans from the North

Carolina Department of Transportation Bicycle and Pedestrian Planning Grant

Initiative, a matching grant, cost reimbursement program that can help

communities pay for certain specified expenses associated with such plans,

including the services of consultants.

c. Involve BicycleHaywoodNC in planning for bicycle facilities in and around Clyde.

BicycleHaywoodNC is an advocacy and advisory group that partners with local

governments to works ensure safety, education, community awareness, and

legislation related to bicycling.

d. Look for other opportunities for implementing bicycle and pedestrian plans, such as

through the Safe Routes to School program.

1.4. Recommendation: Provide and promote options for alternate transportation modes in

Clyde.

Strategies:

a. Develop a greenway along the Pigeon River.

b. Link downtown sidewalks with other existing and future pedestrian facilities.

c. Require developers to build “complete streets” that accommodate vehicles,

pedestrians, bicyclists, etc.

d. Promote Haywood County Transit as a transportation option available to residents.

e. Increase awareness of the park-and-ride lot located at exit 33 (Newfound Road) on

Interstate 40 in Haywood County.

f. Install bicycle racks and encourage businesses, churches, schools, and other public

facilities to do the same.

g. Build awareness in the community about the benefits of multi-modal

transportation systems.




2. Goal: Continue to provide public water and sewer services in an efficient and cost-effective manner that will meet the current, future, and emergency needs of Clyde.

2.1. Recommendation: Plan for the future of the Town’s water and sewer systems.

Strategies:

a. Prepare and/or update comprehensive water and sewer system master plans.

b. Include water and sewer line replacement projects in the Town’s Capital

Improvements Plan.

c. Consider establishing water and sewer system development charges to help

recover the costs of upgrading system capacities to address additional demand.

d. Continually monitor the availability of outside funding resources for water and

sewer projects.

2.2. Recommendation: Ensure the availability of an adequate public water supply to serve

Clyde.

Strategies:

a. Renew the 2011 water contract with the Town of Canton before it expires in 2021.

b. Formalize the agreement with the Junaluska Sanitary District regarding the provision

of water during emergencies.

2.3. Recommendation: Ensure the availability of an adequate public sewage disposal system

to serve Clyde.

Strategies:

a. Continue to seek cost-effective options and/or interlocal agreements with other

providers for public sewage disposal.

2.4. Recommendation: Prepare for the impacts of drought conditions on water supplies.

Strategies:

a. Publicize Clyde’s Water Shortage Response Plan.

b. Develop a long-term drought management / water conservation plan for Clyde.

c. Inform the public about the importance of water conservation and how property

owners can assist the Town in meeting its water conservation goals.

d. Explore the legal authority, options available, etc., for providing incentives for water

conservation, such as changing the water and sewer rate structures so those who

conserve water pay less.


60 |



2.5. Recommendation: Institute and/or update Town policies, procedures, and standards

regarding public water and sewer systems.

Strategies:

a. Update the Town of Clyde’s water and sewer line extension policy to require that

properties for which water and/or sewer line extensions have been requested be

located within the Clyde corporate limits.

b. Require those requesting water and/or sewer line extensions or service to provide

a written commitment from the system operator/service provider to ensure that

adequate system capacity is available to provide the service.

c. Provide and/or update design and construction standards for water and sewer

lines, including those in the water and sewer line extension policy, and ensure that

such standards are consistent throughout Town ordinances, policies, etc.

3. Goal: To provide high quality, accessible, well-maintained public facilities and services in an efficient and economical manner.

3.1. Recommendation: Formalize processes and procedures regarding the use of Town-

owned land, buildings, and other facilities by the public.

Strategies:

a. Develop a Town facility use policy.

b. Develop a special event policy, particularly for downtown.

3.2. Recommendation: Develop a consistent set of policies and standards regarding the

construction and maintenance of public improvements such as streets, sidewalks,

walking trails, bicycle paths, etc.

Strategies:

a. Develop a standards and specifications manual for public improvements.

b. Ensure that standards for public improvements are consistent throughout Town

ordinances, policies, etc.

3.3. Recommendation: Develop a plan to address future uses of flood buyout properties.

Strategies:

a. Develop and maintain an inventory of the flood buyout properties in the Clyde area

which includes information about current uses on the properties.




b. Study how the flood buyout properties owned by Clyde can be integrated into the

Town’s future plans for downtown, economic development, public facilities, flood

control, etc.

c. Encourage Haywood County to work with the Town of Clyde on plans for future uses

of County-owned flood buyout properties located in the Clyde area.


62 | Element Four: Environment and Natural Resources

Element Four: Environment and Natural Resources

Introduction

Physical geography plays a major role in shaping a community’s land use pattern. Land, water, air,

ecosystems, environmental processes, and other natural features underlie, support and impact the

social, economic, cultural, and other development activities in and around the Clyde Land Use Plan

Study Area.

Water Resources

As an essential resource for human, animal, and plant life, agriculture, business operations,

recreation, transportation, and more, the quality and availability of water are vital to the existence

and health of communities. Land use can have a direct impact on water resources and vice versa.

Watersheds and River Basins

All land is part of a watershed, which is the area which drains (both above and below ground) to a

body of water. Watersheds from smaller rivers, streams and lakes are interconnected and make up

the larger watersheds of major rivers known as river basins.

The Pigeon River sub-basin is part of the French Broad River basin, one of 17 major basins in North

Carolina. Within the sub-basin lies the Headwaters Pigeon River watershed, a 168 square-mile

drainage area in the southeastern portion of Haywood County which contains the Town of Clyde and

its ETJ.19

The Pigeon River is a significant natural feature in the Study Area. It flows west from Canton, bisects

the Town of Clyde, turns to the northwest in Clyde’s ETJ, and eventually joins the French Broad River

in eastern Tennessee. The length of the Pigeon River in the Clyde town limits is 1.1 miles and its

length within the Study Area is 2.2 miles.

Water Quality

Surface Water Classifications

The North Carolina Division of Water Quality (DWQ) has classified all surface freshwaters (rivers,

lakes, etc.) in order to protect their best uses based on their quality (for drinking, swimming, and/or

fishing, for example).20 All bear a primary state classification and some have one or more

supplemental classifications. Some of the classifications affect how surrounding land is used, such

as by requiring stream buffers and limiting development density and/or impervious surfaces. For


Element Four: Environment and Natural Resources |63

more information on the DWQ classifications, go to:

http://portal.ncdenr.org/web/wq/ps/csu/classifications.

The only DWQ primary stream classification within the Study Area is “C,” the minimum classification

applied to freshwaters to protect them for secondary recreation (boating, wading, and other

activities that involve occasional, incidental human body contact with water, fishing, aquatic life,

and wildlife). Local governments are not required to adopt land use regulations to protect Class C

streams.

As directed by North Carolina’s Water Supply Watershed Protection Act, enacted in 1989, the State’s

Environmental Management Commission adopted minimum standards to protect surface waters

used as drinking water sources and classified water supply watersheds across the state based on the

standards. Local governments with land use jurisdiction within water supply watersheds must adopt

and implement water supply watershed protection ordinances, maps, and management plans.

There are no State-designated water supply watershed areas within the Town of Clyde or the

Town’s ETJ; therefore the Town is not required to adopt water supply watershed protection

regulations.21

Groundwater

Groundwater is water that seeps underground into aquifers (areas between sand, clay, and/or rock

where water can pool) which feeds springs and can be accessed via drilling for wells. Like surface

water, it can become polluted if the water that ends up in aquifers travels through contaminated

soil.

Within the area served by Clyde’s water system there are approximately 2 dwellings that use private

wells. The Clyde ETJ contains a number of homes and businesses that do not have access to either

the Clyde or the Junaluska Sanitary District water systems and are, therefore, reliant on private wells

for water.

Water Quality Issues

As noted above, the quality of the water needed to support various uses and functions varies.

Water quality is affected by a variety of factors; however degradation by pollutants is a primary

concern. Water pollution is often classified based on whether it originates from “point” sources or

“nonpoint” sources.

Point Source Pollution

Point source pollution is discharge that enters a water body at a specific, identifiable location such

as through a pipe or a ditch. Most point source pollution comes from effluent from municipal or

industrial wastewater treatment plants. It can also come from package treatment plants (smaller

wastewater treatment systems that may serve uses such as residential developments, businesses

and schools, for example) as well as stormwater collection systems. Such discharges can deplete

the oxygen level of water bodies that is needed to sustain aquatic life. Point source pollution is

regulated by both the federal and state government.22

http://portal.ncdenr.org/web/wq/ps/csu/classifications



Clyde is located downstream of Evergreen Packaging, (formerly known as Blue Ridge Paper

Products, Inc., and, previously, Champion International Paper), a paper mill in Canton which

discharges water used in its manufacturing processes into the Pigeon River. In reference to the

mill’s impact on the water quality of the Pigeon River, the French Broad River Basinwide Water

Quality Plan notes:

Historically, this discharger was a major polluter but over time has greatly improved

performance. The current permit, issued on May 26, 2010, contains variances for both

color and temperature. The limits for both temperature and color were tightened. The

permit also requires future reduction to the color limit, as well as, increased monitoring

for turbidity, hardness, and dioxins. This permit is being challenged in court by Cocke

County, Tennessee and several environmental groups.23

The DWQ’s use support rating for segments of the Pigeon River from Canton through Clyde and its

ETJ is “impaired for biological integrity,”24 one of a variety of indicators used to assess water quality.

Biological monitoring involves analyzing the health, species, diversity, and habitat of living organisms

in water bodies.25 The State has a benthic macroivertebrate (or “benthos”) ambient monitoring site

on the Pigeon River in Clyde. The monitoring site is approximately five and one-half miles

downstream from where the mill in Canton discharges its wastewater.26

The North Carolina Wildlife Commission’s 2005 North Carolina Wildlife Action Plan notes that

although discharges from the Canton mill during the 20th century negatively affected various

priority aquatic species, “Improvements in waste water treatment that began in the early 1990’s

have improved habitat conditions and prospects for recovery of many native species appear to be

good.”27

Nonpoint Source Pollution

Nonpoint source pollution is the discharge of contaminants that are not released from a specific

point. It often results from stormwater that travels across land, picks up pollutants, and eventually

deposits them into water bodies. The pollutants can include eroded soils from construction sites

and agricultural lands, grease, oil, and other toxic substances from impervious surfaces (such as

streets, parking lots, and rooftops), pesticides and fertilizers from yards and farmland, human and

animal waste, and chemicals from the air. Such pollutants can impact water bodies and the

organisms that rely on them in various ways. For example, excess nutrients in the form of chemical

fertilizers and/or human or animal waste can accelerate algae growth which uses oxygen that would

otherwise be available to aquatic life. Sedimentation of streams can block sunlight needed by

aquatic plants and deplete oxygen needed by fish and other animals living in streams. Due to its

diffuse nature, nonpoint sources of pollution can be more difficult to identify and to regulate.28

Nonpoint source pollution, particularly sedimentation from development and agriculture, has been

a significant source of habitat degradation and other water quality concerns in the French Broad

River basin, including portions of the Pigeon River sub-basin.29 According to the Haywood



Waterways Association’s Watershed Action Plan for the Pigeon River, sediment from nonpoint

sources is the primary pollutant affecting the Pigeon River watershed.30

In its recommendations for the Pigeon River sub-basin, the French Broad River Basinwide Water

Quality Plan notes that buffers can help protect water quality.31 A riparian buffer is a vegetated area

that adjoins water bodies. Riparian buffers naturally help reduce the impacts of nonpoint source

pollution on streams by filtering pollutants from stormwater runoff. They can also help reduce the

velocity of stormwater, stabilize streambanks, and provide habitats that support aquatic life.

Water Quality Management and Regulations

Wastewater Discharge Permitting

The Federal Water Pollution Control Act (the Clean Water Act) prohibits the discharge of point

source pollutants into surface waters without a permit. The United States Environmental Protection

Agency (EPA) oversees the National Pollutant Discharge Elimination System (NPDES) wastewater

permitting program that was established to control such discharges. In North Carolina, the DWQ

administers the NPDES Wastewater Permitting and Compliance Program on behalf of the EPA.

Industrial, municipal and other facilities that discharge directly to surface waters must obtain NPDES

wastewater permits. NPDES permits are not required for individual homes that are connected to

municipal sewer systems, have septic tanks or do not otherwise have surface water discharges.

According to the DWQ, NPDES permits are categorized as general (for some specified statewide

discharge activities including non-contact cooling, fish farm packaging and sand dredging) or

individual (for activities not covered by general permits, such as wastewater treatment plants).

Individual permits are further classified as major or minor. Major permits are issued for discharges

from wastewater treatments systems that have a design flow greater than 1.0 million gallons per

day (MGD) or that have a pretreatment program. The Study Area contains no individual major,

individual or minor or general NPDES-permitted wastewater discharge sites.

Erosion and Sedimentation Control

The Town of Clyde does not have its own erosion and sedimentation control program or ordinance,

therefore the NC DENR, Division of Land Resources, Land Quality Section, is responsible for

administering the State’s program within the town limits. Anyone conducting an activity that

disturbs one acre or more of land (some exemptions apply) must file an erosion and sedimentation

control plan with the North Carolina Sedimentation Control Commission.

A local government may operate its own erosion and sediment control program if it adopts a local

erosion and sediment control ordinance that complies with State standards and if the State’s

Sedimentation Control Commission delegates such authority. Because the Town of Clyde has not

established a local program, land within the town limits is subject to the State’s program.

Haywood County administers its own local erosion and sedimentation control program. The

County’s Erosion and Sediment Control Ordinance applies to land-disturbing activities on half an acre



or more. The Ordinance applies to lands outside of incorporated areas; therefore property in

Clyde’s ETJ is subject to it. According to Section 154.05(C) of the County Ordinance, the County may

administer it within incorporated areas of a municipality upon adoption of a resolution by the

municipality’s governing board and approval by the Haywood County Board of Commissioners.

The Town of Clyde’s Subdivision Ordinance requires that when subdivision plans propose a land

disturbing activity of one acre or more, the applicant must provide, at the time of preliminary plat

submittal, proof that an erosion and sedimentation control plan has been approved by the state

agency having jurisdiction. The Subdivision Ordinance applies in both the town limits and the ETJ.

However, subdivisions in the ETJ must meet the standards of the County’s Erosion and Sediment

Control Ordinance.

The Land Use Plan Committee discussed some of the advantages and disadvantages of local erosion

and sedimentation control programs. Although there was interest in having the Town of Clyde

consider establishing a local program, the costs associated with doing so were a concern,

particularly if they could not be covered fully by erosion and sedimentation control permit fees.

Stormwater Management

Stormwater runoff is excess water generated by rain or melting snow that is not absorbed into the

ground but rather flows over the ground and impervious surfaces to natural or engineered drainage

ways. Stormwater, along with the sediment, chemicals, and other pollutants it may convey, often

flows directly into water bodies and can be a source of non-point source pollution. Some

stormwater in more urban areas runs into engineered stormwater drainage systems (storm sewers)

and may or may not be treated before being released into surface waters.

In addition to its potential to impact water quality, stormwater runoff can have other detrimental

effects on communities, such as causing flooding problems when the amount of runoff exceeds the

capacity of drainage systems. Stormwater can carry debris that blocks drainage ways. The quantity

and velocity of stormwater runoff can cause soils to erode.

Stormwater Discharge Permitting

One of the components of the federal NPDES program is stormwater management. The DWQ is

responsible for implementing the NPDES Stormwater Program in North Carolina. The program

regulates stormwater discharges from certain municipal separate storm sewer systems (MS4s),

construction activities, and industrial activities to prevent pollution of surface waters.

The Town of Clyde is subject to Phase II of the NPDES Stormwater Program which requires that

construction activities disturbing one acre or more, small MS4s in urbanized areas, and designated

MS4s outside of urbanized areas obtain NPDES permits for stormwater discharges. Phase II also

requires that the Town of Clyde implement the following minimum control measures:

Public Education and Outreach

Public Involvement / Participation



Illicit Discharge Detection and Elimination

Construction Site Runoff Control

Post-construction Stormwater Management

Pollution Prevention / Good Housekeeping

The Town of Clyde is allowed to discharge stormwater from its MS4 in accordance with DWQ Permit

Number NCS000475, which is effective from November 11, 2011 through November 10, 2016.

Stormwater Permitting in Unincorporated Areas

The North Carolina General Assembly, through Session Law 2006-246 (adopted in 2007), expanded

the coverage of the NPDES Phase II Stormwater Program requirements for post-construction runoff

control beyond the corporate limits of cities and towns with MS4 permits. The DWQ now issues

stormwater permits for development in unincorporated areas that fall within urbanizing areas and

in “municipal spheres of influence” encompassing Phase II cities and towns. As a result, the Clyde

ETJ is subject to the same Phase II requirements as the Town of Clyde.

Stormwater Management Master Plan

The Town of Clyde was required to develop a stormwater management plan to comply with NPDES

Phase II requirements. McGill Associates completed Clyde’s Stormwater Management Master Plan

(Stormwater Master Plan or Master Plan) in 2008. The Master Plan addresses the development of a

stormwater ordinance, contains an inventory of stormwater outfalls and illicit discharges, provides

an analysis of culvert capacities, and includes a capital improvements plan.

Regarding stormwater management infrastructure, the Master Plan recommends both general and

more specific improvements. Recommended general stormwater system improvements included:

Using natural systems whenever possible to treat stormwater runoff but installing

underground water quality treatment structures in areas with large discharges where

natural treatment systems will not fit.

Installing a modern stormwater collection and conveyance system to move untreated

runoff to water quality treatment devices.

Planning stormwater management improvements to coincide with and/or complement

other infrastructure improvements.

Requiring 30-foot riparian buffers along perennial streams in Clyde and its ETJ to protect

water quality and slow floodwaters and stormwater runoff.

Replacing specified culverts with more hydraulically efficient, environmentally friendly,

and lower maintenance bottomless culverts.

Conducting more detailed watershed modeling and master planning to aid in flood

management, flood preparedness and response, ecosystem restoration, and more.



Incorporating water quality structures and best management practices (BMPs) for

managing stormwater along a proposed Pigeon River greenway corridor.

The Stormwater Master Plan also recommended specific capital improvement projects involving

repairs to Clyde’s existing stormwater conveyance system in four target areas:

Stormwater runoff management for Pine Crest Way and Spencer Street adjacent to the

Spencer Street Park;

Stream stabilization and floodplain management for what the Plan refers to as the Clyde

Fire Station Branch (an unnamed tributary);

Stream stabilization and floodplain management for Conner Mill Branch; and

Nuisance flooding remediation on Glance Street Branch near the Glance Street and Levi

Street intersection.

The costs of the recommended capital improvement projects, as estimated in the Master Plan, are

shown in Table 28, below. The Master Plan examined four options for managing the Glance Street

Branch flooding issues; therefore the range within which the estimates for the options fell is shown.

Table 28: Preliminary Cost Estimates for Recommended Capital Improvement Projects in the Clyde Stormwater Management Master Plan

Project Estimated Cost

(2008)

Spencer Street Improvements $74,000

Fire Station Branch Improvements $312,000

Conner Mill Branch Improvements $469,000

Glance Street Branch Improvements $60,000 - $215,000

Source: Town of Clyde Stormwater Master Plan, November 2008

Since the completion of the Master Plan, the Town has obtained grant funds to pay for several of

the projects. The Spencer Street improvements were done for $72,500. The Town also completed a

project for the Fire Station Branch. Due to a change in its scope, the actual project cost was

$261,000.

Stormwater Ordinance

As part of its efforts to implement the minimum control measures required by the NPDES Phase II

Stormwater Program, the Town of Clyde adopted a Stormwater Ordinance in 2007. The Ordinance,

which applies to property within the Clyde town limits and ETJ, affects development and

redevelopment activities including, but not limited to, applications for site plans, subdivisions, and

grading. Activities that are exempt from the ordinance include those that cumulatively disturb less

than one acre and are not part of a larger common plan of development or sale; those that are

exempt from the Federal Clean Water Act Section 404 permit requirements; those issued a

Certificate of Building Code Compliance; those having valid building permits; and those included on



approved preliminary subdivision plans. Stormwater permit applicants have to meet design

standards that minimize the water quality impacts of proposed development.

For guidance on meeting Clyde’s design standards for stormwater management, the Stormwater

Ordinance directs users to the NC DENR, DWQ’s Stormwater Best Management Practices Design

Manual which can be found at: http://portal.ncdenr.org/web/wq/ws/su/bmp-manual.

McGill Associates assists the Town with administering the Ordinance by reviewing stormwater

permit applications. As of October 2011, 3 permits had been issued by the Town (one of which had

since been voided) and 1 permit application was undergoing review. There are active permits for

the Dollar General store on Carolina Boulevard and a transit facility near Haywood Community

College. The pending permit is for a residential project being developed on Carolina Boulevard. The

voided permit was for an earlier design of that project.

Other Stormwater Management Efforts and Resources

Public Education

Clyde has taken steps to make the community more aware of the impacts of stormwater runoff and

what can be done to help mitigate them. The Town has devoted a page on its website to

stormwater information. It is also part of the WNC Stormwater Partnership, a group comprised of

Phase II communities that work through the Land of Sky Regional Council, with assistance from the

North Carolina Cooperative Extension Service, on coordinating stormwater education and

management efforts in the region.

Elimination of Illicit Discharges

To comply with NPDES Phase II requirements, the Town of Clyde must identify and eliminate illicit

stormwater discharges to keep pollutants from entering waterways. Illicit discharges are those

comprised of anything other than stormwater (unless they are from a permitted industrial source).

The Stormwater Master Plan identified and mapped 10 potential illicit discharges within the Town of

Clyde as part of an inventory of stormwater discharge points (outfalls), which included storm sewer

pipes, culverts and swales that release stormwater runoff to water bodies. The potential illicit

discharges were comprised mainly of old pipes of various types and sizes that did not appear to be

stormwater outfalls and that had dry weather flows and/or other characteristics associated with

illicit discharges, such as color, odor, suds, oil, etc.32 The Town of Clyde performed smoke testing for

its stormwater system in 2010 and found that several of the identified illicit discharges were no

longer present.

Article 7 of the Clyde Stormwater Ordinance focuses on illicit discharges. It prohibits the discharge

of certain substances (unless an NPDES permit has been granted) to “…any stormwater conveyance,

the waters of the State or upon the land in manner and amount that the substance is likely to reach

a stormwater conveyance or the waters of the State.” It also prohibits illicit connections to the

Town’s stormwater conveyance system. The Stormwater Ordinance allows for penalties to be

assessed for violations.

http://portal.ncdenr.org/web/wq/ws/su/bmp-manual



Low Impact Development

Low Impact Development (LID) is a land development approach that relies on site planning and

design to preserve and protect natural resources and systems from negative impacts of stormwater

runoff. Using LID principles and techniques, development and redevelopment projects can be

designed with elements that function like natural hydrologic systems in the way they manage and

treat stormwater. Such elements often capture stormwater on a development site, filter it and

allow it to soak into the ground where it can recharge groundwater.

There are numerous LID site design techniques and BMPs. Some include minimizing impervious

surfaces, maintaining natural drainage ways and existing vegetation and using bioretention systems

(such as rain gardens and green roofs) that rely on plants and soils to remove pollutants from

stormwater. BMPs that might be used in LID projects are included in the NC DENR, DWQ’s

Stormwater Best Management Practices Design Manual, referenced previously. LID strategies work

well with conservation-based development practices.

There are several examples of alternative stormwater BMPs in Haywood County. Bethel Elementary

School has a bioretention demonstration project which uses rain gardens, constructed wetlands.

and other BMPs to capture and treat runoff from parking lots and buildings. HCC Natural Resources

Management LID program students have established LID demonstration sites on the campus.

There are a number of resources available for the Town of Clyde and others who are interested in

learning more about LID, including, but not limited to, the following:

Low Impact Development: A Guidebook for North Carolina. Published in 2009 by North

Carolina State University, the Guidebook provides technical and policy guidance on LID

to local governments and those involved in land development. It is available on the

Internet at:

http://www.ces.ncsu.edu/depts/agecon/WECO/lid/documents/NC_LID_Guidebook.pdf.

Haywood Waterways Association, Inc. The Haywood Waterways Association (HWA) is

knowledgeable about LID and its water quality benefits. The HWA helped develop a

successful grant application to the Clean Water Management Trust Fund for the Bethel

Elementary School Innovative Stormwater Controls Project and was involved in many

aspects of the project including education and outreach. For its Haywood County

Growth Readiness Roundtable project, the HWA engaged the services of facilitators

from the Watershed Education for Communities and Officials Program (see below).

Watershed Education for Communities and Officials (WECO) Program. North Carolina

Cooperative Extension, based in North Carolina State University’s Department of

Agricultural and Resource Economics, created the WECO program to help communities

develop their capacity and build partnerships to manage natural resource issues. It

provides training, facilitation, and other assistance to communities interested in topics

such as LID. Go to http://www.ces.ncsu.edu/depts/agecon/WECO/ for more

information.

http://www.ces.ncsu.edu/depts/agecon/WECO/lid/documents/NC_LID_Guidebook.pdf

http://www.ces.ncsu.edu/depts/agecon/WECO/



Community Conservation Assistance Program (CCAP). The Haywood Soil and Water

Conservation District offers the CCAP to provide funds to homeowners, businesses,

schools, churches, and other civic and community groups that want to install

stormwater BMPs. The CCAP may reimburse up to 75% of the costs of qualifying

projects.

Water Quality Protection Plans and Programs

There are a variety of water quality plans and programs in place and/or being implemented within

the French Broad River Basin and the Pigeon River sub-basin. A sampling of some of the programs is

provided below.

The French Broad River Basinwide Water Quality Plan

The 2011 French Broad River Basinwide Water Quality Plan discusses the Pigeon River’s water

quality issues but has no specific recommendations for the Clyde area of the Pigeon River sub-basin.

General recommendations for the French Broad River Basin as a whole include, but are not limited

to:

Increasing stormwater management and education;

Encouraging LID;

Increasing inspections of sites that have the potential for erosion;

Increasing education about erosion control;

Improving maintenance of wastewater collection systems;

Preserving agricultural land through easements;

Supporting additional funding for programs that assist farmers that may lose income or

the development value of land due to water quality protection efforts;

Implementing additional agricultural BMPs to control erosion and to prevent surface

water contamination from animal waste and pesticides; and

Prioritizing lands to be purchased for conservation according to their value for habitat

and water quality protection.33

Watershed Action Plan, Pigeon River Watershed

The HWA published the Watershed Action Plan, Options for Improving Our Water Quality, Pigeon

River Watershed, Haywood County, North Carolina, in 2002. The Plan describes options for

addressing surface water quality issues within the Pigeon River watershed. It focuses mainly on

stream sedimentation and its sources. According to the Plan, the leading causes of sedimentation in

the Upper Pigeon River Watershed, which includes the Clyde area, are: eroding stream banks (45%);

roads (30%); eroding pastures (12%); and other sources (13%).



The Plan recommends 17 strategies that could be carried out under existing authorities to improve

water quality. The strategies range from continuing existing and expanding public awareness

programs and encouraging development of greenways along riparian corridors to encouraging

donation of conservation easements and providing incentives for watershed protection. The Plan

includes an addendum with specific action plans to implement each of the strategies.34

The Pigeon River Fund

The Pigeon River Fund, established as part of the issuance of a Federal Energy Regulatory

Commission (FERC) license to Carolina Power and Light (now Progress Energy) in 1994, provides

grants for projects in the Pigeon River and French Broad River basins to improve surface water

quality, fish and wildlife habitat and fishery management; to expand public use and access to

waterways; and to inform the public about how to protect water resources.35

Of the more than $3 million in grants awarded through 2010 to fund projects in Haywood,

Buncombe, and Madison County, approximately $1.8 million has been directed to Haywood County

for public education efforts, stream restoration projects, and measures to reduce erosion and

sedimentation, such as through BMPs, farmland preservation, and the acquisition of conservation

easements.36

The Clean Water Management Trust Fund

The Clean Water Management Trust Fund (CWMTF), established by the North Carolina General

Assembly in 1996, provides grants to local governments, state agencies, and non-profits engaged in

conservation activities for projects that improve impaired waters or protect clean waters. Projects

funded by the CWMTF include land acquisitions, capital improvements to wastewater and

stormwater infrastructure, and stream restorations.37

In 2008, the Town of Clyde entered into an agreement with Haywood County and the Town of

Canton to apply for a grant from the CWMTF for a riparian buffer project along the Pigeon River.

Information about the grant and project’s status is provided in the Floodplain Management section

of this Element.

Wetlands

As defined by the Clean Water Act (for regulatory purposes), wetlands are “… areas that are

inundated or saturated by surface or groundwater at a frequency and duration sufficient to support,

and that under normal circumstances do support, a prevalence of vegetation typically adapted for

life in saturated soil conditions. Wetlands generally include swamps, marshes, bogs and similar

areas."

Wetlands have characteristics that naturally help protect water quality. They store water, filter it,

and release it slowly. This can help reduce the velocity and intensity of stormwater runoff that

might otherwise lead to erosion and sedimentation of streams. They also help filter pollutants from

stormwater. They absorb flood waters, which can reduce flood heights. Water draining through



wetlands recharges groundwater. Wetlands also provide habitat for wildlife, fish, and plants.

Artificial wetlands can be designed and constructed to function like natural wetlands and may be

used to manage and treat stormwater.

The United States Fish and Wildlife Service monitors the status of wetlands in terms of their extent

and type. The agency created the National Wetlands Inventory, which includes wetlands mapping,

as an information source. It identifies several water bodies as wetlands in the Land Use Plan Study

Area. The Pigeon River is shown as a rivervine wetland and several small ponds are classified as

freshwater pond wetlands.

Section 404 of the Clean Water Act addresses discharges of dredged or fill material into waters of

the United States, including wetlands. A permit is required in order to deposit dredged or fill

material in water bodies and wetlands unless otherwise exempted from Section 404. Activities with

potentially significant adverse impacts require an individual permit from the United States Army

Corps of Engineers. Discharge activities expected to have minimal adverse impacts on water bodies

require a general permit. The review process for a general permit is minimal and many activities can

proceed as long as they meet the general permit conditions. Applicants for individual and general

permits have to demonstrate that they will minimize or avoid impacts to wetlands.

Drought and Water Quality

A drought is prolonged period of dryness in which there is less rainfall than would normally be

expected. There are different types of drought, such as hydrological (deficiencies in surface and/or

ground water levels), agricultural (insufficient soil moisture to grow certain crops at particular

times), and meteorological (lower than normal precipitation for an extended period of time).38

Droughts may have a variety of environmental, economic, and other effects on communities. For

example, a prolonged lack of rainfall may limit public drinking water supplies (from surface water

and groundwater sources) and fire suppression capabilities; reduce the productivity of farms; cause

a decline in water quality, which can affect aquatic ecosystems and other wildlife; impact fishing and

other recreational uses of water bodies; reduce electrical power generation and other industrial

processes; increase the risk of wildfires; and many more.

Federal and state agencies monitor and respond to drought conditions. The North Carolina Drought

Management Advisory Council (NC DMAC), which operates under the NC DENR, assesses local

drought conditions and issues drought advisories for each county. According to N.C.G.S. § 143-355.1

(e), such drought advisories may specify areas of the state where drought conditions may be

expected, areas that are currently experiencing drought conditions, and the level of severity of

drought conditions. The NC DMAC also provides information on North Carolina’s drought conditions

to the National Drought Mitigation Center for the U.S. Drought Monitor, to various state agencies

and commissions, and to the public.39



The NC DMAC maintains a website, http://www.ncdrought.org/, where it publishes the U.S. Drought

Monitor map that shows the areas that are experiencing abnormally dry or drought conditions and

their levels of intensity. The map and associated data are updated weekly.

Article 38 of the North Carolina General Statutes (Water Resources) and Section .0600 of the North

Carolina Administrative Code (Water Use During Droughts and Water Supply Emergencies) require

local governments with public water systems, such as Clyde, to have a plan and procedures in place

to conserve water in the event that drought or other conditions lead to water shortages. The NC

DENR, Division of Water Resources (DWR), is responsible for reviewing and approving such Water

Shortage Response Plans (WSRPs). The plans must provide for tiered levels of water conservation

measures or other response actions, the restrictiveness of which depend on the severity of the

water shortage. They must describe how the water provider documents changes in water supply

and demand, measures the impact of water conservation measures, etc. Water providers must also

include plans to inform the public about preparing for drought conditions and the need for water

conservation. The State requires that WSRPs be updated at least every five years. The DWR

maintains a website for WSRPs that includes general information, instructions for uploading plans,

and copies of plans, including Clyde’s most recent one, at

http://www.ncwater.org/Water_Supply_Planning/Water_Shortage_Response_Plans/.

Droughts can impact water quality as well as quantity. Reduced streamflows can increase water

temperature, turbidity, and pollutant concentrations, for example. The level of dissolved oxygen

(DO), which is needed by fish and other aquatic life, is naturally lower in warmer months but can

decrease even further during drought conditions.40

The 2011 French Broad River Basinwide Water Quality Plan references a specific impact of the 2007-

2008 drought on water quality near the Study Area. Approximately 8,000 fish died in the Pigeon

River below Canton in September of 2007. The Plan states, “The fish kill event was attributed to low

flow, low DO and high water temperatures brought on by ongoing drought conditions.”41

In 2010, many North Carolina counties, including Haywood, suffered from a lack of rainfall. The NC

DMAC classified Haywood County as having Moderate Drought conditions in July of 2010. Such a

designation requires water providers to implement local water use restrictions, make efforts to

inform and educate the public about water conservation, and take other precautions. In response,

the Town of Clyde, in conjunction with its water supplier, the Town of Canton, began implementing

Stage 1 Voluntary Water Conservation Procedures in August of 2010 because of the potential for a

water shortage. Such procedures include encouraging water users to reduce water consumption

and improve water use efficiency, which the towns did through a public service announcement.

Information about state statutes regarding drought, conservation, water rates, etc., can be found in

the Infrastructure Element.

http://www.ncdrought.org/

http://www.ncwater.org/Water_Supply_Planning/Water_Shortage_Response_Plans/



Flood Prone Areas

Clyde’s location in a valley along the Pigeon River, the topography of the area, and the alterations

that have been made to its landscape make portions of the town and its ETJ quite vulnerable to

flooding. Most Clyde area residents are well-aware that flooding events can seriously impact public

safety, the local economy, government operations and budgets, the community’s social fabric, the

well-being of citizens, and much more. While flooding can pose many challenges, flood prone areas

are also important natural resources that have functions and characteristics that benefit

communities. The Town of Clyde plays an important role in finding an appropriate balance between

mitigating flood impacts and protecting floodplains as natural resources.

Flood Hazard Areas

The National Flood Insurance Program (NFIP) operated by the Federal Emergency Management

Agency (FEMA) makes federally-backed flood insurance coverage available in participating

communities. The NFIP is responsible for identifying and mapping flood hazard areas and publishes

Flood Insurance Rate Maps (FIRMs) to identify flood prone areas for flood insurance and floodplain

management purposes.

The NFIP defines a floodplain as, “Any land area susceptible to being inundated by floodwaters from

any source.”42 In Western North Carolina, floodplains are generally low lying areas located along

watercourses. One of their primary functions is to carry and store water when river or stream

channels overflow. Over the course of history, human settlements often located in or near

floodplains due to their fertile soils, level topography, proximity to water sources and transportation

routes, etc. Because floodplains tend to be environmentally sensitive areas (such as wetlands,

wildlife habitats, etc.), land use conflicts may occur.

A 100-year floodplain has a 1 percent or greater annual chance of flooding. The NFIP and State of

North Carolina use the 100-year flood (or base flood) as the minimum level of flooding that

participating communities must address through floodplain management regulations. The NFIP

refers to the 100-year floodplain as the Special Flood Hazard Area (SFHA). SFHAs are delineated on

FIRMs and are divided into two regulatory areas, the floodway and the flood fringe. The NFIP notes

that SFHAs may not reflect all of the areas where flooding problems occur in a community.

A floodway is defined by the NFIP as, “The channel of a river or other watercourse and the adjacent

land areas that must be reserved in order to discharge the base flood without cumulatively

increasing the water surface elevation more than a designated height.”43 Floodways can be

especially dangerous during flood events because they tend to have deeper and faster-moving

waters compared to other floodplain areas. Obstructions in floodways, such as debris, structures or

fill material can affect the floodwater carrying capacity of rivers and streams. Such encroachments

may increase flood levels and velocities as well as divert floodwaters to other areas.



The flood fringe refers to the portion of the 100-year floodplain that lies outside of the floodway.

Floodwaters in flood fringe areas tend to be shallower and of a lower velocity compared to the

floodway. A 500-year floodplain has a 0.2 percent annual chance of flooding. FIRMs depict 500-

year floodplains to show areas that have some risk of flooding during more extreme flood events.

The NFIP does not require that communities regulate 500-year floodplains.

Figure 5 illustrates the components of a typical floodplain found along rivers, creeks and streams.

Figure 5: Riverine Floodplain Illustration

Source(s): North Carolina Floodplain Management: 2008 Quick Guide, NC Department of Crime Control and Public Safety, Division of Emergency Management, Floodplain Management Branch

Map 6, Floodplain Areas, shows the areas along the Pigeon River and its tributaries that are within

designated floodways, 100-year floodplains (or flood fringe because they exclude the floodway) and

500-year floodplains. The floodways, 100-year floodplains, and 500-year floodplains are together

referred to herein as flood hazard areas.

Approximately 13 percent (409.3 acres) of the 3,117 acres in the Study Area are within a flood

hazard area. Flood hazard areas comprise approximately 42 percent (202.1 acres) of the 478 acres

of land within the Town of Clyde and almost 8 percent (207.2 acres) of the 2,639 acres in the ETJ.

As shown in Table 29, almost half of the land in flood hazard areas in the Study Area is located in the

Clyde town limits while slightly more than half falls within the ETJ. A majority (91.1 acres or 59.3

percent) of the land in the Study Area that is classified as floodway is found within the ETJ. The

Clyde town limits contain a higher percentage of 100-year floodplain lands (112.6 acres or 59

percent) compared to the ETJ (78.1 acres or 41 percent). The reverse is true for the 500-year

floodplain.



Table 29: Flood Hazard Areas in the Clyde Land Use Plan Study Area

Area

Acres in Floodway Acres in 100-Year

Floodplain (Excluding Floodway)

Acres in 500-Year Floodplain

Acres in All Flood Hazard Areas

Clyde Town Limits 62.5 112.6 27.0 202.1

Clyde ETJ 91.1 78.1 38.0 207.2

Study Area (Town Limits + ETJ)

153.6 190.7 65.0 409.3

Source(s): Digital Flood Insurance Rate Maps for Haywood County, effective April 2012.

Floodplain Management

Floodplain management is a comprehensive, continuous program that integrates efforts to minimize

the impacts of flooding (on public safety, property, etc.) with those that protect floodplains as

natural resources. These dual objectives can be achieved through a variety of measures and tools.

The ways in which land is used in flood prone areas can support or interfere with the ability of

floodplains to store flood waters and perform other necessary functions. Therefore, land use

management is an important component of a sound floodplain management program. Other

components typically include mitigation projects, emergency preparedness and flood warning

systems, flood hazard prevention regulations, and public education. An effective floodplain

management program involves the cooperative efforts of a number of partners including local,

state, and federal government agencies, the private sector, and individuals.

In addition to helping minimize the impacts of flooding events, floodplain management activities can

have other community benefits such as preserving open space and natural areas, making land

available for small-scale agricultural activities, providing opportunities for recreation, and creating

community gathering spaces, for example.

Flood Damage Prevention

The Town of Clyde’s floodplain management program has regulatory and non-regulatory

components and is integrated with federal, state, and county programs. Some of the more

significant elements are described below.

National Flood Insurance Program

The NFIP was established to reduce losses of life and property from floods and to address the costs

of flood disaster relief. In communities that choose to participate in the NFIP, owners and renters of

property in floodplains are eligible for federally-backed flood insurance coverage. Participating

communities must adopt and enforce regulations for floodplain development that meet or exceed

NFIP standards. Such regulations are intended to minimize the risk of damages and losses from

floods. Flood insurance premiums for new buildings are based on flood risk, which is determined by

the elevation of the lowest floor of the structure relative to the base flood (the 100-year flood)

elevation. 44



The NFIP encourages communities to enact regulations that exceed minimum federal and state

standards. It also requires communities to consider additional flood protection measures that are

found in the Code of Federal Regulations (CFR) (see 44 CFR § 60.22, Planning Considerations for

Floodprone Areas).”45

Local governments in North Carolina are required to participate in the NFIP in order to be eligible for

state disaster assistance funds for flood damage.46 The Town of Clyde has participated since 1983.

North Carolina Floodplain Management Regulations

In 2000, the North Carolina General Assembly passed the Flood Act of 2000 (Session Law 2000-150).

The Act substantially revised the State’s floodplain regulations found in N.C.G.S. Article 21, Part 6, §

143-215. 51 - 61. The regulations, as revised, are intended to:

Minimize the extent of floods by preventing obstructions that inhibit water flow and

increase flood height and damage.

Prevent and minimize loss of life, injuries, property damage, and other losses in flood

hazard areas.

Promote the public health, safety, and welfare of citizens of North Carolina in flood

hazard areas.47

The statutes allow local governments to adopt flood hazard prevention ordinances (FHPOs) that

regulate and require permits for uses in 100-year floodplains. Some land uses are permitted in

floodplains without FHPO permits including, but not limited to, most forms of agriculture, forestry,

outdoor recreation, parking and loading areas, and open space. Prohibited uses in the 100-year

floodplain include new solid waste disposal facilities, hazardous waste management facilities,

salvage yards, and chemical storage facilities unless a variance is granted under N.C.G.S. §

143-215.54A(b) for uses that serve a critical community need, for which there are no other feasible

locations to site such uses, and which meet certain design criteria.

The State regulations contain minimum requirements for FHPOs that supplement the NFIP

standards. FHPOs must prohibit the uses mentioned above and require that chemical or fuel

storage tanks/structures incidental to allowed uses be elevated or watertight and resistant to other

flooding effects. The statutes also allow local governments to acquire existing structures in 100-year

floodplains through purchase, exchange, or condemnation, if necessary to prevent damage from

flooding.

The North Carolina Division of Emergency Management (NC DEM) provides communities with

floodplain management assistance through its Floodplain Management Branch and its Floodplain

Mapping Program. The Floodplain Management Branch provides model flood damage prevention

ordinances that meet the minimum NFIP and state standards. The model ordinances as well as the

instructions for communities intending to use them encourage communities to evaluate and adopt

more restrictive standards.



The North Carolina Floodplain Mapping Program

In 2000, the State of North Carolina, in partnership with the FEMA, began the North Carolina

Floodplain Mapping Program (NC FMP) to re-map floodplains and update FIRMs for all counties.

The new maps are provided in digital form. The NC FMP provided a preliminary Flood Insurance

Study (FIS) and preliminary digital FIRMs to Haywood County in early 2008. The Haywood County

FIRMs include the Town of Clyde and its ETJ, as well as the other municipalities in the county. After

a public review process, the NC FMP revised the preliminary FIS and FIRMs. The new FIRMs have an

effective date of April 3, 2012, however FEMA directed Haywood County to begin using the base

flood elevations and floodway data from the preliminary FIS and FIRMs as of October 3, 2011.48 The

preliminary FIRMs were used for floodplain mapping and analysis for this Land Use Plan.

Haywood County Flood Hazard Development Ordinance

For many years the Town of Clyde had its own regulations for development in floodplains. In 2005,

the Town adopted Haywood County’s Flood Damage Prevention Ordinance (or FDPO). Per a joint

resolution adopted in 2005, the County administered the FDPO within both the Clyde town limits

and its ETJ.

The County revised its FDPO to coincide with the new FIRMs and to comply with the North Carolina

Flood Act of 2000. The County adopted the revised ordinance, now called the Flood Hazard

Development Ordinance (FHDO), the new FIRMs, and the 2008 FIS on February 6, 2012. The FHDO

took effect on February 7, 2012. The Town of Clyde adopted the FHDO, as well, with an effective

date of May 1, 2012. On March 19, 2012, the Haywood County Board of Commissioners approved a

joint resolution with the Town of Clyde regarding the County’s administration of the FHDO in Clyde.

Haywood County’s FHDO is based on the minimum FEMA standards required for communities to

participate in the NFIP as well as applicable state standards. The ordinance prohibits

encroachments in floodways unless a registered professional engineer certifies that they will not

raise flood levels during base flood events. Manufactured homes are allowed in the floodway if they

are located within pre-existing manufactured home parks or subdivisions and if they meet anchoring

and elevation standards. In the flood fringe, new structures or those being substantially improved

must be elevated, except that non-residential buildings may be flood-proofed instead. In some

cases, the ordinance exceeds federal and/or state requirements, including a 1-foot increase in the

required base floor elevation and more stringent standards for recreational vehicles.49

Town of Clyde Hazard Mitigation Plan

Floodplain management is one component of hazard mitigation planning, which is intended to help

communities reduce their vulnerability to and minimize the impacts of all types of natural hazards

(floods, wildfires, winter storms, earthquakes, landslides, tornadoes, etc.) that can have disastrous

consequences. Like those for floodplain management, hazard mitigation measures may be

structural (such as building codes and practices) or non-structural (such as land use planning and

regulations, emergency preparedness planning, public education, and more).



The state and federal governments require that local governments adopt hazard mitigation plans in

order to qualify for hazard mitigation grant funding. The North Carolina General Assembly added

the requirement to the emergency management statutes in 2001.50

The Haywood County Emergency Management Department is the lead local agency in coordinating

the efforts of county and municipal officials, local law enforcement and emergency responders,

state and federal agencies, human services providers, and others to plan for, respond to, and

recover from emergencies such as natural disasters. In addition to developing and regularly revising

disaster management plans for Haywood County, the Emergency Management Department has

been involved in the development of municipal and county hazard mitigation plans.

Clyde adopted its first Hazard Mitigation Plan in 2005. The Plan identified flooding as the Town’s

main concern. In addition to recommending that the Town update and continue to enforce existing

floodplain management policies, the Plan contained specific flood mitigation policy

recommendations, some of which are summarized below:

Coordinate with the Army Corps of Engineers, the Town of Canton, and what is now

Evergreen Packaging, to mitigate problems created by existing private dams used to prevent

flooding on commercial/industrial sites in Canton.

Initiate measures to prevent flood losses by managing new development through floodplain

regulation, stormwater and erosion control regulations, and design elements.

Consider revisiting existing policies regarding the allowable percentage of work that can be

done to existing structures before they must be brought into compliance with flood

regulations.

Produce additional information and educational materials for the public regarding floodplain

development requirements, the risks associated with floodplain development, and steps for

avoiding and addressing flooding problems.

Continue projects that encourage removing structures from floodplains and leaving the

areas as open space.

Work with Haywood County and the other municipalities to develop a comprehensive flood

forecasting, tracking, and warning system to notify residents and emergency management

personnel of flooding problems.

Continue to work with local businesses in floodplains to prevent building expansions that

could negatively affect water flow.

Clyde is currently involved in a project to develop a new, multi-county, hazard mitigation plan.



Other Floodplain Management Efforts and Tools

Public Information

As recommended by its 2005 Hazard Mitigation Plan, the Town of Clyde has made an information

packet on flooding available at the Town Hall.

Emergency Warning Systems

The Clyde Volunteer Fire Department has a siren that serves as an emergency warning device. It is

used to alert the community of emergencies that require evacuation. During severe weather

events, the Fire Department will sound the siren if the Pigeon River is close to overflowing its banks.

Haywood County has an emergency notification system which allows it to automatically call

residences, places of business, etc., and play a recorded message.

Flooding History

The 1983 FIS for Clyde and the 2008 FIS for Haywood County recount the most significant flooding

events that are known to have occurred on the Pigeon River in Clyde since 1876. These floods are

summarized in Table 30. Prior to the completion of the CLUP, the NC DCP was unable to determine

why the 2004 floods in Clyde, discussed below, were not mentioned as significant events in the 2008

FIS. They are, therefore, not included in Table 30.

Table 30: Largest Recorded Floods on the Pigeon River in Clyde

Rank Date Estimated Discharge

(cfs)

Elevation (feet)

Estimated Recurrence

Interval (years)

Impacts

1 08/30/1940 31,600 2,593.0 120 Steel truss bridge over Pigeon River washed out. Damage to infrastructure. 20 homes flooded. Water depth on US 19/23 exceeded 4 feet.

2 06/15/1876 25,700 2,590.5 60 No information available.

3 08/13/1940 25,100 2,590.2 50 Low-lying residential area flooded. Water depth on US 19/23 up to 4 feet.

4 06/16/1949 19,500 2,587.7 25 Water on US 19/23 blocked traffic. 33 basements flooded. 16 cabins at Thomson’s Tourist Court flooded. Water depth in Pines Grocery reached 16 inches.

Source(s): The 1983 Clyde FIood Insurance Study and the 2008 Preliminary Haywood County Flood Insurance Study.



Mulberry Street flooding.

Source: Town of Clyde, September 2004.

Pigeon River flooding at Charles Street bridge.


Justice Mobile Home Park flooding.


The Floods of 2004

Remnants of Hurricanes Frances and Ivan passed over western North Carolina in September of 2004,

bringing heavy rains that caused serious flooding problems and landslides. The Town of Clyde was

one of the communities most severely impacted, enduring two major back-to-back flood events.

The 2004 flooding in the Clyde area caused significant

damage to and loss of homes, businesses, public facilities,

roads and other infrastructure, farms and cropland, the

natural environment, and personal property and

equipment. In Clyde, as in other affected areas, the floods

disrupted and changed people’s lives, the economy,

government

operations and

budgets, and more.

The community’s

response to the floods has also shown its resilience.

Official information on how the 2004 floods compared with

the previous 4 largest floods in Clyde was not available when

the CLUP was prepared. However, those that experienced

and/or responded to the floods have indicated that the 2004

floods were certainly among the largest to impact the area.

2004 Flood Damage

While there is not one definitive source of information on the number of homes and other buildings

damaged during the 2004 flood events, figures provided by various government agencies and other

reports provide some insight into the extent of the floods’ impacts.

The Haywood County Planning Department reports that it issued 144 flood permits in the Study

Area for 2004 hurricane damage repairs (136 from

Hurricane Ivan and 8 from Hurricane Francis). The

Planning Department does not know how many

structures were torn down or left unrepaired.

The Mountaineer, a Haywood County newspaper,

reported on September 12, 2005, that Clyde had lost 117

houses and 16 manufactured homes in the 2004 floods.51

A 2006 report by Carter-Burgess states, “At least 60

residences experienced severe flooding; many received

damages beyond repair.”52



Broad Street following the 2004 floods.


2004 Flood Response and Recovery Efforts

The Town of Clyde, Haywood County, emergency services personnel, area churches, human services

agencies, citizens, state and federal agencies, legislators, and many others responded to Clyde’s

immediate needs during and after the 2004 floods and

aided the community in its long-term recovery efforts.

Some of the funding sources, programs and planning

efforts that helped Clyde recover from the 2004 floods

and better prepare itself for future flood events are

described below.

The Hurricane Recovery Act of 2005

In response to the devastating effects of Hurricanes

Frances and Ivan in western North Carolina as well as

the damage caused elsewhere by four other hurricanes

in the state in 2004, the North Carolina General Assembly enacted Session Law 2005-1 (Senate Bill

7), known as The Hurricane Recovery Act of 2005 (or Hurricane Recovery Act). The Hurricane

Recovery Act appropriated funding for a variety of disaster relief programs and activities in the

affected counties.

Section 7 of the Hurricane Recovery Act directed the NC DENR to study the causes of the flooding

that occurred in Clyde and several other communities in western North Carolina and to recommend

actions to prevent or mitigate the impacts of future floods. The Act provided funding to conduct

such studies and to implement their recommendations.53 In 2006, Carter-Burgess, in cooperation

with the NC DENR, completed the Flood Damage Reduction Planning Report, Town of Canton, Town

of Clyde Pigeon River Watershed (or the Carter-Burgess report).

The Carter-Burgess report recommended that an estimated $2.8 million in 2005 Hurricane Recovery

Act funds be provided to the Town of Clyde for 3 flood remediation and mitigation projects. The

recommended projects are outlined in Table 31.

Table 31: Town of Clyde Flood Remediation Actions Recommended by the 2006 Flood Damage Reduction Planning Report

Recommended Actions Estimated Funds

Required

1. Removal of an abandoned bridge that obstructed the floodway $350,000

2. Construction of off-channel flood storage in the floodway (Phase 1 – Feasibility Study; Phase 2 – Design and Construction; Phase 3 – Maintenance)

$2,000,000

3. Completion of a town-wide stormwater master plan and correction of existing stormwater problems

$450,000

Total Estimated Cost $2,800,000

Source(s): North Carolina Office of State Budget and Management and the 2006 Flood Damage Reduction Planning Report, Town of Canton, Town of Clyde Pigeon River Watershed by Carter-Burgess.



Since the 2004 floods, the Town of Clyde has been working to study and implement actions

recommended by the Carter-Burgess report, as follows:

Action 1 – Abandoned Bridge Removal

The removal of the abandoned bridge, which previously spanned the Pigeon River, connecting Main

Street and Spencer Street, occurred in 2009.

Abandoned bridge prior to removal.

Source: Town of Clyde, September 2004. Former abandoned bridge site.

Source: NC DCP, April 2009.

Action 2 – Off Channel Flood Storage

The Carter-Burgess report recommended off-channel flood storage to provide an area for flood

waters to flow and be temporarily stored to relieve downstream flooding problems.

HDR Engineering Inc. of the Carolinas (HDR) conducted a feasibility study for Clyde for an off channel

flood storage area. HDR’s 2009 Report of Recommendations, Town of Clyde Off Channel Floodwater

Storage (or the HDR Report) evaluated three alternative measures for reducing flood damage in

Clyde: (1) adding off channel flood storage to reduce peak discharges; (2) improving the hydraulics

of the river channel and floodplain to reduce water surface elevations; and (3) flood-proofing

existing structures.

HDR evaluated possible off channel flood storage sites, however the costs of constructing the

facilities were very high compared to the flood reduction benefits; therefore it did not recommend

this alternative. It did recommend that the Town implement two hydraulics improvement projects

at the large bend in the Pigeon River: (1) improving the south overbank area; and (2) providing a

debris relief area (a proposed Town park). Map 7, Flood Mitigation, shows the general locations of

both projects. Brief descriptions of the expected benefits of the projects are provided in the

sidebar.

Preliminary construction cost estimates for the two projects are provided in Table 32. The estimates

exclude property acquisition costs. The debris relief area estimate includes development of a park.



Table 32: Estimated Construction Costs for Recommended Flood Damage Reduction Projects (2009)

Recommended Improvements Cost Estimates

South Overbank Improvements $610,000

Debris Relief Area $1,600,000

Total $2,210,000

Source(s): 2009 HDR report.

The Town of Clyde has pursued both of the hydraulics

projects recommended by the HDR report. As of October

of 2011, the Town had purchased the subject properties

and was securing the necessary permits to begin

construction. Information about the related project to

relocate a portion of Thickety Road can be found in the

Public Facilities, Services, and Infrastructure Element.

Regarding flood-proofing, the third flood damage

reduction method it evaluated, HDR did not conduct

detailed assessments of each individual structure that is

subject to flooding. However, it provided estimates for

planning purposes of approximately $6 million to elevate

residential structures and $2 million to dry flood-proof

commercial structures.54

Action 3 - Stormwater Master Plan and Correction of Existing Stormwater Problems

The Carter-Burgess report identified several areas where

stormwater drainage was causing problems. The report

recommended some projects to correct such problems

including infrastructure improvements in the Town’s park

on Spencer Street, so that stormwater from heavy rains

would not damage adjacent private property, and stream

channel and box culvert improvements on property

beside the Clyde Fire Station, to relieve stormwater

backups and stabilize stream banks.

As noted previously, McGill and Associates completed

the Town of Clyde Stormwater Master Plan in November

of 2008. It recommended several capital improvement

projects to address stormwater issues, including

infrastructure improvements for the Spencer Street park

Recommended Hydraulics

Improvements for Clyde

(From HDR Engineering’s Report

of Recommendations, Town of

Clyde Off Channel Floodwater

Storage, 2009)

South Overbank Improvements

HDR’s analysis found that while improving the south overbank would not reduce flooding in an event greater than a 25-year flood, it would provide benefits to the Town of Clyde including lowering flood water elevations in the area adjacent to and upstream of the improvements, reducing flooding frequency of Broad Street, providing habitat and water quality benefits due to an expected increase in the frequency of overbank flooding, and providing open space for use by area residents.

Debris Relief Area

In flood events affecting Clyde, debris tends to accumulate at an upstream bend in the Pigeon River and builds to a point where it causes flooding on Broad Street. The debris relief area project proposed relocating Thickety Road and lowering some of the right overbank at the bend. The river channel’s hydraulics would be improved, thereby reducing flood levels upstream, whether there are debris blockages or not, during 25-year flood events. The project would provide habitat and water quality benefits through the expected increase in overbank flooding. This, in turn, should reduce erosion of the left channel bank. The Town could use the overbank area as a park. The relocation of Thickety Road would improve its safety.



Buyout lot being used for a garden.

Source: NC DCP, June 2010.

and the Clyde Fire Station areas. The status of such projects can be found in the Stormwater Master

Plan section of this Element.

Hazard Mitigation Acquisition Program

The NC DEM administers FEMA- and State-funded programs to acquire properties that are at-risk of

being impacted by natural hazards such as flooding (also known as “buyout” programs).

Participation in a buyout program is voluntary.

Following the 2004 floods, the NC DEM ran a buyout program in the Clyde area with funding from

the Hurricane Recovery Act. The State purchased 61 parcels through the program and transferred

them to Haywood County. The Haywood County Recreation and Parks Department oversees the

management of the buyout parcels. Of the 61 parcels, 42 are located in the Study Area, as shown

on Map 7, Flood Mitigation. Haywood County has since conveyed some of the properties in the

Study Area to the Town of Clyde.

Properties acquired through the buyout program are subject to restrictions. Land uses are limited

to those that are: compatible with open space, recreational or wetlands management purposes

(such as outdoor recreation parks); nature preserves; cultivation; grazing; camping (subject to

emergency evacuation notice requirements); temporary storage of wheeled vehicles that can be

easily moved (excluding mobile homes); unimproved, permeable parking lots, and buffer zones.

Structures are limited to public facilities that are open on all sides and that are associated with a

designated open space or recreational use, a public restroom, or some other structure that is

compatible with allowed land uses and complies with State-approved floodplain management

standards. The properties are no longer eligible for State or Federal disaster assistance. They may

only be conveyed, with State approval, to other public or non-profit entities established to enhance

or promote the allowable land uses.

Many of the buyout lots are currently leased by adjoining property owners for use as gardens.

Leases are $1 per year for non-commercial uses and $100 per acre per year for commercial uses. At

least one community garden is being planned for buyout

property. Other parcels may be used for nature education

and river access. The former Haywood Community

College property on Glance Street (now owned by

Haywood County) may eventually be a park.

Clean Water Management Trust Fund Grant

In 2008, the North Carolina Clean Water Management

Trust Fund (CWMTF) provided a grant of up to $1 million

to Haywood County and the Towns of Canton and Clyde

for a riparian buffer project along the Pigeon River. The

funds were to be used by the County to acquire property and/or conservation easements in the 3

jurisdictions.



According to the grant application, the funds would “augment coordinated acquisition efforts to: (a)

restore hurricane-damaged lands of the Pigeon River Floodplain; and (b) prevent future floodplain

development detrimental to the water quality of the Pigeon River within the French Broad River

Basin.”55 The original grant request was for almost $2 million and the total project cost estimate

exceeded $8.5 million.

At the time of the grant award, there were 4 properties within the Study Area in public ownership

and those entities were to convey permanent conservation easements to the State. The Town of

Clyde owns three of the parcels and Haywood County Schools owns the other. Clyde planned to use

CWMTF grant funds to purchase a conservation easement on another one of the project parcels and

assign an easement to the State. Haywood County was to convey conservation easements to the

State on some of the flood buyout properties it had acquired.

The riparian buffer project encountered some difficulties related to property and easement

acquisition. Some property owners were not interested in selling land or a conservation easement

at all while others thought the offered price was too low. A number did not respond to inquiries

about acquisition. The CWMTF extended the grant contract deadline by one year (to January 31,

2011), however the grantees continued to encounter problems with acquiring land and/or

easements.

Through the project, Haywood County, the Town of Canton, and the Town of Clyde were together

able secure fee simple ownership of 3 privately-owned parcels and conservation easements on 10

privately-owned parcels using the CWMTF grant. Nine of the 13 parcels are in the Clyde Land Use

Plan Study Area. Of the parcels in the Study Area, 3 are in fee simple ownership and 6 have

conservation easements. Such parcels are shown on Map 7, Flood Mitigation. All of the easements

on properties owned by the Town of Clyde and Haywood County have also been secured.



Steep Slopes and Mountain Ridges

Map 8, Slope, shows the variations in topography within and adjacent to the Study Area. The

elevations range from approximately 2,500 feet near the intersection of the Pigeon River and the

northwestern boundary of the Study Area to approximately 2,970 feet along the southeastern

boundary; a 470 foot difference.

Slope refers to the vertical change in the elevation of the land surface as determined over a given

horizontal distance. Slope may be described as an angle (in degrees, for example), as a ratio (also

known as rise over run) or as a percentage (rise over run multiplied by 100).

Slope Categories

The Slope Map divides the Study Area into 3 slope categories, 0 to 25 percent, 25 to 40 percent, and

40 to 100 percent. Table 33, shows the distribution of these slope categories within the Study Area.

The periphery of the Study Area contains more of the land with relatively steeper slopes. The

terrain in the Clyde area is much less rugged compared to that in the rest of Haywood County.

However, the steeper parts of the Study Area present some challenges for development.

Table 33: Distribution of Slope Categories within the Clyde Land Use Plan Study Area

Slope Category Percent of Acreage in the

Town of Clyde Percent of Acreage in the

Clyde ETJ Percent of Acreage in the

Entire Study Area

0 - 25% 80% 72.9% 74%

25 - 40% 16.5% 21.7% 20.9%

40 - 100% 3.5% 5.4% 5.1%

Source(s): NC DCP

Development on Slopes

Development (particularly residential) in western North Carolina had become, until recently, an

economic driver that benefitted the region in many ways. Such development also led to growing

concerns about the impacts of steep slope development. Slope development and land disturbances

as well as naturally occurring events and conditions on slopes can result in erosion, stormwater

issues, landslides, more rapid spread of wildfires, and other impacts that can affect public health

and safety, the environment, the economy and more. The Town of Clyde’s 2005 Hazard Mitigation

Plan ranks landslides as having a high likelihood of occurrence due to steep slopes, new

development, and past history.

The North Carolina Geological Survey (NCGS) maintains a slope movement/slope movement

deposits database which contains data mainly for Western North Carolina. According to NCGS

analyses comparing landslide frequency and slope, the frequency of slope failure tends to increase

for slopes exceeding 40 percent (22 degrees).56 As shown on the Slope Map, there are some areas



in both the Town of Clyde and its ETJ that have slopes exceeding 40 percent. These areas together

comprise approximately 5.1 percent of the Study Area (see Table 33).

The Land of Sky Regional Council’s Mountain Ridge and Steep Slope Protection Strategies report (see

below) recommends that geotechnical analyses be required for proposed developments on slopes

greater than 40 percent or in identified landslide hazard areas.57 The 40 percent slope threshold is a

general rule of thumb that some communities are using as they consider regulating slope

development.

Figure 6 is an image published in the Mountain Ridge and Steep Slope Protection Strategies report

that shows how development can be done in a manner that is sensitive to slope suitability.

Steep Slope and Mountain Ridge Protection Regulations

The North Carolina General

Assembly adopted regulations in

1983 to regulate the height of

buildings on designated protected

mountain ridges (see below).

However, there are currently no

state statutes that specifically

address development on steep

slopes. In the absence of such

regulations, some cities and

counties in western North

Carolina have adopted their own

steep slope regulations under

state statutes related to planning

and general police powers.

Mountain Ridge Protection Act

In 1983, the North Carolina General Assembly passed Article 14 of the North Carolina General

Statutes, known as the Mountain Ridge Protection Act. The Act gave local governments in the

mountains of western North Carolina the choice to either enact local ordinances to regulate the

height of tall buildings and structures (as defined by the Act) on designated protected ridges or to

enforce the state statute. According to the Act, protected mountain ridges are those with

elevations of 3,000 feet or more and that have elevations that are 500 feet or more above the

elevation of adjacent valley floors.

Haywood County chose to adopt a local ordinance to achieve the goals of the Mountain Ridge

Protection Act. Its Mountain Ridge Protection Ordinance applies in the unincorporated areas of the

Figure 6: Example of Best Management Practices for Building Placement on Slopes

Source(s): Design Workshop, Inc. (Asheville Office) and Mountain Ridge and Steep Slope Protection Strategies, Land of Sky Regional Council.



county, including municipal extraterritorial jurisdictions. There are no designated protected

mountain ridges within the Clyde Land Use Plan Study Area, therefore neither the Mountain Ridge

Protection Act nor the County’s related ordinance are applicable.

Haywood County Slope Ordinance

Haywood County adopted regulations for artificial slope construction and repair in 2007. Its Slope

Ordinance (Chapter 158 of the Haywood County Code) regulates land-disturbing activity that will (or

does) create or change a slope. The Slope Ordinance applies to private property in Haywood County

that is located outside of municipal and extraterritorial jurisdiction limits; therefore it does not apply

within the Study Area.

Slope Development Standards and the Town of Clyde

Given that there are currently no state regulations regarding slope development and that Haywood

County’s Slope Ordinance does not apply to the Town of Clyde or its ETJ, the Town has no slope

development standards at this time.

The Town’s Planning Board has discussed regulating development on steep slopes. Land Use Plan

Committee members identified cut banks next to roads as being of particular concern for the Clyde

area. Public safety is also a concern. If the Town is interested in managing slope development in

the future, it has the option of requesting that Haywood County administer its ordinance within the

town and the ETJ. The Town could also consider adding standards to its subdivision and/or zoning

ordinances.

Other Steep Slope and Mountain Ridge Protection Resources and Efforts

Some of the existing information sources and technical resources regarding slope development

impacts and their management that may be useful to the Town of Clyde are provided below. This

section also describes the status of programs and other efforts in the state and region that relate to

steep slope and mountain ridge protection.

Mountain Ridge and Steep Slope Protection Strategies Report

In 2008, the Land of Sky Regional Council (LOSRC) published a report titled, Mountain Ridge and

Steep Slope Protection Strategies (or MRSSPS report). The report resulted from work initiated by the

LOSRC in response to local government concerns about the issues and impacts of an increasing

amount of development occurring on steeper slopes and ridges. The LOSRC appointed a Mountain

Ridge and Steep Slope Protection Advisory Committee which learned about the issues related to

development on steep slopes and recommended strategies to promote safer and more sustainable

development. The report focuses on the issues of public safety, public health, water quality and

quantity, the loss of forestland, natural areas, and wildlife habitat, the role of land conservation, and

the economic impacts of both development and protection programs. The information contained in

the MRSSPS report is very useful for communities that are interested in learning about a range of

slope development issues and are looking for tools and resources for addressing them.



Landslide Hazard Mapping Program

The 2005 Hurricane Recovery Act included language that established and funded North Carolina’s

former Landslide Hazard Mapping Program (LHMP). The Hurricane Recovery Act designated

nineteen counties for such mapping, including Haywood County.

The landslide hazard maps, prepared by the North Carolina Geological Survey (NCGS)]]]], provide

information about the locations of landslide-prone areas. They are not regulatory in and of

themselves. Rather, they serve as guides for local government officials, emergency management

personnel, property owners, developers, and others who want or need to know what areas are at a

higher risk of landslides.

Following the expiration of Hurricane Recovery Act funding in 2009, the General Assembly

appropriated other funds to continue the LHMP. However, State budget constraints led to cuts in

funding for the NCGS in 2010. The General Assembly did not fund the LHMP for fiscal year 2011-12.

Between 2005 and the first half of 2011, the NCGS completed mapping for Macon, Watauga,

Buncombe, and Henderson Counties, and had begun work in Jackson County. The elimination of the

LHMP in 2011 meant that Haywood County would not receive NCGS landslide hazard mapping

services. However, the Haywood County Board of Commissioners and the Haywood Waterways

Association (HWA) began looking for alternate funding sources for the preparation of landslide

hazard maps. In November of 2011, the Pigeon River Fund awarded the HWA $80,000 to help fund

the first year of landslide hazard mapping for Haywood County. However, the Pigeon River Fund

grant was contingent on the HWA securing another grant. The HWA did not receive the second

grant but it is planning to raise the approximately $50,000 that is needed to maintain the Pigeon

River Fund grant and support the proposed landslide hazard mapping project.

Proposed State Legislation Regarding Slope Development

Mountain area legislators have proposed several bills in the past few years to establish minimum

standards for safe slope development however such bills have not yet received sufficient support for

passage by the North Carolina General Assembly.

Mountain Resources Commission

In 2009, the North Carolina General Assembly adopted Session Law 2009-485, Senate Bill 968,

known as the Mountain Resources Planning Act. The purpose of the Act is to “encourage quality

growth and development while preserving the natural resources, open spaces, and farmland of the

mountain region of Western North Carolina.”58 The Act established the Mountain Resources

Commission (MRC), a non-regulatory body whose work focuses, in part, on identifying mountain

resources issues and recommending policies and programs to legislative and administrative entities

at all levels of government to address their use, protection, and enhancement.59

In August of 2011, the MRC adopted recommendations for steep slope and mountain ridge

protection. The recommendations include: (1) asking the General Assembly to reinstate funding for

the Landslide Hazard Mapping Program and accelerate the number of counties to be mapped each



year subject to available funding; (2) encouraging those who develop or otherwise disturb land on

slopes greater than 40 percent or in identified landslide hazard areas to conduct geotechnical

analyses in order to avoid hazardous areas; (3) making digital landslide hazard map information

readily accessible and increasing public awareness of its availability; (4) developing a resource

manual for western North Carolina communities seeking guidance on how to manage development

on steep slopes and mountain ridges; and (5) developing and providing comprehensive, consistent,

affordable education programs and materials regarding landslide hazards, best management

practices, and other issues associated with development on steep slopes and ridge tops.60

Town of Clyde Hazard Mitigation Plan

Clyde’s 2005 Hazard Mitigation Plan contains specific mitigation policies for landslides and erosion,

including:

Requiring developers, through a recommended Soil Erosion and Sedimentation Control

Ordinance, to stabilize disturbed property, including hillsides, associated with development

projects.

Working with NCDOT to identify existing roads in areas with a history of landslides and

developing formal plans to realign them to avoid unnecessary soil erosion and stormwater

runoff that contribute to landslides.

With NCDOT, identifying existing roads with insufficient stormwater controls and upgrading

the existing stormwater system to avoid unnecessary runoff onto property.

Developing a comprehensive educational policy, including information brochures and other

forms of communication, to inform residents of the dangers of landslides in the area and

how they can reduce their risk of being impacted by them.

The Town of Clyde has made an information packet on landslides available at its Town Hall.




1. Goal: Protect water quality.

1.1. Recommendation: Minimize pollution of waterways from point and non-point sources.

Strategies:

a. Continue to have Haywood County enforce its Erosion and Sedimentation Control

Ordinance in Clyde’s town limits.

b. Continue to implement recommendations of the Clyde Stormwater Management

Master Plan.

c. Incorporate Low Impact Development concepts into land use regulations to

minimize the impacts of development on waterways.

d. Maintain natural areas for stream buffers, wildlife corridors, compatible

recreation activities, etc.

e. Encourage developers to set aside environmentally sensitive areas as open

space/natural areas in new projects. For example, provide incentives such as

density bonuses to developers that use conservation subdivision design.

f. Provide developers with information regarding environmentally sensitive

development concepts.

2. Goal: Manage development in flood hazard areas.

2.1. Recommendation: Minimize the impacts of flooding on people and property in the Clyde

area.1

Strategies:

a. Continue to have Haywood County administer the minimum flood damage

prevention regulations in the Clyde town limits through the Haywood County

Flood Hazard Development Ordinance.

1 In developing preliminary recommendations related to floodplain management, the NC DCP staff proposed that the Town

of Clyde consider some of the additional measures suggested by the NFIP and consider exceeding some of the minimum

state and federal flood damage prevention requirements. However, the Land Use Plan Committee indicated that because

the Town was now subject to the Haywood County Flood Hazard Development Ordinance, the County would probably not

want to administer additional requirements in Clyde. The NC DCP staff suggested that the Town could look at

incorporating additional requirements in other Town regulations, such as its Zoning Ordinance, however the Committee

decided not to include such a recommendation in the Clyde Land Use Plan.



b. Update the Town of Clyde’s 2005 Hazard Mitigation Plan in conjunction with a

multi-jurisdictional regional effort to be led by Haywood County.

c. Work with downtown property owners to encourage them to flood-proof

existing buildings.

d. Educate those who live and/or own or lease property in the 100-year floodplain

of the risks associated with living, building, operating a business, etc., in flood-

prone areas.

e. Encourage property owners to set-aside flood-prone areas as open space

through the Town’s land development regulations, incentives, etc.

f. Continue to implement the 2009 Report of Recommendations, Town of Clyde Off

Channel Floodwater Storage study.

3. Goal: Manage development on steep slopes.

3.1. Recommendation: Gain a better understanding of slope movement in the Clyde area and

the potential impacts of steep slope development.

Strategies:

a. Review the North Carolina Geological Survey’s landslide information website,

http://www.geology.enr.state.nc.us/Landslide_Info/Landslides_main.htm.

b. Review the Mountain Ridge and Steep Slope Protection Strategies report published

in 2008 by Land of Sky Regional Council.

ftp://landofskygis.org/MountainRidgeSteepSlope/LandofSky-MRSSPS-final-

report.pdf

c. Conduct an analysis of the topography and geology in the Clyde area and use as a

basis for policy decisions and additional studies.

3.2. Recommendation: Adopt regulations to manage development on steep slopes.

Strategies:

a. Monitor the status of proposed state legislation that could mandate local

government regulation of development on steep slopes in western North Carolina.

Create or modify local regulations, if needed.

b. Review regulations adopted by other communities, including Haywood County, for

applicability in Clyde.

c. Develop local standards for steep slope development or ask Haywood County to

administer its Slope Ordinance in the Clyde town limits.

http://www.geology.enr.state.nc.us/Landslide_Info/Landslides_main.htm

ftp://landofskygis.org/MountainRidgeSteepSlope/LandofSky-MRSSPS-final-report.pdf

ftp://landofskygis.org/MountainRidgeSteepSlope/LandofSky-MRSSPS-final-report.pdf


Element Five: Downtown Revitalization and

Economic Development |95

Element Five: Downtown Revitalization and Economic Development

Introduction

Although respondents to the Town of Clyde 2009 Community Survey (or Community Survey) did not

name business development or downtown revitalization as the most important factors in planning

for Clyde’s future, many found them to be very important (56 percent and 44 percent, respectively)

or somewhat important (38 percent and 45 percent, respectively). The written responses to the

Community Survey contained numerous comments on both topics. Participants in the visioning

exercises in 2009 pictured Clyde as having more small businesses and a healthy downtown in the

future.

Historically and currently, Clyde’s downtown and its economy have been closely linked. With a

better understanding of the markets that are and could be served by downtown and deliberate

planning, the Town, business owners, and others could build upon earlier revitalization work and

help the downtown contribute even more to the economy and the quality of life of area residents.

Of course, there is much more to Clyde’s economy than its downtown. A concerted effort to

establish an economic development program that includes the entire town and to help define

Clyde’s role in the regional economy could be beneficial.

Downtown Revitalization

Setting

The construction of the railroad line and the former depot in Clyde in the 1880s helped establish

what would become the town center. According to the Town’s website:

The town limits were a perfect circle with the center of town being the knot hole in

the depot door. Since the knot hole long ago disappeared with the depot, the center

of town is located near where the 50 mm anti-aircraft gun is located on the town

square.61

The nature of downtown Clyde has changed over the years, from being the center of livestock sales

and distribution for counties west of Asheville, for example, to becoming the home of small

businesses, government, educational and civic facilities, churches, and residential uses. However, it

continues to be the heart of the community.


96 | Element Five: Downtown Revitalization and

Economic Development

Main Street in Clyde.


For purposes of the Land Use Plan only, Clyde’s downtown has been defined as the area south of the

Pigeon River that is within approximately ¼-mile of the intersection of Main Street and the railroad

tracks. The ¼-mile standard is an average distance that is generally considered as walkable by most

pedestrians. The area contains approximately 52 acres.

Downtown Clyde has a variety of land uses including retail and wholesale businesses, personal

services, a restaurant, at least one bank, various offices, government facilities, civic organization

buildings, a park, churches, a school, a daycare center, and single-family and multi-family dwellings.

At least one building, the old Bank of Clyde, contains both

residential and non-residential uses. The residential

portion provides supportive housing for up to 6 disabled

people. The center of downtown Clyde has some of the

town’s older multi-story buildings and a public gathering

space known as the “square.” The downtown area is host

to various community events and celebrations. It has also

suffered great losses due to flooding.

As stated elsewhere in this Land Use Plan, some of

downtown Clyde’s most distinguishing features, namely

the railroad track, Carolina Boulevard, and the Pigeon River, are physical barriers that impact not

only access and transportation, but that could also affect the town center’s potential for growth.

Norfolk Southern Railroad Track. The track limits all modes of travel between the northern

and southern portions of downtown when trains and railroad service vehicles pass through

Clyde.

Carolina Boulevard (US 19/23). As a five-lane highway with few pedestrian crossing areas

and limited sidewalks, Carolina Boulevard creates a significant separation between the

north and south sides of downtown. It can also be an obstacle to those who might want to

travel between the two sections on foot, in a wheelchair, etc.

Pigeon River. Portions of downtown Clyde are within the 100-year and 500-year floodplains

of the Pigeon River. Some downtown parcels were subject to the buyout programs

following the 2004 floods, therefore their future use is limited (see the Environment and

Natural Resources Element for more information). Unless they want to go miles out of their

way, residents and others that need to travel between the north and south sides of the river

must pass through downtown Clyde to use the bridge on Charles Street. While the Pigeon

River presents challenges for downtown, it also offers some opportunities, such as for

recreation and economic development.

Character

Many of the properties and buildings in the downtown area are owned by people living in and

around Clyde and Haywood County. Quite a few are owned by the government, churches, and non-




Central Haywood High School.


profits, making them exempt for property tax collection purposes. The downtown contains some

vacant buildings and there are also vacant lots interspersed between buildings.

The square, which is bordered by the railroad right-of-way, Main Street, Mulberry Street, and the

buildings in between, is comprised of a plaza and adjoining parking area that were rehabilitated with

grant funds following the 2004 floods. It is the site of an anti-aircraft gun (known locally as the “big

gun”) that serves as a memorial for Clyde area veterans. Part of the parking area in the square is

public right-of-way while other portions of the square are

privately owned. The Town maintains the area. An

easement agreement allowed the Town to relocate the big

gun from its former to its current site. The Town has been

able to use the square for public events; however there is

not a formal mechanism for others to do so.

Central Haywood High School has one of the most

prominent buildings in the downtown area. The original

school building, completed in 1918, was replaced by the

current structure in 1941. The school’s Art Deco style is

unique in comparison to other downtown Clyde buildings. Its location in the floodway and 100-year

floodplain of the Pigeon River makes it very susceptible to flood damage.

In spite of the challenges that Carolina Boulevard presents, the Town of Clyde has made some

improvements that make at least a portion of it more of a focal point for the community. The Town

lined the north side of the road through the center of town with trees that bloom in the spring and

provide greenery that somewhat softens the appearance of the road in the summer and fall. In the

winter, the Town strings white lights in the trees, creating a beautiful and welcoming entrance to

the downtown area.

Community Appearance

The Community Survey results showed that 98 percent of respondents thought that community

appearance was either very (69 percent) or somewhat (29 percent) important in planning for Clyde’s

future. The survey did not distinguish between the appearance of downtown Clyde and the rest of

the Study Area. Written comments tended to be general in nature, as well. A number addressed

the need to remove storm debris, damaged buildings and portions thereof, abandoned homes and

buildings, and junk. There were also a few comments about maintaining and improving landscaping

and sidewalks.

The visioning exercise conducted at the 2009 community planning meeting also generated some

ideas related to community appearance, including: (1) beautification of US Highway 19/23;(2) river

and road clean-up; (3) design compatibility between new and historic buildings; and (4) renovation

of existing buildings (new store fronts, for example).




There are some tools available to North Carolina cities and towns to address community appearance

and building safety issues within and outside of downtowns. Some examples are listed below.

Appearance Commissions

Under N.C.G.S., Article 19, Part 7, local governments may, through an ordinance, establish

appearance commissions to study visual problems and needs in areas within their zoning jurisdiction

and to create and implement plans and programs to “enhance and improve the visual quality and

aesthetic characteristics” of the community. An appearance commission might, for example, initiate

a community beautification program, prepare and help the governing board implement appearance

plans for specific areas and/or the entire community, review and make appearance-related

recommendations on plans for public buildings, facilities or projects, recommend ordinances or

amendments thereto that are intended to enhance the community’s appearance, and bring

ordinance enforcement issues affecting community appearance to the attention of local officials.

Nuisance Regulations

The Town of Clyde’s Code of Ordinances contains some regulations regarding public nuisances. For

example it regulates the accumulation of junk on lots within the town limits.

Design Standards

North Carolina’s zoning statutes provides some broad authority for communities to regulate

development and where it is located, both within the community and on property. Communities

may regulate the appearance of development through design standards. They may also choose a

less regulatory approach by encouraging developers to follow a recommended set of guidelines.

Some common design standards address building height, mass and form, construction materials

(particularly for building facades), signage, lighting, and other site features.

Some communities use design standards in particular areas of the community, such as in historic

districts, downtowns, entry corridors, etc. or for certain categories of uses, such as commercial.

Other communities have decided to focus less on separating different types of uses and to

concentrate more on how to make new and existing development more compatible through the use

of design standards. Community preferences play a significant role in whether design standards are

needed and, if so, what they should govern.

The Town of Clyde’s Zoning Ordinance contains minimal design standards that focus on minimum

building setbacks and maximum building height.

Landscaping and Buffering Standards

The Town of Clyde’s Zoning Ordinance requires buffers for certain uses allowed by right. For

example, the C-1 Central Business District requires a 50-foot buffer strip along each property line

adjoining a residential district. For uses requiring conditional use permits, the Town’s Board of

Adjustment may require buffering if it would mitigate potential negative impacts of the proposed

development. The Zoning Ordinance does not address landscaping at this time; however the Town




has begun looking at ways to incorporate additional landscaping and buffering standards into its

land development regulations.

North Carolina Rehabilitation Code / Existing Building Code

In 2010, North Carolina enacted a new building code, known as the Rehabilitation Code, which

addressed repairs, renovations, alterations, reconstruction, occupancy changes, and additions to

existing buildings. The Rehabilitation Code was intended to make it easier for builders and

developers to upgrade existing buildings, to provide more flexibility for rehabilitating historic

buildings, and to encourage reinvestment in existing buildings and neighborhoods, while ensuring

that buildings were safe. In early 2012, the North Carolina Department of Insurance was in the

process of transitioning from the Rehabilitation Code to a new Existing Building Code.

Non-residential Building Maintenance Regulations

In 2007, the North Carolina General Assembly adopted N.C.G.S. § 160A-439, which gave cities and

towns specific authority to adopt ordinances establishing minimum standards of maintenance,

sanitation, and safety for nonresidential buildings and structures within their corporate limits. The

statutes allows cities and towns to establish minimum nonresidential standards that address

conditions that are “dangerous and injurious to public health, safety, and welfare and identify

circumstances under which a public necessity exists for the repair, closing, or demolition of such

buildings and structures.”

Condemnation of Dangerous Buildings

Chapter 150, Section 150.20, Inspection of Dangerous Buildings or Structures, in the Town of Clyde’s

Code of Ordinances authorizes the Board of Aldermen to have a county building inspector survey

buildings that have been reported to be dangerous (due to fire, poor wall condition, defective

construction, decay, or other reasons, or because they could endanger the lives of those passing by

or living in the vicinity) and report the results to the Board of Aldermen. The Board of Aldermen

may then condemn such buildings. The Code does not cite the state statute that gives the Town

authority to condemn unsafe buildings however N.C.G.S. § 160A-426 is the likely source.

Business Area Redevelopment Planning Grant

The Town of Clyde received a Business Area Redevelopment Planning Grant, funded by the

Hurricane Recovery Act of 2005 and administered through the North Carolina Rural Economic

Development Center (the Rural Center), to support redevelopment and revitalization of the

downtown business area. The Town hired Martin-McGill, Inc., to help it identify ways to encourage

the revitalization of downtown businesses in order to aid Clyde’s economic recovery following the

2004 floods. The Town formed a Business Area Redevelopment Committee (BARC) to help guide the

project.

Martin-McGill produced a Business Area Redevelopment Plan (or Redevelopment Plan) that focused

on 23 properties in one block adjoining Main and Mulberry Streets, between Broad Street and




Downtown streetscape improvements.

Source: NC DCP, July 2010.

Downtown streetscape and façade

improvements. Source: NC DCP, April 2009.

Carolina Boulevard. The 2004 floods damaged some buildings and infrastructure in the

redevelopment area. When the Redevelopment Plan was completed, 12 of 15 properties that had

housed businesses and/or civic uses before the floods had such uses in operation again, while 3 had

businesses (including 1 residential rental property) that did not reopen. The remaining properties

were vacant lots, including 3 owned by the Town of Clyde. FEMA funding helped the Town restore

its Maintenance Department to operation.

The Redevelopment Plan proposed 2 priority projects: (1) streetscaping and open space

development and (2) a façade improvement program. The projects were intended to encourage

residents and visitors to visit the downtown area by making it more attractive and pedestrian

friendly. They were also designed to encourage further investment in the redevelopment area. The

BARC helped oversee project implementation.

Streetscape and Open Space Development

The streetscape and open space development project

recommended by the Redevelopment Plan had two components.

The streetscape plan proposed sidewalk improvements, street

lighting, street trees, landscaping, burying utility lines, and

upgrading the parking area on Depot Street. The open space

development project proposed that the Town develop a park with a

playground, restroom facilities, and a picnic shelter in the Study

Area. The Town completed both the streetscape project and Lynn’s

Park in 2008.

Façade Improvement Program

The façade improvement program proposed by the Business

Area Redevelopment Plan was intended to improve the

appearance of downtown through the development of

building façade standards and the establishment of a fund to

assist building owners with certain improvements.

The Town operated the façade improvement program until

late 2008 (when the Rural Center grant funding ended), with

the intent of promoting economic redevelopment and

encouraging investment in downtown. Owners of buildings

in the downtown redevelopment area could apply for funds

to reimburse expenses associated with completing exterior

repairs and improvements that private insurance and other flood recovery programs did not cover.

Eligible projects included building façade renovations such as structural repairs, painting, replacing

signs, windows and doors, repairing or installing new awnings, and landscaping. Projects had to

comply with Rural Center guidelines, state and local ordinances, be consistent with the




Ribbon cutting for downtown revitalization.

Source: Town of Clyde, August 2008.

Redevelopment Plan, and be approved by the BARC. One of the previous downtown building

owners, Mountain Youth Resources, used the program to improve the old Bank of Clyde building.

According to Town staff, some business owners were reluctant to apply to the façade improvement

program because they were uncertain about their future and they did not have the funds and/or

were not ready to spend money on building improvements, even if they would be reimbursed later.

Clyde adopted façade design guidelines in 2007. The guidelines were intended to ensure that new

development, redevelopment, and building renovation projects in the downtown area would be

compatible with Clyde’s small town character and would preserve the integrity of its original

buildings. The Town also planned to use the guidelines in reviewing façade improvement program

applications. The Town did not repeal the façade design guidelines when the associated Rural

Center grant funding expired, however it has not used the guidelines since then.

Business Area Redevelopment Planning Grant Impacts

Town leaders and staff believe that the improvements made in downtown Clyde through the

Business Area Redevelopment Planning Grant have made the area more appealing to the public and

business interests and have also helped attract more events, such as car shows, that draw people

downtown. They have observed that some businesses

now stay open later on nights when events are being held

due to increased foot traffic.

The Town did not disband the BARC when the

Redevelopment Plan projects were completed and the

grant funding ended; however the group has not been

assigned any other projects since that time. The Town

could activate the BARC to aid in implementing Land Use

Plan recommendations related to downtown Clyde and to

provide input on other downtown matters.

Carolina Boulevard Improvements

Several transportation enhancement projects on Carolina Boulevard are impacting downtown Clyde.

NCDOT Small Urban Funds provided a new sidewalk section and new traffic signal poles on Carolina

Boulevard in 2008. During a resurfacing project in 2010, the NCDOT (at Clyde’s request) changed

pavement markings on Carolina Boulevard to create 10 on-street parking spaces near the Town Hall.

The Town of Clyde has been working with the NCDOT to improve the appearance of Carolina

Boulevard and to extend sidewalks and provide more on-street parking along it. The Town has

delayed installation of proposed landscaping and other design elements of the project due to a lack

of funding.




There have also been discussions about converting Carolina Boulevard to a boulevard style road

with 4 travel lanes and a center median. The proposed project includes the segment that passes

through downtown. Please see the Public Facilities, Services, and Infrastructure Element for more

information.

Downtown Buyout Properties

Flood buyout properties comprise a significant portion of the vacant land in the downtown area.

Their scattered locations and use limitations present some challenges and opportunities for

planning. Because the Town of Clyde and Haywood County each own some of the properties, they

will determine how the land is used, for example. The buyout parcels also provide permanent

pockets of open space in the downtown area.

The Land Use Plan Committee had several discussions about Clyde having a downtown farmers

market. Such a use might be permitted on buyout property if it complies with the deed restrictions

and zoning. For example, although the parcels cannot be paved, other surfaces that are pervious

may be allowed.

Some of the buyout properties along the Pigeon River may have the potential to be used as part of a

greenway, some other type of outdoor recreation area, a community garden, and/or other public

spaces that could attract people to downtown.

Downtown Planning

Prior to the Business Area Redevelopment Plan, Clyde did not have any plans specific to the

downtown area. The Redevelopment Plan was a strategic plan that focused on identifying projects

that the Town could complete in the short-term with grant funds. Its scope was intentionally

limited. The Land Use Plan contains recommendations for downtown that will help Clyde

implement a vision for the heart of the community but it, too, can only do so much. The Town also

needs a plan that focuses specifically on the downtown area.

Future Land Use – Town Center

The Land Use Element addresses downtown Clyde as part of a broader vision for the Study Area. It

establishes a Town Center future land use category that is intended to guide the development and

redevelopment of downtown Clyde in ways that respect its past and make it economically viable for

the future. Its description in the Land Use Element states:

The Town Center will continue to function and grow as the economic, social, cultural,

and governmental hub of Clyde in spite of challenges posed by physical barriers and

Mother Nature.

General design considerations for the Town Center category include: uses and building designs that

are in keeping with the desired small town character of downtown; compatible mixed uses;




appropriate infill development; connectivity with surrounding neighborhoods and community

spaces for special events, among others. The development considerations will guide some of the

Town’s future efforts to make enhancements and manage land uses such as through capital

improvement projects and/or amendments to land use regulations.

The Town Center category description also states, “The area is proposed to be the subject of a more

detailed planning process.” This reflects the Town’s desire to develop a downtown plan in addition

to implementing the Land Use Plan’s more general recommendations for the area. Such a plan

might address in more detail elements such as those contained in the Land Use Plan but may also

establish a more specific vision for downtown and assess the area’s strengths, weaknesses,

opportunities, and threats. It may look at the existing building stock (size, condition, etc.), parking,

public spaces, business and wayfinding signage, lighting, design, landscaping, historic preservation,

and public safety, for example. The downtown plan might also include a retail market analysis that

examines the region and customers that downtown (and, perhaps, other Clyde area) businesses

serve and identifies gaps that current or new businesses might be able to fill. It may help establish

the role of downtown in the economic development of Clyde, Haywood County, and the region. The

plan may consider and make recommendations on programs for attracting new businesses and

special events to downtown, supporting new and existing downtown businesses, marketing and

public relations, developing partnerships and others as determined by the Town.

Ordinances and Amendments

In order to implement some of the Land Use Plan recommendations for downtown, such as allowing

for mixed uses, Clyde will need to revise its Zoning Ordinance and, possibly, other land development

policies and regulations. Having a plan for the downtown area will help provide a basis for

ordinance amendments that can help maintain and enhance the character of the area. Such

planning can also help the community find a balance between regulations and policies intended to

help it achieve its vision and those that encourage the types of development and activities it wants.

Parking

Downtown Clyde has a variety of parking options, from the parking lot on the square and other lots

associated with businesses, public facilities, churches, and apartments, to the on-street parking

spaces on Mulberry Street, Main Street, and Carolina Boulevard. Downtown parking was not

identified as a significant issue by citizens that participated in the Community Survey and the

community planning meeting for the Land Use Plan. If development intensifies in the downtown,

however, the Town may need to give some consideration to how the area can best accommodate

additional parking needs. A downtown plan could study and address parking in more detail, if

needed.

Downtown Planning and Revitalization Resources

As it begins to implement the Land Use Plan, the Town will need to consider who to involve in future

downtown planning efforts and in what manner. Funding will also be needed. There are a variety of

resources available that may be helpful as Clyde proceeds with such work, including:




The North Carolina Small Town Main Street (STMS) Program. The STMS Program, operated

by the North Carolina Department of Commerce, Office of Urban Development, provides

two years of technical assistance to selected communities to help them revitalize their

downtowns. Towns with populations under 7,500 are eligible to apply. The STMS Program

uses the Main Street Four Point Approach to downtown revitalization developed by the

National Trust for Historic Preservation’s National Main Street Center. It emphasizes

organization, economic restructuring, promotions, and design. Historic preservation is also

an important element of the STMS Program. STMS staff members also provide limited

assistance to small towns that are not part of the program.

The North Carolina Downtown Development Association (NC DDA). The NC DDA is a non-

profit membership organization that provides information, training, technical assistance,

and other support to communities and individuals interested in downtown revitalization.

The DDA website includes a Downtown Tools section where a variety of resources are being

collected and made available at no charge.

Finding ways to fund revitalization projects and other improvements in downtowns can be

challenging for local governments. The Town of Clyde has discussed using its Capital Improvements

Plan (or CIP) to program and set aside funds for downtown improvements. For example, the Board

of Aldermen has proposed to include in its CIP a project to replace the trees that line a portion of

Carolina Boulevard in the downtown area. As described previously, the Town made streetscape

improvements and developed a small park in the downtown area through a Rural Center grant

program for which it was eligible due to the damage the Town suffered from the 2004 floods.

There are a number of sources of funding, financing, and other means of paying for revitalization

projects, such as historic tax credits, local tax incentives and credits, revolving loan funds, etc. One

example of a funding source that Clyde may want to investigate in the future is a Municipal Service

District (MSD). N.C.G.S. § 160A, Chapter 23, Municipal Service Districts, allows towns and cities to

establish special districts in order to finance, provide, or maintain certain services, facilities, or

functions within the districts that are either not provided to the rest of the town or that are

provided at a higher level than is available elsewhere in the town. The statute specifies what can be

funded through an MSD and downtown revitalization projects (as defined in the statute) are eligible.

Establishing an MSD allows a town to impose additional property taxes in that area to fund such

projects. They can also incur debt to finance MSD projects.

A future downtown plan should address funding methods and sources for downtown improvement

projects in more detail.


“Economic development” may have different meanings to different people; however it generally

refers to the plans and processes associated with the investment of resources (human, financial,




natural, and more) to generate new and expansions to existing businesses that produce and provide

goods and services which, in turn, create jobs, raise personal income levels and standards of living,

increase the tax base, attract other businesses and additional investment, and so on.

Jonathan Q. Morgan, who is on the faculty of the University of North Carolina at Chapel Hill School

of Government, wrote in The Economic Development Handbook, 2009:

Economic development can help expand and balance a tax base so that a jurisdiction

will have the resources it needs to provide high quality public services at a

reasonable cost to its residents. Balancing the tax base among the various land

uses—residential, commercial, and industrial—is especially important for the many

“bedroom” communities that exist in North Carolina. These communities rely on

local tax bases comprised mostly of residential property. The problem is that

residential development does not typically generate sufficient tax revenues to pay

for the public services it requires. By contrast, commercial and industrial

development projects usually pay for themselves and produce net tax revenues in

excess of the costs for needed public services.62

It can be challenging for small towns to concentrate on business creation and retention, workforce

development, and other economic development program elements in addition to providing services

to citizens. Clyde is fortunate to be involved in and served by several entities at the county and

regional levels that focus on economic development. However, the Town needs to be able to

strategically plan for and effectively communicate about its economic future. Such planning may

help the Town identify actions that it can take and tools it can use, as well as those that will require

partnerships with others.

Clyde’s Land Use Plan is not intended to provide an economic development plan for the Study Area.

Rather it includes basic information about the economy, refers to some resources, and encourages

the Town of Clyde to consider developing a more specific plan to outline where it wants to focus its

economic development efforts.

Please note that while employment and other some other economic data is available from the 2000

Census, comparable data from the 2010 Census was not available when the Land Use Plan was being

written. Therefore, the 2006-2010 American Community Survey (ACS), which is produced by the U.S.

Census Bureau, was used as the source for more current economic data.

County Economic Tier Rankings

Each year, the North Carolina Department of Commerce ranks the economic well-being of counties

based on data including the county’s unemployment rate, median household income, population

growth and assessed property value per capita, among others. The 40 most economically distressed

counties in the state are classified as Tier 1. The next 40 are in Tier 2 and the rest in Tier 3. For

2007, 2008, and 2009, Haywood County was in Tier 3. Its ranking dropped to Tier 2 in 2010 and has




remained at that level through 2012. The State uses the Tier system in some business incentive

programs to encourage investment in more distressed areas. While the Tier system applies at the

county level, municipalities within a given county are often considered to be in the same Tier,

regardless of whether they are more or less distressed.

Income

Table 34 summarizes some of the more recent income estimates that are available for Clyde, other

Haywood County municipalities, Haywood County and the State of North Carolina.

Table 34: 2006-2010 Income Estimates

Per Capita

Income ($)

Median Family Income

($)

Median Household

Income ($)

Canton 19,761 48,839 37,059

Clyde 21,566 42,197 37,143

Maggie Valley 40,803 55,357 52,933

Waynesville 22,305 42,124 32,746

Haywood County 24,233 51,596 41,377

North Carolina 24,745 56,153 45,570

Source: 2006-2010 American Community Survey

Per capita income is the mean (average) income per person in a community. It is calculated by

dividing the total income for all people 15 years and older in an area by the area’s total population

(including those under 15).

A household includes all the people who occupy a housing unit regardless of whether they are

related to the householder. Household income is the total amount of income received in a given

year by all members of a household that are 15 or more years old. Family income is the total

amount of income of all persons in a household that are 15 or more years old and are related to the

householder. In the case of median household and median family incomes for a given area, half of

the households (or families) have higher incomes than the median and half have lower incomes.

Median income estimates include households and families that have no income.

Clyde’s per capita income, median family income, and median household income estimates are all

lower than the Haywood County and North Carolina figures. Of the municipalities in Haywood

County, Clyde has the second lowest estimated per capita income (Canton’s is lower) and median

family income (Waynesville’s is lower). Clyde’s median household income is the second highest of

the municipalities (Maggie Valley’s is higher).

Poverty




The poverty rate refers to the percentage of individuals or families whose incomes are below

established monetary thresholds. The Census Bureau’s poverty thresholds vary by family size and

composition. For individuals living alone or with nonrelatives and for two-person families, the

poverty thresholds vary by age. Poverty thresholds do not vary based on where people live. The

Census Bureau adjusts them each year based on changes in the cost of living.

The 2006-2010 ACS shows that the estimated poverty rates for both individuals and families in Clyde

were the second highest of the municipalities in Haywood County (see Table 35). Only Waynesville

had higher rates. Clyde’s rates were also higher than those for Haywood County and North Carolina.

Table 35: 2006-2010 Estimated Poverty Rates

Individuals (%) Families (%)

Canton 12.4 11.1

Clyde 19.5 16.8

Maggie Valley 3.1 0.8

Waynesville 21.7 17.2

Haywood County 12.3 8.3

North Carolina 15.5 11.4 Source: 2006-2010 American Community Survey

Employment

A community’s labor force consists of people (both civilians and active duty members of the United

States Armed Forces) who are eligible and able to work, whether they are employed (full-time or

part-time), unemployed, or actively seeking employment.

The 2006-2010 ACS estimates that Clyde has a labor force of 499 people. Of those 499 people (all

civilians), an estimated 480 (59.1 percent) are employed and 19 (2.3 percent) are unemployed. The

percentage of the civilian labor force in the Town of Clyde that is unemployed is lower than that of

both Haywood County (3.7 percent) and the State of North Carolina (5.6 percent). Table 36 shows

the ACS labor force estimates for 2010 for Clyde, Haywood County and North Carolina. Table 37

contains the labor force information from the 2000 Census for the same areas.

Table 36: 2006-2010 Labor Force Estimates

Town of Clyde Haywood County North Carolina

No. % No. % No. %

Persons ≥ 16 years old 812 -- 48,214 -- 7,287,107 --

In Labor Force 499 61.5% 28,171 58.4% 4,725,801 64.9%

Civilian Labor Force 499 61.5% 28,103 58.3% 4,640,229 63.7%

Employed 480 59.1% 26,295 54.5% 4,234,087 58.1%

Unemployed 19 2.3% 1,808 3.7% 406,142 5.6%

Armed Forces 0 0.0% 68 0.1% 85,572 1.2%





Table 37: 2000 Labor Force


No. % No. % No. %

Persons ≥ 16 years old 980 100.0% 44,172 100.0% 6,290,618 100.0%

In Labor Force 575 58.7% 25,258 57.2% 4,130,579 65.7%

Civilian Labor Force 575 58.7% 25,252 57.2% 4,039,732 64.2%

Employed 546 55.7% 24,101 54.6% 3,824,741 60.8%

Unemployed 29 3.0% 1,151 2.6% 214,991 3.4%

Armed Forces 0 0.0% 6 0.0% 90,847 1.4%

Source(s): U.S. Census Bureau, Census 2000 Summary File 3

Because labor force statistics are based on the employment status of residents of an area,

regardless of whether they work in that area, they do not provide a complete picture of the types of

employers or employment available in a community or the impact of economic growth or decline on

the area. The Town of Clyde sees itself as a bedroom community whose residents tend to work

elsewhere and current statistics support that view. Table 38 shows that an estimated 85.5 percent

of the civilian labor force living in Clyde works elsewhere. This is a much greater percentage than

that of Haywood County as a whole (64.9 percent) and is considerably higher than the state level

estimate of 48.6 percent.

Table 38: 2006-2010 Place of Work Relative to Place of Residence Estimates Place of Residence


No. % No. % No. %

Workers ≥ 16 years old residing in a place

475 100.0% 8,278 100.0% 2,504,823 100.0%

Working in place of residence 69 14.5% 2,902 35.1% 1,286,822 51.4%

Working outside place of residence

406 85.5% 5,376 64.9% 1,218,001 48.6%


Table 39 shows how Clyde’s labor force traveled to work, based on the 2006-2010 ACS. Of note is

that 7.8 percent of the labor force works at home. The number of home-based workers in Clyde has

almost doubled since 2000 (see Table 40). This segment has grown faster in Clyde than at the

county or state levels and is currently almost twice that of people working at home statewide. The

Town may want to look more closely at the growth in telecommuting and home-based businesses

and what it may mean to Clyde’s economy, its land use patterns and policies, etc.




Table 39: 2006-2010 Commute to Work Methods Estimates


No. % No. % No. %

Workers ≥ 16 years old 475 100.0% 25,726 100.0% 4,205,946 100.0%

Car, truck, or van -- drove alone

370 77.9% 20,992 81.6% 3,385,870 80.5%

Car, truck, or van -- carpooled

64 13.5% 2,712 10.5% 481,125 11.4%

Public transportation (excluding taxicab)

0 0.0% 79 0.3% 42,731 1.0%

Walked 4 0.8% 375 1.5% 75,342 1.8%

Other means 0 0.0% 286 1.1% 55,090 1.3%

Worked at home 37 7.8% 1,282 5.0% 165,788 3.9%

Mean travel time to work (minutes)

21.3 -- 22.3 -- 23.4 --


Table 40: 2000 Commute to Work Methods


No. % No. % No. %

Workers ≥ 16 years old 534 100.0% 23,721 100.0% 3,837,773 100.0%

Car, truck, or van -- drove alone

440 82.4% 19,280 81.3% 3,046,666 79.4%

Car, truck, or van -- carpooled

66 12.4% 3,239 13.7% 538,264 14.0%

Public transportation (excluding taxicab)

0 0.0% 121 0.5% 34,803 0.9%

Walked 4 0.7% 318 1.3% 74,147 1.9%

Other means 4 0.7% 114 0.5% 40,942 1.1%

Worked at home 20 3.7% 649 2.7% 102,951 2.7%

Mean travel time to work (minutes)

21.6 -- 22.7 -- 24.0 --


Clyde residents are employed in a variety of industries, as shown in Table 41. Almost one-quarter

(22.7 percent) of employed Clyde residents are working in the educational services and health care

and social assistance sectors. The next most prevalent industry, employing 16.5 percent of Clyde

residents, encompasses the arts, entertainment, and recreation sectors, as well as accommodation

and food services. The construction industry is third, employing 14 percent of Clyde’s labor force.




Table 41 shows that Clyde, Haywood County, and North Carolina have similar percentages of people

employed in the educational services and health care and social assistance industry classification

(between 22.5 and 22.7 percent). However, for Haywood County, the retail and the manufacturing

industry categories have the next highest numbers of employees, followed by the arts,

entertainment, and recreation, and accommodation and food services industry. For the state as a

whole, manufacturing employs the second highest number of people, followed by retail trade, and

then the industry category containing professional, scientific, and management, and administrative

and waste management services.

Table 41: 2006-2010 Civilian Labor Force by Industry Estimates Town of Clyde Haywood County North Carolina

Industry No. % No. % No. %

Civilian employed population ≥ 16 years old

480 -- 26,295 -- 4,234,087 --

Agriculture, forestry, fishing and hunting, and mining

0 0.0% 191 0.7% 61,011 1.4%

Construction 67 14.0% 3,041 11.6% 349,220 8.2%

Manufacturing 66 13.8% 3,416 13.0% 568,153 13.4%

Wholesale trade 19 4.0% 771 2.9% 128,111 3.0%

Retail trade 64 13.3% 3,525 13.4% 489,411 11.6%

Transportation and warehousing, and utilities

0 0.0% 1,207 4.6% 186,796 4.4%

Information 3 0.6% 374 1.4% 82,087 1.9%

Finance and insurance, and real estate and rental and leasing

21 4.4% 1,531 5.8% 278,182 6.6%

Professional, scientific, and management, and administrative and waste management services

39 8.1% 1,518 5.8% 388,417 9.2%

Educational services, and health care and social assistance

109 22.7% 5,904 22.5% 956,181 22.6%

Arts, entertainment, and recreation, and accommodation and food services

79 16.5% 2,466 9.4% 362,590 8.6%

Other services, except public administration

13 2.7% 1,488 5.7% 202,053 4.8%

Public administration 0 0.0% 863 3.3% 181,875 4.3%


The top 3 industries in terms of employment for both North Carolina and Haywood County

(education services, and health care and social assistance; manufacturing; and retail trade) together

employed 48 percent of the state’s labor force and 49 percent of the county’s labor force. As noted

previously, Clyde’s top 3 industry sectors for employment did not include manufacturing or retail

trade; however they employed 50 percent of the town’s labor force.




Table 42: 2000 Civilian Labor Force by Industry Town of Clyde Haywood County North Carolina

Industry No. % No. % No. %

Civilian employed population ≥ 16 years old

546 100.0% 24,101 100.0% 3,824,741 100.0%

Agriculture, forestry, fishing and hunting, and mining

5 0.9% 535 2.2% 61,185 1.6%

Construction 48 8.8% 2,487 10.3% 312,038 8.2%

Manufacturing 100 18.3% 3,991 16.6% 755,252 19.7%

Wholesale trade 12 2.2% 562 2.3% 131,330 3.4%

Retail trade 84 15.4% 3,038 12.6% 439,868 11.5%

Transportation and warehousing, and utilities

20 3.7% 836 3.5% 176,412 4.6%

Information 8 1.5% 289 1.2% 89,797 2.3%

Finance and insurance, and real estate and rental and leasing

27 4.9% 974 4.0% 231,222 6.0%

Professional, scientific, and management, and administrative and waste management services

32 5.9% 1,342 5.6% 296,075 7.7%

Educational services, and health care and social assistance

105 19.2% 5,105 21.2% 733,440 19.2%

Arts, entertainment, and recreation, and accommodation and food services

72 13.2% 2,295 9.5% 265,585 6.9%

Other services, except public administration

22 4.0% 1,653 6.9% 176,908 4.6%

Public administration 11 2.0% 994 4.1% 155,629 4.1%


Unemployment

The unemployment rate for an area consists of the percentage of the civilian labor force that is

unemployed. The 2006-2010 ACS estimates that the unemployment rate for the Town of Clyde was

3.8 percent (see Table 43). Clyde had the second lowest unemployment rate of the municipalities

within Haywood County. Clyde’s rate was approximately 40 percent less than Haywood County’s

estimate and almost 60 percent less than the estimate for the state.




Table 43: 2006-2010 Unemployment Rate Estimates Unemployment Rate

Town of Canton 5.9%

Town of Clyde 3.8%

Town of Maggie Valley 2.7%

Town of Waynesville 4.3%

Haywood County 6.4%

State of North Carolina 8.8%


While there are probably multiple reasons for Clyde’s unemployment rate being relatively low

compared to the other municipal, county, and state rates shown in Table 43, one consideration may

be the relatively higher education levels of its population. Table 44 shows estimated unemployment

rates associated with various levels of educational attainment. In Clyde, Waynesville, Haywood

County, and North Carolina, the unemployment rates are highest among those who have not

completed high school, followed by high school graduates who have not attended college or

community college. While the unemployment rate in these jurisdictions is lowest for those with a

bachelor’s degree or higher, Clyde is shown as having virtually no unemployment among residents

with such degrees.

Table 44: 2006-2010 Unemployment Rate Estimates by Level of Educational Attainment (Population 25 to 64 Years of Age)

Less than High School Graduate

High School Graduate (includes

Equivalency)

Some College or Associate’s

Degree

Bachelor’s Degree or Higher

Town of Canton 0.0% 7.5% 0.0% 8.3%

Town of Clyde 7.4% 7.4% 3.8% 0.0%

Town of Maggie Valley 0.0% 0.0% 0.0% 5.3%

Town of Waynesville 12.3% 10.9% 7.2% 4.8%

Haywood County 10.7% 6.2% 4.3% 3.4%

State of North Carolina 12.1% 8.0% 6.4% 3.5%





Sherrill’s Pioneer Restaurant. Source: NC DCP, April 2009.

Although educational attainment may play a role in the employment status of Clyde residents, the

employment status does not seem to correlate with income levels and poverty rates. While a higher

percentage of Clyde residents are employed relative to residents of Haywood County and the towns

therein (with the exception of Maggie Valley), Table 34 and Table 35 show that Clyde had the

second to lowest per capita and median family incomes and the second highest individual and family

poverty rates.

Existing Businesses

Statistics on the number and types of businesses, the number of people they employ, etc., are not

readily available at the municipal level for small communities such as Clyde. Although it is possible

to retrieve some business and industry data by zip code, the Clyde zip code area is so much larger

than the Study Area that the data may not adequately represent conditions in the Town of Clyde

and its ETJ.

Of Haywood County’s 25 largest employers in 2011, there was one within the Study Area: Haywood

Community College (250-499 employees).63 Haywood Regional Medical Center (now MedWest

Haywood), located just outside the Study Area, is the 3rd largest (more than 1,000 employees).

Haywood County Schools is the largest employer in the county (more than 1,000). Given that Clyde

Elementary School and Central Haywood High School are located within Clyde, one would expect the

county school system to be one of the largest employers in the Study Area. Combined, the two

schools have a total of approximately 110 employees. The US Postal Service is the 23rd largest

employer countywide (50-99 employees). Based on observations by Land Use Plan Committee

members and other sources, the US Postal Service, the North Carolina Highway Patrol, Haywood

Christian Academy, HomeTrust Bank, the Town of Clyde, Haywood Appliance, the E-Z Stop and the

office of Dr. John Highsmith, DDS, are probably some of the larger employers in the Study Area, in

addition to the entities mentioned previously.

The Study Area contains an array of businesses, many of

which involve retail sales and/or services including, but not

limited to: an appliance store, convenience stores with

gasoline pumps, used car sales, a small grocer, a

restaurant, a military surplus store, florists, a nursery,

website design services, a meat processer, automobile

service and repair, medical and dental offices, counseling

services, hair salons, building and construction-related

businesses and services, real estate sales, financial

institutions, a dance studio, cemeteries, a summer camp,

and childcare centers. Most are small, independent businesses. A Dollar General store to be

constructed on Carolina Boulevard will be the only national chain establishment in the Study Area.

If Clyde develops a community-wide economic development plan, it may want to consider

conducting a retail market analysis for the entire town and/or Study Area to help it determine




whether additional types of businesses are needed or if existing businesses have the potential to

draw additional customers. The section on downtown Clyde (in this CLUP Element) also proposed

such a market study. It could be done as part of one for the broader community.

Tourism

Not long after the completion of the railroad line through Clyde, the town became known, in part,

for its beauty and its health benefits. It soon began attracting summer residents and short-term

visitors. Accommodations included boarding houses and approximately 8 hotels (according to the

1916 Pictorial Story of Haywood County).64 One of the more prominent hotels, the Yankee Hipps,

was sold in 1916 to the founder of the Skyland Camp for Girls, which opened in 1917.

Results from the2009 Community Survey and the community planning meeting as well as feedback

from the Land Use Plan Committee members indicate that Clyde area residents are not very

interested in having tourism be a significant element of the local economy. Of the factors ranked by

Community Survey respondents, tourism was the least important in planning for Clyde’s future.

Although focusing on developing the tourism component of the economy is not a priority in Clyde,

there are some existing businesses, events, and attractions in the community that serve visitors

(Skyland Camp for Girls, the Shook Museum, and car shows, for example) or that probably benefit

from travelers on their way to and from other destinations (gas stations and convenience stores, for

example).

Economic Development Resources and Plans

If Clyde decides to develop a more formal economic development plan and implementation

program, it will have the benefit of a number of agencies, efforts, plans, and other resources from

which to draw.

Economic Development Resources

The Town of Clyde is part of several local economic development organizations, as follows.

Haywood County Economic Development Commission. The Town of Clyde has a

representative on the Haywood County Economic Development Commission (EDC). The

EDC’s mission is to “…foster a healthy and prosperous economy and quality of life for our

community through the development of capital investment, job creation and

entrepreneurial opportunities while supporting existing business and industry.”65 The focus

of the EDC has changed over the years from recruiting large industries to recruiting small

and medium sized industries and commercial development. It also concentrates on working

with existing businesses on retention and expansion.

Greater Haywood County Chamber of Commerce. The Greater Haywood County Chamber

of Commerce is a membership-based business organization that represents the interests of

local businesses and provides resources that contribute to its members’ success as well as




the economic vitality and quality of life of Haywood County. The Town of Clyde is a

member. In 2010, the Chamber began the Blue Ridge Breakaway, an annual cycling event

that serves as a fundraiser for the Chamber. It offers 4 bicycle routes ranging from 25.8

miles to 105 miles. The two longer routes pass through the Study Area, including downtown

Clyde. Lynn’s Park is a rest area. The 2011 event drew approximately 355 riders, 262 of

which traveled though Clyde.

Haywood County Tourism Development Authority. The Haywood County Tourism

Development Authority (TDA) helps promote the county as a tourist destination. A 4

percent occupancy tax funds the TDA’s operations, services, and publications, including two

visitor centers, a toll-free tourist information hotline, a visitor’s guide, commercials, and

other means of advertising. The TDA provides funding to the Haywood County and Maggie

Valley chambers of commerce as well as to local events and festivals. A member of Clyde’s

Board of Aldermen serves on the TDA board of directors.

There are a variety of entities working on economic development in Western North Carolina that

may also be resources for Clyde and its business community. Table 45 contains examples of such

organizations.

Table 45: Examples of Economic Development Organizations Working in Western North Carolina

Organization Purpose

AdvantageWest Economic Development Group

An economic development commission for 23 Western North Carolina counties that markets the region to businesses interested in relocating, adding a new facility, or expanding an existing facility in the area. It promotes the region’s potential for filmmaking and tourism and for green business. It also encourages and supports entrepreneurship through programs such as its Certified Entrepreneurial Community (CEC®) Program which helps communities become “entrepreneur

ready.” Haywood County was the first CEC®. http://www.advantagewest.com/

HandMade in America Small Towns Program

A program that helps small towns in Western North Carolina revitalize their physical and civic infrastructure though a community-driven, asset-based approach. It helps communities develop and find financial and other resources to implement community projects, build leadership capacity, and develop partnerships. It also has a peer mentoring program through which towns

can learn from one another. http://www.handmadeinamerica.org/economic-development/small-town-revitalization

North Carolina Small Town Economic Prosperity (NC STEP) Program

A program of the North Carolina Rural Economic Development Center (Rural Center) that helps help small towns (under 7,500 in population) revive their economies. The program includes coaching, leadership training, a community-wide planning process to develop an economic development strategy, and grants for implementation.

http://www.ncruralcenter.org/community-programs/small-towns.html Small Business and Technology Development Center (SBTDC) at Western Carolina University

Part of a statewide program operated by the University of North Carolina in partnership with the United States Small Business Administration. The SBTDC is a resource for businesses that offers services including: Business and Management Advice; Financial Analysis; Financing Assistance; Marketing Assistance; Research; Strategy and Organizational Development and Implementation;

and Leadership and Employee Performance. http://www.sbtdc.org/offices/wcu/

Small Business Center (SBC) at Haywood Community College

Part of a network of 58 such centers in North Carolina that support the development of new businesses and the growth of existing businesses. The SBC provides new and existing small businesses with free counseling services, business seminars, and access to its resource libraries. Currently, the SBC provides technical assistance to businesses applying to the Rural Center’s

http://www.advantagewest.com/

http://www.handmadeinamerica.org/economic-development/small-town-revitalization

http://www.handmadeinamerica.org/economic-development/small-town-revitalization

http://www.ncruralcenter.org/community-programs/small-towns.html

http://www.sbtdc.org/offices/wcu/




Microenterprise Loan Program. http://www.haywood.edu/small_business_center

Southwestern North Carolina Planning and Economic Development Commission

The Southwestern Commission, a council of government serving Region A, North Carolina’s 7 westernmost counties. The Southwestern Commission assists local governments with community and economic development, transportation planning, land and water conservation, and other

functions. It also works with them on regional projects. http://www.regiona.org/

Because there are many other existing economic development programs and resources, including

some operated by the state and federal governments, they cannot all be described in this Land Use

Plan. If the Town of Clyde chooses to prepare an economic development plan in the future, it will

probably want to review a more thorough inventory of available programs.

Existing Economic Development Plans

There are several existing plans that are relevant to economic development in the Study Area. Two

are highlighted below.

Comprehensive Economic Development Strategy

The Southwestern North Carolina Planning and Economic Development Commission (Southwestern

Commission) periodically completes a Comprehensive Economic Development Strategy (CEDS) for

the Southwestern North Carolina Economic Development District (EDD), which coincides with

Region A. The 2011 CEDS identifies the EDD’s economic development assets and liabilities. Some of

the assets matched several identified by Clyde leaders and residents as the Land Use Plan was

developed, such as: a high quality of life; the beauty of the area; recreational opportunities; access

to good health care; and an excellent community college system. Identified liabilities for the EDD

that are likely to similarly affect the Clyde area include: lack of access to capital; lack of multimodal

transportation systems; undercapitalization of local cultural and entertainment options; an

affordable housing shortage; and the vulnerability of I-40 to rock slides.

The CEDS contains goals and objectives to address economic development issues. It emphasizes

retention and expansion of existing employers and training a skilled workforce. It also promotes the

preservation and wiser use of the region’s natural resources.

The 2011 CEDS identified national industry clusters that are growing in the EDD and that have a high

or increasing concentration in the region compared the rest of the country, including:

Pharmaceuticals and Medical Technologies; Information Technology and Instruments;

Communication Services and Software; and Recreation and Tourism.

The CEDS also found the following other business clusters to be important to the region: Hospitals,

Labs and Specialized Medical Services; Business Support Services; Arts, Crafts and Design-Related;

and Retirement-Related.

Haywood County Comprehensive Bicycle Plan

The Haywood County Comprehensive Bicycle Plan, described in more detail in the Public Facilities,

Services, and Infrastructure Element, indicates that cyclists and the presence of cycling

http://www.haywood.edu/small_business_center

http://www.regiona.org/




infrastructure, support facilities, and programs can generate economic development benefits for

Haywood County. It also mentions Clyde’s potential to become the bicycling hub of the county

thanks to the town’s central location, parks (with restrooms), parking, and proximity to recreational

bicycle routes. Events such as the annual bicycle rodeo in Clyde and the relatively new Blue Ridge

Breakaway further suggest that the town may be well-suited for cycling and the associated business

it could generate.





1. Goal: Continue to revitalize the downtown area as the business, civic, cultural, and mixed-use residential hub of the community.

1.1. Recommendation: Organize and plan for the future of downtown Clyde.

Strategies:

a. Establish a working group that includes downtown stakeholders to focus on

downtown matters. The group may be a subcommittee of one that may be

established for Clyde’s overall economic development (see Strategy 2.1.a. in this

Element), a Board of Aldermen or Planning Board subcommittee, or a new group.

b. Seek educational opportunities, technical assistance, and resources for

downtown planning and revitalization.

c. Complete a downtown master plan to establish a vision and identity for the area

and to guide future public and private investments in infrastructure,

development, and other improvements.

d. Create and maintain an inventory of vacant buildings and properties that might

be of interest to individuals wanting to locate businesses downtown.

1.2. Recommendation: Allow a complementary mix of uses in the downtown area.

Strategies:

a. Develop one or more zoning districts and/or overlay districts for application in

the downtown area that will help define the area’s desired character.

b. Encourage small businesses to locate downtown.

c. Permit residential and commercial uses to occupy the same building as well as

the same lot (if in separate buildings, for example), subject to meeting certain

standards.

d. Encourage compatible infill development for vacant or underutilized properties.

e. Encourage the adaptive reuse of vacant or underutilized buildings.

f. Provide additional public spaces, such as on flood buyout properties.

g. Identify a location in the downtown area for a farmers market / tailgate market

and work with other departments, agencies, and organizations to develop the

area as needed for the market.

h. Allow for shared parking, on-street parking, and other innovative parking

strategies.




1.3. Recommendation: Maintain and enhance the appearance and character of downtown

Clyde.

Strategies:

a. Develop one or more zoning districts and/or overlay districts for application in

the downtown area that will help define the area’s desired character. [Same as

Strategy 1.2.a. in this Element.]

b. Continue to refine and implement plans for streetscape improvements on US

19/23 (Carolina Boulevard).

c. Work through the French Broad River Metropolitan Planning Organization to add

a project to its Comprehensive Transportation Plan/Long Range Transportation

Plan and the North Carolina Statewide Transportation Improvement Program, to

convert US 19/23 (Carolina Boulevard) through Clyde to a boulevard-style road.

[Same as Strategy 1.1.a. in the Public Facilities, Services, and Infrastructure

Element.]

d. Review the appearance and effectiveness of existing signage (wayfinding) and

lighting.

e. Encourage property owners to maintain buildings and land.

f. Consider whether the Town should establish a Municipal Service District for

downtown Clyde to provide funds for downtown revitalization (in accordance

with N.C.G.S. § 160A, Chapter 23).

2. Goal: Help Clyde’s economy grow.

2.1. Recommendation: Organize and develop an overall economic development program for

Clyde.

Strategies:

a. Establish a committee to focus on economic development in Clyde. The

committee could be a subcommittee of the Board of Aldermen or the Planning

Board, or it could be a new group. It may also have subcommittees, such as one

devoted to the downtown area (see Strategy 1.1.a. in this Element).

b. Complete a retail market analysis to better understand Clyde’s current business

environment and economic assets, to identify opportunities for expanding and

diversifying the Town’s economy, and to recommend actions to make the most

of the opportunities that best serve the interests of the community.

c. Continue to support and participate in the work of county-wide and regional

economic development organizations including the Haywood County Economic

Development Commission, the Haywood County Chamber of Commerce, the




AdvantageWest Economic Development Group, the Haywood County Tourism

Development Authority, and others.

d. Learn about the resources and assistance that may be available to the Town

and/or its businesses from the Small Business Center at Haywood Community

College.

e. Encourage the development of new and the retention and growth of existing

businesses and services in Clyde, particularly those related to the medical field,

small and/or independent businesses, and businesses that serve the needs of

local residents and those who work, go to school, or attend church in, or

otherwise visit, Clyde. For example, by linking businesses with resources,

providing incentives or grants, participating in or establishing a revolving loan

fund, etc.

f. Consider applying for the North Carolina Rural Economic Development Center’s

North Carolina Small Towns Economic Prosperity (NC STEP) program, which

provides economic development support to small towns through coaching,

training, planning, and grants.

g. Revitalize downtown (see Goal 1 in this Element).

h. Promote/market the Clyde area to prospective businesses.

i. Link Clyde with county-wide promotional activities such as the “Buy Haywood”

and the “Why Haywood?” campaigns.


Element Six: Community Character and

Quality Of Life |121

Element Six: Community Character and Quality Of Life

Community Character

Throughout the development of the Land Use Plan, a recurring theme was the importance of Clyde’s

small town character to the community. The Pigeon River, railroad, buildings, businesses, public

spaces, agricultural areas, and other physical assets help establish its character. Other less tangible,

but equally important, elements such as the people and their history, values, and sense of

community, for example, also contribute to the small-town feeling that makes Clyde special to those

who call it home.

Community Appearance

The way a community looks and feels contributes to its character and its appeal to residents and

visitors. Appearance can be a source of pride in communities. It may make the difference if a

developer or business owner is thinking about investing in an area.

The Downtown Revitalization and Economic Development Element summarizes the public input

identified from the Community Survey and the community planning meeting as it relates to

community appearance, beautification, and design. It also reviews some of the tools available to

North Carolina cities and towns interested in addressing appearance and building safety issues

throughout the community (not just downtown). Some of the recommendations in that Element

regarding downtown revitalization overlap with and/or complement those within this Element.

Historic Resources and Preservation

The Town of Clyde will celebrate the 125th anniversary of its incorporation in 2014. Clyde is proud of

its history and has taken steps to preserve and promote it, as described below.

Clyde Historic Commission

The Town of Clyde has a 5-member Historic Preservation Commission (HPC), appointed by the Board

of Aldermen, which is charged with performing the duties of regulating historic landmarks and

historic districts. The Commission meets on a quarterly basis.

Members of the HPC are writing about Clyde’s history and compiling very detailed scrap books

about the Town. Of particular note are those that document the 2004 floods that impacted the

Clyde area. The scrap books are housed in a room at the Clyde Town Hall that has been dedicated

to preserving the town’s history.


122 | Element Six: Community Character and

Quality Of Life

Shook-Smathers House.


National Register of Historic Places

The United States Congress established the National Register of Historic Places in 1966 to ensure

that listed properties are given consideration in the planning of federal projects or projects by state

and local governments or the private sector if they are licensed or partially funded through the

federal government. The program was also intended to encourage state and local governments as

well as the private sector to undertake historic preservation initiatives. Being listed on the National

Register indicates that a building, structure, site, district, or object is worthy of preservation due to

its significance in terms of American history, architecture, archeology, and/or culture. The listing

does not impose any requirements on private owners of designated properties when they use

private resources to improve or maintain such properties. If they use federal funding or licensing to

improve a property or use the National Register designation to obtain a grant or tax credit, they are

required to follow federal preservation standards.66

The Shook-Smathers House is listed on the National Register of Historic Places. There are no other

historic buildings, sites, or districts in the Study Area that have been placed on the National Register.

Local Historic Landmarks and Districts

The Town of Clyde has not designated any local historic landmarks or districts. In order to make

such local designations, the Town of Clyde’s Board of Aldermen would need to adopt an ordinance

(or amend the Clyde Zoning Ordinance) as authorized by N.C.G.S. Article 19, Part 3C, Historic

Districts and Landmarks. The HPC would then have the ability to recommend that the Board of

Aldermen make such local designations. Haywood County does not have a local program to

designate historic landmarks or districts. Local governments that have established their own

programs may designate places listed on the National Register as a local historic landmarks or

districts; however there is no requirement to do so.

Shook-Smathers House

The Shook-Smathers House on Morgan Street in Clyde was listed on the National Register of Historic

Places in 2008. It is a 2½ story wood frame built by Jacob Shook between 1795 and 1820. Levi

Smathers bought the Shook home in 1850 and his family added to and significantly remodeled it in

the 1890s. Preservation North Carolina considers the

Shook-Smathers House to be the oldest, standing frame

house west of the Blue Ridge.

In addition to being recognized for its age and wood frame

construction, the house is also known for its association

with the establishment of the Methodist Church in

Haywood County. Francis Asbury, the first Methodist

Bishop consecrated in the United States, spent a night in the

Shook home in 1810. The third floor of the Shook-Smathers

House consists of a chapel that Jacob Shook is said to have built as a place for early settlers of the

area to worship.




“Clyde High School” Quilt Square.


The Shook-Smathers House is now the home of the Shook Museum. The property also contains a

visitor center and gift shop. Occasionally the Shook Museum hosts events such as Civil War

reenactments. In December of 2011, the Haywood County Historical and Genealogical Society

acquired the Shook-Smathers House and property through a donation from its prior owner, a

descendant of Jacob Shook.

Quilt Trail

The Town of Clyde is proud to be the home of some of the quilt blocks that have been installed on

buildings in Haywood County as part of the Haywood County Arts Council’s Quilt Trails project. The

colorful quilt blocks add visual interest to their surroundings while communicating some of the

history of the community. The Arts Council publishes stories about the quilt locations and the quilt

pattern themes and symbolism for those interested in learning more about the sites on the quilt

trail. The Haywood County project is modeled after similar

projects in other counties in Western North Carolina. The

quilt blocks in the region draw interest from area residents

as well as visitors specifically interested in following the

self-guided trails. As of March of 2012, Clyde had 6 quilt

blocks, the most of any community in the county. The

quilt blocks, which are installed on the Shook-Smathers

House, Lil’s, the former Haywood Institute, Louisa Chapel,

Central Haywood High School (the former Clyde High

School), and the former Bank of Clyde building, all help tell

the story of Clyde’s history. Descriptions of the quilt squares in Clyde as well as a map showing their

locations can be found at http://www.haywoodquilttrails.org/.

Other Historic Features and Events

There are many other aspects of Clyde and events that occurred in the community that are

significant to its history. A number of them, such as the construction of the railroad and the

devastating floods in the recent and more distant past are covered in other elements of this Land

Use Plan.

Cultural Amenities and Resources

Haywood County and the surrounding region offer a broad array of fine arts, crafts, music, dance,

theater, cultural heritage, and other educational and entertainment opportunities that are

accessible to Study Area residents.

Some of the cultural amenities and resources that are located in or could support the Study Area

include those listed below.

http://www.haywoodquilttrails.org/



Quality Of Life

Thickety Road Area.


Haywood Community College (HCC)

HCC’s contributions to the community extend well beyond the academic and other programs it

offers students. As indicated in the Public Facilities, Services and Infrastructure Element, HCC makes

its facilities available for use by the community. The auditorium, for example, is used for community

theater productions and music and dance recitals. HCC also hosts a variety of cultural programs

including an annual event to celebrate the heritage of the area through music and demonstrations.

Among HCC’s programs of study are professional crafts curricula in clay, fiber, jewelry, and wood.

Angie’s Dance Academy

This plan would be remiss in its discussion of cultural amenities in the Study Area if it did not

mention Angie’s Dance Academy. The Academy has been providing dance instruction and other

activities to the region since it opened in Clyde in 1991. Within its 15,000 square foot facility on

Glance Street, the Academy has 5 dance studios and operates a retail store selling dance wear and

supplies. The Academy holds annual dance recitals in the HCC Auditorium.

Haywood County Arts Council

The Haywood County Arts Council, based in Waynesville, works to involve the community in the arts

by promoting art and artists, providing opportunities for new cultural experiences, and preserving

the artistic heritage of the mountains.67 It does so through a variety of programs, events, and

activities such as the Junior Appalachian Musicians program, the Arts in the Schools program, a

Sunday Concert Series, the Swannanoa Chamber Music Festival, and more. The Arts Council holds

some events at the HCC Auditorium. It also provides grants to support local arts programs and

regional artists.

Rural/Agricultural Character

When thinking about Clyde, non-residents may envision downtown or Carolina Boulevard.

However, a majority of the Study Area is comprised of lower density development, agricultural land,

and undeveloped areas. The Land Use Element shows that

49 percent of the existing land use in the Study Area is

classified as Open Land and another 3 percent is considered

Undeveloped.

When answering the Community Survey question regarding

the types of development that should be encouraged in the

Clyde area in the future, 39 percent of respondents said

that Farming and/or Forestry Operations should be strongly

encouraged and 52 percent said it should be encouraged. A

few written comments from survey participants referenced

farms and agriculture, particularly as they contribute to maintaining Clyde as a small town and

bedroom community. Others suggested having farmers markets.




The lower density, agricultural, and undeveloped areas contribute to Clyde’s rural feel. Farm land

may also provide economic, environmental stewardship, and other benefits. If the community

wants to maintain its rural character and preserve productive agricultural land, there are many tools

and resources available to help it do so, some of which are described below.

Infrastructure Extensions

The availability of public water and sewage disposal systems may increase the development

potential of property and make it more suitable for higher density development. The Town of Clyde

has the ability to manage extensions of its water and sewer systems to guide the location and

density of development.

Development Incentives

Communities can use incentives to encourage more intensive or certain types of development in

some areas, which may help reduce development pressure on more rural areas. A density bonus,

for example, is an incentive that allows developers more units per acre or greater lot coverage than

would otherwise be allowed, provided certain criteria are met. A density bonus option could be

made available in certain zoning districts.

Conservation Easements

A conservation easement is a voluntary legal tool through which a landowner agrees to preserve all

or a portion of property and limit development of it, while retaining ownership and the right to

continue to use it in accordance with specified terms. A landowner, by written agreement, grants

(through sale or donation) a conservation easement to an easement holder such as a government

entity, land trust, or other conservation organization. The easement holder is responsible for

monitoring the property to ensure that the terms of the agreement are fulfilled in perpetuity and

may also be granted certain rights regarding the use of the property. Present and future owners are

subject to the terms of the easement. Landowners who donate conservation easements may be

eligible for certain tax benefits and/or credits. Conservation easements may be used to preserve

farmland, open space, riparian buffers, and other natural areas and features.

Conservation Subdivisions

Conservation subdivisions are developments in which a substantial amount of the property in the

overall project is set aside permanently as open space and the homes (and/or other buildings or

structures, such as in mixed use developments) are clustered on the remaining property. The design

of a conservation subdivision gives primary consideration to the land and significant natural

features, environmentally sensitive areas, views, and other unique attributes of the site that should

be preserved. Some conservation subdivisions include land actively being used for agricultural

activities. The areas identified for preservation form the framework into which the roads, other

infrastructure, lots, and building sites fit. Typically, the overall allowed density (units per acre) of

residential conservation subdivisions is the same or greater than what would otherwise be allowed

in a zoning district because of clustering and smaller lot sizes. Some communities offer density



Quality Of Life

bonuses for developers who choose to build a

conservation subdivision instead of a more

conventional subdivision. The Town of Clyde would

need to amend its zoning and subdivision ordinances

in order to allow the development of conservation

subdivisions.

Farmland Preservation

In order for counties to receive state funds for

farmland preservation and agricultural development,

they must create agricultural economic development

and farmland protection plans. Haywood County was

one of the first in the state to develop its plan. The

Haywood County Farmland Protection Plan, completed

in 2008, provides a substantial amount of information

on the state of agriculture in the county. It discusses

the county’s farming history and current agricultural

activities, the impact of agricultural production on the

county, challenges facing the agricultural industry,

existing farmland conservation efforts, and agricultural

protection tools and opportunities to sustain and

enhance agriculture in the county.

In 2007, according to the Haywood County Farmland

Protection Plan:

Agriculture was Haywood County’s 3rd largest

industry;

More than 80 percent of the county’s prime

farmlands had been lost;

Haywood County had more full-time farmers

than 20 years prior; and

Haywood County’s Voluntary Agricultural

District program had more landowners

enrolled than any other program in North

Carolina.68

Prime Farmland

The United States Department of Agriculture (USDA)

defines prime farmland as, “Land that has the best

Importance of Farmland Preservation in North Carolina

(Excerpts from the North Carolina Agricultural Development and Farmland Preservation Trust Fund 2009 Annual Report)

Economic

Agribusiness is the number one industry in North Carolina, which generates more than $70 billion annually, and plays an integral part in the economic status of the state.

The ability to purchase and consume products that are produced on local farms gives consumers the advantage of fresh food at a more reasonable cost and also supports the local economy. Active agricultural land also creates a range of job opportunities, from farming to food processing and packaging.

Environmental

Farm and forestlands help protect the environment, wildlife, and also provide clean air and water. Soils and forests filter out contaminants, reducing the risk of flooding, and serving as a recharge area for water.

These lands also house large amounts of carbon dioxide, thus helping to maintain the homeostatic nature of the environment and reducing the threat of drastic climate change.

Cultural Heritage

Working farmlands and rural scenery are a deeply-rooted aspect of North Carolina’s history. This cultural heritage is what makes the state so appealing to both its residents and visitors.




Thickety Road Area.


combination of physical and chemical characteristics for producing food, feed, forage, fiber, and

oilseed crops and that is available for these uses. It has the combination of soil properties, growing

season, and moisture supply needed to produce sustained high yields of crops in an economic

manner if it is treated and managed according to acceptable farming methods.”69

Prime farmlands tend to have soils with low to moderate slopes, that drain well, and that are not

highly erodible. They require minimal inputs of energy and economic resources in order to produce

crops. The USDA values such land because of its potential to help the country meet its short and

long-term needs for agricultural products.

In Haywood County, prime farmlands tend to be located

in river and stream valleys. The characteristics that make

them ideal for farming also tend to make them attractive

for development activities. Map 9, Farm Uses, depicts

the prime farmlands in the Study Area, as identified by

the USDA. The County’s Farmland Preservation Plan

recommends protecting prime farmlands as well as

designated farmlands of state and of local importance

because of how limited a resource such land is in

Haywood County. It identifies communities that should

be focus areas for active farmland preservation efforts because they have the most productive soils

and are already centers of agricultural activity. Although the Clyde area is not specifically included

on the list of focus areas, it has farmland that is worthy of conservation and that can contribute to

the County’s farmland preservation goals.

Farmland Preservation Tools and Resources

There are many tools and resources available to help communities and landowners preserve

farmland and support agricultural activities. Several are described below. Please refer to the

Haywood County Farmland Preservation Plan for a more comprehensive review of existing farmland

conservation efforts and agricultural protection tools.

Voluntary Agricultural Districts

N.C.G.S. Article 61, Agricultural Development and Preservation of Farmland, gives local governments

the authority to enact certain programs to encourage farmland preservation and to help grow,

develop, and sustain family farming in the state. One program allows local governments to adopt

farmland preservation ordinances that establish Voluntary Agricultural District (VAD) programs.

VAD programs are intended to raise awareness of agriculture and its contributions to the

community and to protect farms from nuisance suits and other issues that may arise from

encroaching development.

Haywood County enacted a Farmland Preservation Ordinance in 1994 to establish VADs. The

ordinance applies to the unincorporated areas of the county (including municipal ETJs). Farmland



Quality Of Life

must meet certain requirements to be part of a VAD. The landowner enters into a revocable

conservation agreement with the County that prohibits non-farm use or development on the

property for 10 years (except for the creation of up to 3 lots). A VAD landowner is eligible for

certain benefits such as waivers of water and sewer assessments, signs publicizing the VAD status of

the property, and eligibility for farmland preservation funds.

In 2007, the County added Enhanced Voluntary Agricultural Districts (EVADs) to its program. The

main differences between the VAD and EVAD programs are that the 10-year conservation

agreement is not revocable and is automatically renewed every 3 years, the landowner may receive

up to 25 percent of gross sales from the sale of nonfarm products and still qualify as a bona fide

farm, and the property is eligible to receive a higher percentage of funds under agricultural cost

share programs.

When the Haywood County Farmland Preservation Ordinance first took effect, State law did not

authorize cities and towns to have their own VAD programs. However, a town and a county could

mutually agree to have the county administer its program within the town limits. In 2005, cities and

towns gained the authority to have local programs.

A 2011 map from the Haywood Soil and Water Conservation District (HSWCD) shows the VADs and

EVADs within Haywood County, including parcels in both the Clyde corporate limits and its ETJ. The

HSWCD was not aware that some of the parcels in the Clyde area fell within the town limits. The

Town of Clyde had not enacted a local VAD program and the Town and Haywood County had no

agreement to enable the County to administer its program within the town limits. Map 9, Farm

Uses, shows the lands in the Study Area that were shown on the HSWCD’s 2011 VAD/EVAD map.

Based on the HSWCD information, the Study Area has a total of 92.8 acres in a VAD (58.9 acres in

the ETJ and 33.9 acres in the Clyde town limits). All of the land within the Study Area that is shown

as being in a VAD is also being taxed for its present use value by the County (see below). Map 9

shows that not all VAD land is considered prime farmland by the USDA.

Currently, the parcels inside the Clyde town limits should not technically be considered as enrolled

in a VAD/EVAD program. If Clyde wants properties within its town limits to have access to a

VAD/EVAD program, it could adopt a farmland preservation ordinance (and appoint an agricultural

advisory committee to administer the VAD/EVAD program) or it could request that Haywood County

consider applying its ordinance within the town limits. Because Haywood County has an established

program and has already been working with some of the farms in Clyde, the Town and landowners

would probably best be served if the County program could be extended (formally) into the Clyde

town limits.

Present Use Value Taxation

North Carolina’s tax laws allow counties to assess certain agricultural, horticultural, and forest lands

at their present use value as farmland rather than their market value for future use (residential,

commercial, etc.). Landowners must apply to the county in order for present use value taxation to




apply. Map 9, Farm Uses shows the 54 parcels within the Study Area that are subject to present use

value taxation by Haywood County.

Land Use Regulations and Agriculture

Counties must exempt bona fide farms from zoning regulations; however cities and towns are

permitted to regulate farms. The Town of Clyde’s Zoning Ordinance exempts bona fide farms in its

town limits and ETJ from regulation except that non-farm uses of the property are subject to

regulation.

Per N.C.G.S. § 160A-383.3, cities and towns may provide flexibility in their land use regulations for

farming operations located within city or county VADs/EVADs. For example, a community’s zoning

ordinance may allow farms to have on-farm sales, pick-your-own operations, agritourism, and other

activities incidental to farming (as defined in N.C.G.S. § 106-581.1).

Some communities have provided additional protection for agricultural uses through their

subdivision regulations. For example, subdivision developers might be required to provide a

vegetative buffer of a certain width between proposed subdivisions and existing agricultural uses.

Some ordinances require that notice be provided on a subdivision plat if a VAD/EVAD is within a

certain distance of the subdivision.

Future Land Use

The Land Use Element proposes a Rural Residential/Agricultural future land use designation for

parts of the Study Area, mainly those located in the Clyde ETJ, where public water and/or sewer is

unavailable and unlikely to be extended in the future. The category encompasses areas that have

prime farmland, land in VADs, and/or land taxed at its present use value. It also contains lands with

slopes greater than 40 percent and other undeveloped land located in the 100-year floodplain. The

Rural Residential/Agricultural category is intended to highlight the parts of the Study Area that the

Town of Clyde would like see retain their rural character.

The Rural Residential/Agricultural future land use designation itself will not ensure that such areas

will continue to have low density residential, agricultural, open space, and conservation uses. The

Town would need to consider what other tools, such as some of those discussed above, and

partners would help it implement its goals.



Quality Of Life

Pigeon River in Clyde.


The Pigeon River

One of the most defining features of Clyde and the Study Area is the Pigeon River. Most of the other

elements in this Land Use Plan make references to it, not only because of its significant physical

presence but also because of how it serves and impacts the area. The Pigeon River has been both a

blessing and a curse. The Town of Clyde probably would not have been established without it, yet it

is one of the town’s greatest threats.

The Pigeon River was a frequent subject in the Community

Survey’s written comments, which ranged from the need

to clear the river and river banks of debris and trash to the

desire to see a greenway and parks along the river.

Community visioning exercise participants contributed

ideas about how areas along the river could be used to

develop a riverwalk, greenways, trails, and parks.

In spite of the flood risks and other challenges presented

by the Pigeon River (discussed in other Elements), the river and its floodplain are natural resources

that provide important environmental services. The river also has the potential to provide other

benefits to the community. The Community Survey and visioning exercise results suggest that the

public recognizes the recreational opportunities the river corridor presents. The organizers of the

Blue Ridge Breakaway (discussed in the Downtown Revitalization and Economic Development

Element) have incorporated the Pigeon River and its crossing in downtown Clyde into several of the

event’s bicycle routes. If Clyde develops as the bicycling hub of Haywood County, as envisioned in

the Haywood County Comprehensive Bicycle Plan, perhaps the Pigeon River will be a focal point.

The community will need to find ways to overcome challenges, such as economic conditions, the

threat of flooding, and limited access to some properties, if it wants to attract investment to help

revitalize areas along the Pigeon River. It must also consider the benefits and costs associated with

future development activities and how they may impact the natural functions of the river, the

recreation opportunities presented by the river, and public safety concerns, among other factors.

If people consider the Pigeon River as a community asset, they may generate some new ideas

regarding how the river can be incorporated into parks, recreation, and open space planning, how it

might support community events and activities, and/or how it might play a role in business

development and downtown revitalization. They may also be more inclined to participate in efforts

to protect it.

Community Events

Community events in Clyde are yet another reflection of its small town character. Currently, the

Town of Clyde and a Veterans’ group host an annual Veteran’s Day Celebration on the Town Square.

Clyde Elementary School began holding an annual 5K and Family Fun Run in 2011. Clyde is also the




site of an annual bicycle rodeo that promotes bicycle safety to children. A local car club sponsors a

car show on the Town Square on a couple of Saturday nights per month during the spring and fall.

During the development of this Land Use Plan, the Town officials and staff indicated that the Town

does not have a formal organizational structure or procedures for coordinating and executing

community and other special events. Town staff members and some volunteers handle most of the

responsibilities associated with such events, particularly those organized by the Town or that

require town services. The Public Facilities, Services, and Infrastructure Element addresses and

includes recommendations for the Town of Clyde regarding the development of policies and

procedures for special events.

Although there are not many events held in Clyde each year, it could benefit from having a new or

existing committee that can provide oversight to help avoid potential scheduling conflicts, to

recommend policies and procedures for special events, etc., to the Board of Aldermen, to ensure

that the proper procedures are followed and permits (if any) are obtained or issued, and to take on

some of the work that town staff members currently perform.

Community Facilities

Existing Facilities

The Public Facilities, Services, and Infrastructure Element provides an inventory of the public and

community facilities located in the Study Area. Many of the facilities are available for community

use for meetings, special events, and other activities including Clyde’s town square, the town hall,

Lynn’s Park, Clyde Park, Clyde Elementary School, Central Haywood High School, Haywood

Community College, the Shook Museum, and area churches.

The Public Facilities, Services, and Infrastructure Element also addresses and includes

recommendations regarding the Town of Clyde’s need to develop policies and procedures for the

use of its facilities by the public. Haywood County Schools facilities may be used by the community

provided such use does not conflict with school use, state and local laws, or the care and

maintenance of the facilities. The Haywood County Board of Education has a written policy on the

use and care of school facilities. It addresses the facilities that may be used, the requirements

associated with doing so, whether school staff must be on site, usage fees, and the procedures for

obtaining approval for use. Use of the other facilities listed above is governed by the policies and

procedures of each particular institution.

Community Facility Needs

In response to the Community Survey question regarding the importance of certain factors in

planning for Clyde’s future, 61 percent of respondents assigned both “Activities/Services for the

Elderly” and “Activities/Services for Youth” the highest rating of “Very Important.” The survey also

asked what types of development should be encouraged in the Clyde area. Respondents rated both

public facilities and a community center in the top 5 types that should be “Strongly Encouraged.” A



Quality Of Life

number of written comments from survey participants also stressed the need for some type of

community / senior / recreation center, additional public spaces such as parks and recreation areas,

and an amphitheater. Visioning exercise participants also foresaw a community / senior center as

part of Clyde’s future

As described briefly in the Public Facilities, Services, and Infrastructure Element, the Town of Clyde is

in the early stages of planning for two public facilities projects that should help address some of the

identified needs: (1) a new park as part of a flood protection project off Thickety Road and (2) a

community / senior center.

Quality of Life

The aspects that comprise a community’s character often contribute to the quality of life of its

residents. Community input and discussions among Clyde elected officials, staff, and volunteer

board members helped identify additional factors and features of the Study Area that, if retained

and enhanced, will continue to improve the lives of residents, business owners, and others who

spend time there.

Community Health

In its early days, Clyde became known, in part, as a place for those seeking to improve their health.

While only a few vestiges of its past as a summer respite remain, the Clyde area has become a

center for the provision of healthcare services in Haywood County and the region.

As described below, Study Area residents are interested in both their own health and that of the

community. They appreciate what Clyde has to offer in terms of parks and recreation but are also

interested in having more opportunities for physical activity. Clyde’s elected and appointed officials

as well as staff have expressed interest in finding ways to make fresh, local foods more readily

available, such as through the establishment of a farmers’ market. Such endeavors could provide

community health and economic benefits.

Healthcare Facilities

Community Survey results showed that 80 percent of respondents rated Haywood Regional Medical

Center (now MedWest Haywood) as “Very Important” in terms of planning for Clyde’s future,

making it the third highest-rated factor out of 21 listed on the questionnaire (behind Public Safety at

84 percent and Water Service at 82 percent). Participants in the visioning exercise thought that

Clyde would continue to attract and retain state of the art, modern, medical facilities. The

community input suggests that the Town find ways to help citizens maintain and improve their

health and well-being and also to encourage the development and retention of quality healthcare

facilities.




Existing Facilities and Services

Having MedWest Haywood, a not-for-profit public hospital, situated just beyond the Study Area’s

western boundary on Hospital Drive, provides Clyde area residents with easy access to medical care.

MedWest’s facilities and services include, but are not limited to: a 189-bed hospital; an emergency

department; an urgent care center; home healthcare; a health, fitness, and rehabilitation center;

and several physicians’ groups (general practice and specialists).

In addition to those mentioned above, there are some medical offices with multiple physicians near

the Study Area, including Midway Medical Center, a family physicians’ practice on Carolina

Boulevard, east of the Study Area, and Mountain Medical Center (recently acquired by MedWest),

which has internal medicine physicians and several specialists, on Doctor’s Drive, west of the

MedWest Haywood campus. There are also a number of smaller medical practices, several dentists

and dental groups, a dialysis center, counseling services, and other healthcare providers in and near

the Study Area.

Future Facilities and Services

As indicated in the Downtown Revitalization and Economic Development Element, the 2011

Comprehensive Economic Development Strategy (CEDS), prepared by the Southwestern Commission

for Region A, indicated that Pharmaceuticals and Medical Technologies was one of several national

industry clusters that are growing in the region. The CEDS also noted importance of the Hospital,

Labs and Specialized Medical Services business cluster to the region.

Some of the healthcare service providers located in and near the Study Area operate their primary

and/or other offices elsewhere. This suggests that there may be opportunities for Clyde to draw

other branch medical offices.

HCC may also play a role in attracting additional healthcare facilities to the Clyde area in the future.

In 2012, it offered programs of study in some healthcare related fields including: Healthcare

Business Informatics; Medical Assisting; Medical Office Administration; Nursing and Therapeutic

Massage. MedWest has taken part in HCC’s job fairs.

With an asset such as MedWest Haywood so close to Clyde, finding ways to encourage the

development of additional medical facilities in the Study Area could support the healthcare needs of

residents while contributing to the economy and, for properties within the town limits, Clyde’s tax

base. The availability of reasonably-priced land with appropriate infrastructure, a trained

workforce, a customer base, the proximity of suppliers and related businesses, the quality of life an

area offers, and numerous other factors play into business and industry location and expansion

decisions. If the Town of Clyde is interested in actively trying to attract additional healthcare-related

businesses, it should consider working in partnership with local, regional, and/or state economic

development organizations and others to study the potential for healthcare businesses to locate in

the area and, if appropriate, to develop a strategy to market the area to such businesses.



Quality Of Life

Parks and Recreation

Almost one-half (46 percent) of respondents to the Community Survey placed parks and recreation

in the middle of their rankings of the factors important in planning for Clyde’s future. Similarly, 52

percent placed them in the middle of the scale on the question of what types of development

should be encouraged in Clyde in the future. Despite the average ratings of parks and recreation in

the formal survey questions, numerous respondents submitted written comments expressing

support for additional parks, outdoor and indoor recreational areas, facilities, and activities,

sidewalks, walking and bicycling paths and trails, greenways, and open space. A number of

respondents referred specifically to the health and fitness benefits of recreation and suggested that

recreation and fitness opportunities should be available for people of all ages.

Visioning exercise participants pictured Clyde as having a walking trail or greenway along the Pigeon

River and other walking and bicycling paths and routes throughout the community in the future.

Some cited the health benefits of walking, bicycling, and other physical activities in their comments.

The Public Facilities, Services, and Infrastructure Element reviews the existing, mainly public, parks

and recreation facilities within the Study Area. It also refers to some of the existing plans that

address parks and recreation needs and discusses facilities that may be provided in the future

(subject to the availability of funding).

The Haywood Regional Health and Fitness Center, located less than one-half mile west of the Study

Area, is noteworthy due to its proximity to Clyde. It is a 54,000 square foot facility, situated on the

MedWest Haywood campus, that is open to people of all ages and offers professional staff, fitness

equipment, lap and water therapy pools, group fitness classes, wellness programs, rehabilitation

services, and many other activities and resources.

Local Foods

At several points in the Clyde Land Use Plan development process, the Land Use Planning

Committee discussed the potential suitability of some of the land in the downtown area, including

buyout properties, for a farmers’ or tailgate market. The Committee also discussed the

development of community gardens on flood buyout property. Some of the buyout parcels near

downtown were already being leased by adjoining property owners for garden space. According to

the Haywood County Recreation Department, a local organization will use at least one of the buyout

properties for a community garden. Several written comments from the Community Survey

supported the farmers’ market and community garden ideas. As the Committee worked to refine

the Land Use Plan’s vision and goals, it saw an obvious link between community health and access to

fresh, locally grown, food.

There are several existing farmers’ markets in Haywood County:

Canton Tailgate Market in Canton (parking lot next to Municipal Building);

Haywood's Historic Farmers Market in Waynesville;




Waynesville Tailgate Market in Waynesville; and

Haywood Regional Medical Center Tailgate Market at the Haywood Regional Health &

Fitness Center near Clyde.

None of the above markets operate seven days a week or year-round, therefore there may be an

opportunity to have a viable market in Clyde, as well.

There are a number of resources available to assist communities interested in developing and

promoting farmers’ markets such as: Haywood County Cooperative Extension; the Appalachian

Sustainable Agriculture Project; the Mountain Market Tailgate Association; the North Carolina

Department of Agriculture and Consumer Services, Marketing Division; the Center for

Environmental Farming Systems; the USDA, and others.

Locally produced food is also becoming more available through other sources in Haywood County.

The Buy Haywood Market Development Project, managed by the Haywood County Economic

Development Commission, was created to help local farmers promote their products to consumers.

Buy Haywood has helped farmers market their products to grocery stores, which, in turn use a

“Haywood County – North Carolina Mountain Grown” logo to denote locally grown products. Buy

Haywood also promotes local farms that sell products on site.

Housing

Having access to housing that is affordable, livable, and safe is fundamental to one’s quality of life.

Clyde has a variety of housing types in different price ranges. It also has an adequate supply of

housing units given its population and expected future growth. However, some residents may not

find sufficient options at a cost they can afford. Other residents, as they age, may need a different

type of housing than they currently occupy. They, too, may have limited options in the future.

Housing Units

The number of housing units in Clyde grew from 425 in 1980 to 619 in 2010, a 45.6 percent increase

over 30 years. Table 46 shows that the number of units more than doubled between 1990 and

2000. However, the rate of growth in housing units slowed considerably to only 2 percent between

2000 and 2010, reflecting (and slightly lagging behind) the decline in the size of the Town’s

population between 2000 and 2010 (see Community Profile).



Quality Of Life

Table 46: Town of Clyde Housing Characteristics, 1980 - 2010

1980 1990

Percent Change 1980-1990

2000


2010



Housing Units 425 475 11.8% 607 27.8% 619 2.0% 45.6%

Occupied Housing Units 380 431 13.4% 547 26.9% 546 -0.2% 43.7%

Owner Occupied 240 303 26.3% 347 14.5% 334 -3.7% 39.2%

Renter Occupied 140 128 -8.6% 200 56.3% 212 6.0% 51.4%

Vacant Housing Units 45 44 -2.2% 60 36.4% 73 21.7% 62.2%

Source(s): U.S. Census Bureau

Most of the housing units in Clyde are single-family dwellings. The 2006-2010 American Community

Survey (ACS) estimates that there were approximately 381 single-family dwellings (both detached

and attached units), excluding mobile homes, in the Town of Clyde (see Table 47). Such single-

family dwellings comprised approximately 67.8 percent of the estimated 562 dwelling units in Clyde.

An estimated 81 mobile homes comprise 14.4 percent of Clyde’s dwellings. The total number of

single-family dwelling units increases to 462 or 82.2 percent of all housing units if mobile homes are

included.

According to the ACS, approximately 100 (17.7 percent) of the housing units in Clyde are in multi-

family structures. Most of the multi-family structures contain fewer than 10 units.

Table 47: Number of Housing Units per Structure in Clyde (2006-2010 Estimates)

Estimate Percent

Total units 562 100.0%

1-unit, detached 362 64.4%

1-unit, attached 19 3.4%

2 units 27 4.8%

3 or 4 units 10 1.8%

5 to 9 units 47 8.4%

10 to 19 units 4 0.7%

20 or more units 12 2.1%

Mobile home 81 14.4%

Source(s): 2006-2010 American Community Survey

Home Ownership

Since 1980, the trends in owner occupancy of housing units have varied in Haywood County

depending on location. As shown in Figure 7, owner occupancy has remained above 72 percent for

the county as a whole, reaching a peak of 77.4 percent in 2000. Clyde’s owner occupancy rate rose




from 62.2 percent in 1980 to a peak of 70.3 percent in 1990. It has dropped ever since (though less

dramatically in the past 10 years), and went below the 1980 rate to 61.2 percent as of the 2010

Census. With the exception of Maggie Valley, Haywood County and the towns within it saw their

owner occupancy rates drop between 2000 and 2010.

Figure 7: Owner Occupied Housing Units as Percentage of Occupied Housing Units


Median Home Values

Between 1980 and 2000, Haywood County’s median home value for owner occupied homes was

lower than that of North Carolina as a whole. Of the municipalities within the county, Clyde had the

second lowest median home values during the same period (see Table 48). Median home value

figures from the 2010 Census are not available.

Table 48 shows that median home values for the state, Haywood County, and the towns within the

county increased between 1980 and 2000. The degree to which they grew varied, however.

Between 1980 and 1990, Clyde and Canton (which had the lowest median home values of the

communities within Haywood County at that time), had higher rates of increase in values compared

to Waynesville and Maggie Valley. Their rates were below those of Haywood County and the state,

however.

63.2% 70.3%

63.4% 61.2%

72.4% 70.5%

70.5% 68.2%

56.1%

81.5%

70.7% 74.4%

62.2% 61.9%

65.4%

57.7%

72.0%

77.1% 77.4%

74.1%

50%

55%

60%

65%

70%

75%

80%

85%

90%

95%

100%

1980 1990 2000 2010

Pe

rce

nt

Year

Clyde

Canton

Maggie Valley

Waynesville

Haywood County



Quality Of Life

Table 48: Median Value of Owner-Occupied Housing Units (1980-2000 Census)

1980 1990

% Change 1980-90

2000 % Change 1990-2000

% Change 1980-2000

Clyde $34,000 $55,500 63.2% $86,600 56.0% 154.7%

Canton $29,500 $48,400 64.1% $75,300 55.6% 155.3%

Maggie Valley $48,300 $65,000 34.6% $101,700 56.5% 110.6%

Waynesville $35,200 $56,700 61.1% $93,400 64.7% 165.3%

Haywood County $33,800 $59,100 74.9% $99,100 67.7% 193.2%

North Carolina $36,000 $65,300 81.4% $108,300 65.8% 200.8%


Between 1990 and 2000, median home values in North Carolina, Haywood County, and the towns in

within the county (except for Waynesville) continued to rise but at a lower rate than in the prior

decade. Clyde, Canton, and Maggie Valley had similar median home value growth rates (between

55.5 and 56.5 percent), all of which were lower than those of Waynesville, the county, and the state.

Between 1980 and 2000, median housing values doubled in North Carolina and almost doubled in

Haywood County. Clyde’s median home values grew one and one-half times during that period.

The 2006-2010 ACS estimates for median value of owner-occupied homes are provided in Table 49.

Such estimates are not directly comparable to decennial Census figures; however the 2000 Census

values are included for reference.

Table 49: Median Value of Owner-Occupied Housing Units (2000 Census Figures and 2006-2010 American Community Survey Estimates )

2000 Census

2006-2010 Estimates

Estimated % Change 2000-2010

Clyde $86,600 $141,400 63.3%

Canton $75,300 $141,700 88.2%

Maggie Valley $101,700 $220,700 117.0%

Waynesville $93,400 $146,200 56.5%

Haywood County $99,100 $158,200 59.6%

North Carolina $108,300 $149,100 37.7%

Source(s): U.S. Census Bureau, 2006-2010 American Community Survey

Clyde had the lowest median value for owner-occupied homes in Haywood County according to the

2006-2010 ACS estimates, yet the value increased at a higher rate than values in Waynesville and

Haywood County between the releases of the 2000 Census data and the 2006-2010 ACS.




Cost of Rental Housing

Median gross rent refers to the monthly rental payment plus the estimated average cost of utilities

and fuel if they are paid for by the renter in addition to the rent.

Table 50 compares median gross rents for Haywood County, the municipalities within the county,

and the state over the past 30 years. The table uses decennial census figures for 1980, 1990, and

2000. Because comparable figures from the 2010 Census are not available, the table includes 2006-

2010 ACS estimates for information purposes.

In 1980 and 1990, Haywood County had lower median gross rents than North Carolina as a whole.

However, the rents in Clyde were higher than the state figures in those years. In 2000, Clyde’s

median gross rent continued to exceed that of Haywood County but the statewide rent was higher.

The 2006-2010 ACS estimates show that the median gross rent in Clyde was increasing at a much

lower rate relative to Haywood County and the state. As a result, Clyde has the lowest estimated

median gross rent (between 2006 and 2010) of the communities shown in Table 50.

Table 50: Median Gross Rent for Renter-Occupied Housing Units in North Carolina, Haywood County and Municipalities (1980 – 2010)

1980 1990

% Change 1980-1990

2000 % Change 1990-2000

Estimate 2006-2010

% Change 2000 - 2010

Clyde $192 $333 73.4% $474 42.3% $556 17.3%

Canton $147 $272 85.0% $375 37.9% $700 86.7%

Maggie Valley $229 $275 20.1% $531 93.1% $754 42.0%

Waynesville $172 $287 66.9% $432 50.5% $626 44.9%

Haywood County $177 $305 72.3% $455 49.2% $685 50.5%

North Carolina $205 $382 86.3% $548 43.5% $718 31.0%

Source(s): U.S. Census Bureau; U.S. Census Bureau, 2006-2010 American Community Survey

Table 51 breaks down the 2006-2010 ACS gross rent estimates for Clyde to show how many rental

housing units had rent payments at various amounts. Clyde has a higher percentage (38.9) of rental

units in the $500 to $749 rent category compared to the other categories. Approximately two-thirds

(67 percent) of the rental units in Clyde have gross rents below $750.



Quality Of Life

Table 51: Estimated Gross Rent for Renter-Occupied Housing Units – Town of Clyde (2006-2010 Estimates)

Estimated Number of Rental Units

Estimated Percent of Rental Units

Occupied units with rent payments 167 100.0%

Less than $200 0 0.0%

$200 to $299 3 1.8%

$300 to $499 44 26.3%

$500 to $749 65 38.9%

$750 to $999 48 28.7%

$1,000 to $1,499 7 4.2%

$1,500 or more 0 0.0%

Source(s): 2006-2010 American Community Survey

According to the United States Office of Housing and Community Development (HUD), housing is

considered affordable if the occupant(s) is/are spending no more than 30 percent of gross income

on gross housing costs.70 Households are considered cost burdened if they spend more than 30

percent of their income on housing. Those spending more than 50 percent of their income on

housing are considered to be severely cost burdened. Approximately 42.5 percent of households

renting housing units in Clyde are spending 30 percent or more of their income on gross rent, as

shown in Table 52.

Table 52: Town of Clyde - Gross Rent as a Percentage of Household Income (2006-2010 Estimates)

Percent of Household Income Estimated Number of

Rental Units Estimated Percent of

Rental Units

Occupied units with rent payments 167 100.0%

Less than 15.0% 25 15.0%

15.0 to 19.9% 25 15.0%

20.0 to 24.9% 17 10.2%

25.0 to 29.9% 29 17.4%

30.0 to 34.9% 0 0.0%

35.0% percent 71 42.5%

Source(s): U.S. Census, 2006-2010 American Community Survey

Annually, HUD determines for each state, metropolitan area, and county in the nation the Fair

Market Rent (FMR) for rental housing ranging from efficiencies to 4-bedroom units. The FMR is the

40th percentile of gross rents for typical, non-substandard, rental units in an area. For federal fiscal

year (FFY) 2011, the FMRs for units of various sizes in Haywood County are shown in Table 53.




Table 53: 2011 Fair Market Rents for Rental Housing Units in Haywood County Efficiency 1 Bedroom 2 Bedroom 3 Bedroom 4 Bedroom

Fair Market Rent $515 $516 $644 $834 $1,079

Source(s): US Office of Housing and Urban Development

Each year, the National Low Income Housing Coalition (NLIHC) releases a report titled Out of Reach

which assesses the cost burden renters face given their wages and market rents in their areas. FFY

2011 data for Haywood County and North Carolina are summarized in Table 53.

Table 54: 2011 Rental Housing Costs Relative to Wages for Haywood County and North Carolina

Haywood County North Carolina

Estimated Mean Renter Wage $9.57 per hour $11.52 per hour

Rent Affordable at Mean Renter Wage $498 per month $599 per month

Fair Market Rent for 2-Bedroom Unit $644 per month $718 per month

Wage Needed to Afford 2-Bedroom Fair Market Rent Unit $12.38 per hour $13.81 per hour

Gap Between Estimated Mean Renter Wage and Wage Needed to Afford 2-Bedroom Fair Market Rent Unit

$2.81 per hour $2.29 per hour

Full-time Jobs at Mean Renter Wage Needed to Afford 2 Bedroom Fair Market Rent Unit

1.3 1.2

Source(s): National Low Income Housing Coalition, Out of Reach 2011, June 2011.

For those that are earning the federal and state minimum wage rate of $7.25 per hour, the cost

burden for rental housing is even higher. In Haywood County for 2011, the gap between minimum

wage and the wage needed to afford a 2 bedroom FMR unit was $5.13. The number of minimum

wage jobs needed to afford a 2-bedroom FMR unit in 2011 in Haywood County was 1.7.

The imbalance between income levels and rental housing costs found in Clyde and Haywood County

is a common problem across the United States. The Preface to the Out of Reach 2011 report states:

The data in Out of Reach reveal that the shortage of affordable rental housing is a

national problem, affecting urban, suburban, and rural areas alike. While rents are

often lower in rural areas, correspondingly lower incomes and a shortage of rural

rental supply means that rural renters often face overcrowding and a lack of high

quality choices in addition to unaffordable housing costs.71

Age and Condition of Housing

According to the 2006-2010 ACS, almost one-half (48.4 percent) of the 562 housing structures

estimated to be within the Town of Clyde have been built since 1980 (see Table 55). More than one-

quarter (28.5 percent) of Clyde’s current housing stock was built in a single decade: the 1980s.



Quality Of Life

Table 55: Age of Housing in Clyde (2006-2010 Estimates)

Construction Period Estimated Number of

Housing Structures Percent of Housing

Structures

Since 2000 44 7.8%

1990 to 1999 68 12.1%

1980 to 1989 160 28.5%

1970 to 1979 60 10.7%

1960 to 1969 81 14.4%

1950 to 1959 31 5.5%

1940 to 1949 47 8.4%

1939 or earlier 71 12.6%

Total 562 100.0%

Source(s): U.S. Census Bureau, American Community Survey 2006-2010.

While the age of housing structures and units can provide some idea of the condition of an area’s

housing stock, there are some other indicators, such as the lack of complete kitchen and/or

plumbing facilities and overcrowding.

Incomplete kitchen or plumbing facilities do not appear to be significant issues in Clyde or in Haywood County, as shown in Table 56.

Table 56: Lack of Complete Kitchen or Plumbing Facilities in Occupied Housing Units, Town of Clyde and Haywood County (2006-2010 Estimates)

Clyde Haywood County

Estimated Number of Occupied

Units

Percent of Occupied

Units


Units

Percent of Occupied

Units

Occupied housing units 454 100.0% 26,445 100.0%

Lacking complete plumbing facilities 0 0.0% 107 0.4%

Lacking complete kitchen facilities 0 0.0% 93 0.4%


According to the U.S. Census Bureau, an overcrowded housing unit has more than 1 person per

room. HUD considers having more than 1.5 persons per room to be an aspect of a severe housing

problem. Neither Clyde nor Haywood County appears to have overcrowded housing conditions

according to Table 57.




Table 57: Occupants per Room in Occupied Housing Units, Town of Clyde and Haywood County (2006-2010 Estimates) Clyde Haywood County


Units

Percent of Occupied

Units


Units

Percent of Occupied

Units

Occupied housing units 454 100.0% 26,445 100.0%

1.00 or less occupants per room 448 98.7% 26,225 99.2%

1.01 to 1.50 occupants per room 6 1.3% 206 0.8%

1.51 or more occupants per room 0 0.0% 14 0.1%


Senior Housing

The size of Clyde’s population that is age 65 years and older grew considerably between 1980 and

1990. It grew again, but at a much slower rate, between 1990 and 2000, and then declined between

2000 and 2010 (see Table 58).

In proportion to the town’s population, the 65 years and older age group grew then declined

between 1980 and 2010. During that 30-year period, it comprised just over 20 percent of Clyde’s

population at its peak in 1990 and dropped to its lowest point, 16.4 percent, in 2010.

Table 58: Town of Clyde Population 65 Years of Age and Older, 1980 - 2010

1980 1990

Percent Change

1980-1990 2000

Percent Change

1990-2000 2010

Percent Change

2000-2010

65+ Population 171 217 26.9% 238 9.7% 201 -15.5%

Total Population 1,008 1,041 3.3% 1,324 27.2% 1,223 -7.6%

65+ as Percentage of Total Population

17.0% 20.8% -- 18.0% -- 16.4% --


Clyde had fewer persons aged 65 or older in 2010 compared to 2000 and that age group grew

smaller in proportion to the overall town population between 1990 and 2010. However, the

number of one person households in Clyde in which the householder was 65 or more years of age

grew at varying rates between 1980 and 2010 (see Table 59). Between 2000 and 2010, the number

of such households grew 23.2 percent to 69. Such 69 households comprised almost 40% percent of

the 174 one person households in Clyde and 12.6 percent of all of the 546 households in Clyde.



Quality Of Life

Table 59: One Person Households Age 65 and Older, 1980 – 2010

1980 1990 % Change 1980-1990

2000 % Change 1990-2000

2010 % Change 2000-2010

Town of Clyde 35 48 37.1% 56 16.7% 69 23.2%

Haywood County 1,433 2,368 65.2% 2,837 19.8% 3,339 17.7%

North Carolina 156,940 230,016 46.6% 270,141 17.4% 341,864 26.6%


The data suggest that the Clyde area may need additional housing options and/or units in the future

that can accommodate senior citizens, particularly those capable of living alone. However, the

decline in the town’s overall population over the past decade may not create much demand for

additional housing. Existing homes may, therefore, continue to serve the aging population,

particularly if they can be adapted to meet senior citizen needs.

Changes in the types and/or levels of community services, such as transportation, may also be

needed to allow older residents to continue to live at home. The Town of Clyde currently offers a

service to check on elderly and/or disabled persons in the community. The police department will

call on a daily basis those elderly and/or disabled persons who register with the Town to receive the

service.





1. Goal: Maintain and enhance Clyde’s small-town character and sense of community.

1.1. Recommendation: Encourage development that enhances the community in terms of its

purpose, location, scale, design, etc.

Strategies:

a. Create or improve design, landscaping, signage, and other development

standards that support and implement the Town’s vision and goals. [Same as

Strategy 1.5.c. in this Element.]

b. Create incentives to encourage development that meets the goals identified in

this Land Use Plan and that is compatible with the character of the Town of

Clyde.

1.2. Recommendation: Preserve, protect and enhance the Town’s historic assets.

Strategies:

a. Continue to support the work of the Town’s Historic Preservation Commission.

b. Encourage preservation, restoration, and use of historically and/or

architecturally significant structures.

c. Find ways to protect the Shook House and other historic, architecturally, and/ or

culturally significant structures and properties from incompatible development.

d. Protect the immediate vicinity of historical structures through a designation of

local historic properties, local historic landmarks, and/or historic districts or

other protections, such as overlay districts with design guidelines for

development on nearby properties.

1.3. Recommendation: Preserve the character of rural areas.

Strategies:

a. Amend zoning, subdivision and other land use ordinances to allow for

conservation-based residential development. Such development could be

allowed on a voluntary basis with options and/or incentives if used. It could also

be mandatory in certain areas.

b. Provide incentives to encourage well-designed, higher density, and mixed-use

development in areas with existing or planned services. [Same as Strategy 1.2.c.

in the Land Use Element.]

c. Consider entering into a memorandum of understanding with Haywood County

to have Haywood County administer its Farmland Preservation Ordinance within



Quality Of Life

the Clyde town limits in order to provide farm owners who are eligible and

choose to participate with the same program benefits as those participating in

the Haywood County program.

d. Help raise awareness of Haywood County’s Farmland Preservation Ordinance

among owners of farmland in Clyde’s extraterritorial jurisdiction and town limits.

e. Continue to allow agricultural uses in the Clyde Zoning Ordinance.

f. Consider amending the Clyde Zoning Ordinance to provide flexibility for farming

operations located within VADs/EVADs, as allowed by N.C.G.S. § 160A-383.3.

g. Permit farmers' markets / tailgate markets in the downtown area to provide local

farmers with a location to sell their products.

h. Conduct soil quality assessments and create plans for conservation and

agricultural development based upon the findings.

1.4. Recommendation: Treat the Pigeon River as a community asset.

Strategies:

a. Continue to work to secure easements for riparian buffers for the Pigeon River

Buffer Project.

b. Develop the park along the Pigeon River proposed as part of the Pigeon River

Buffer Project.

c. Study how the rear areas of buildings and lots near or adjoining the Pigeon River

can be used to support future facilities or activities on or along it.

d. Consider developing, perhaps in partnership with other local governments in the

region, a Pigeon River corridor plan.

1.5. Recommendation: Continue to engage in and support community beautification efforts.

Strategies:

a. Seek funding to implement the Carolina Boulevard Streetscape Improvement

Plan.

b. Create and implement plans to enhance the gateways/entrances to Clyde.

c. Create or improve design, landscaping, signage, and other development

standards that support and implement the Town’s vision and goals. [Same as

Strategy 1.1.a. in this Element.]

d. Consider whether establishing a nonresidential building maintenance ordinance

would be beneficial for Clyde (see N.C.G.S. § 160A-439).

e. Consider whether to establish a Community Appearance Commission, as allowed

by N.C.G.S. § 160A-451, to study appearance issues in Clyde and make




recommendations regarding enhancing and improving the visual quality and

aesthetic characteristics of the community.

f. Consider establishing design guidelines and/or architectural review committees.

1.6. Recommendation: Support existing and provide additional community gathering places

that offer social, cultural, and/or entertainment experiences for people of all ages.

Strategies:

a. Fund and complete a community center per the Town’s Capital Improvement

Program.

b. Establish an organizational structure to manage the community center facilities

and programming.

c. Organize a committee (or use an existing board or committee) to schedule, plan,

promote, and/or implement community festivals and other events.

d. Develop community facilities at the proposed town park on Thickety Road (in

accordance with flood buyout program standards).

e. Provide additional public spaces.

1.7. Recommendation: Continue to engage and build relationships with community partners

and resources, such as non-profit organizations, churches, civic groups, neighborhoods,

etc., to help implement the Town’s plans and projects while strengthening Clyde’s sense

of community.

Strategies:

a. Establish a volunteer pool.

b. Strive to inform and involve all populations and age groups in project and event

planning and implementation.

c. Identify ways to keep all citizens informed about community activities.

2. Goal: Quality, affordable housing choices for all.

2.1. Recommendation: Provide for a range of housing choices (price, type, quality, density,

rent/own, availability, etc.).

Strategies:

a. Examine demographic trends to assess future housing needs in the Clyde area.

b. Examine current housing inventory and conditions within the town (type,

vacancy, occupancy, etc.).



Quality Of Life

c. Review zoning, subdivision, and other land use ordinances to determine if

barriers exist to providing for the housing needs of the community. Make

adjustments, if needed, compatible with Clyde’s vision and goals for the future.

d. Develop incentives to encourage the development of housing that will meet

future needs as well as the community’s goals.

e. Explore the concept of aging in place and how it may relate to Clyde’s vision and

goals.

3. Goal: Build a healthy community that supports and strengthens the well-being of residents.

3.1. Recommendation: Expand fitness and recreational opportunities (public and private) for

people of all ages and abilities.

Strategies:

a. Plan for additional parks and recreational facilities in cooperation with Haywood

County and the Haywood County Comprehensive System-wide Parks and

Recreation Master Plan.

b. Create a more pedestrian and bicycle-friendly community (see also the

recommendations and strategies under Goal 1 in the Public Facilities, Services,

and Infrastructure Element).

c. Create greater connectivity between parks and recreational facilities, while

improving accessibility by multiple modes of transportation (see also the

recommendations and strategies under Goal 1 in the Public Facilities, Services,

and Infrastructure Element).

d. Promote the parks, recreation, sports, and other fitness facilities and activities

available in and near Clyde.

3.2. Recommendation: Encourage the development of additional medical facilities in the

Clyde area.

Strategies:

a. Work with MedWest Haywood and Haywood Community College in the

promotion of Clyde as a location for medical facilities.

b. Identify areas suitable for the development of medical facilities and zone the

property for this use.

c. Work with private developers to develop medical facilities.




3.3. Recommendation: Provide opportunities for residents to obtain fresh, locally-produced,

foods.

Strategies:

a. Develop a farmers’ market / tailgate market downtown.

b. Organize community gardens on flood buyout properties.

c. Establish a presence in the “Buy Haywood” local food program.


150 | Element Seven: Land Use

Element Seven: Land Use

Existing Land Use

Land uses in the 2012-2022 Clyde Land Use Plan (or CLUP) Study Area are quite varied. Within

approximately 5.5 square miles (3,514 acres) one can find a mix of residential uses ranging from

single-family homes (including manufactured homes) to multi-family structures. There are

educational, cultural, recreational, and other community facilities and services, as well as numerous

churches and other religious institutions. Other non-residential uses include, for example: medical,

dental and veterinary offices; gasoline and automobile service stations; a commercial nursery; a

dance school; a summer camp; a florist; a realty company; an insurance office; a restaurant;

childcare centers; a meat processor; hair salons; a photography studio; and a counseling center.

There are also some small retail establishments selling everything from appliances to military

surplus items. As noted previously, a Dollar General store to be constructed on Carolina Boulevard

will be the only national chain establishment in the Study Area.

There is still a significant amount of land in the Study Area that is not fully developed. Some sizeable

parcels are used for agriculture, horticulture, or forestry while others have very low density

residential or other development.

Existing Land Use

Tax data from the Haywood County Geographic Information System (GIS), personal knowledge of

Land Use Plan Committee members, and site visits by NC DCP staff provided the information used to

identify the current, primary use of land parcels in the Study Area. Five generalized categories were

then used to classify the identified existing land uses as shown in Table 60. Map 10, Existing Land

Use, depicts the existing land uses in the Study Area.


Element Seven: Land Use |151

Table 60: Existing Land Use Categories – Clyde Land Use Plan Study Area

Category Description

Residential Land primarily used for housing and developed at a density of 1 unit per less than 10 acres. For purposes of describing existing land uses in the Study Area, the Residential category is further divided into three classifications: single-family dwellings (excluding manufactured housing), multi-family dwellings, and manufactured housing (including manufactured home parks).

Commercial Land primarily used for offices, retail businesses, personal services, eating and drinking establishments, lodging, entertainment, and related uses. For purposes of the Land Use Plan, the category includes land used for private camps and cemeteries.

Open Land Land primarily used for parks, recreational uses, protected or preserved areas (such as those in conservation easements or set aside as common areas), and similar uses. Lands used for agriculture, horticulture, or forestry production (which includes those parcels taxed by Haywood County at the present use value for agricultural, horticultural, and forest land as well as land within Haywood County Voluntary Agricultural Districts) are also classified as Open Land. This category also includes land developed for residential purposes at a density of 1 unit per 10 or more acres, except that if a parcel contains a manufactured home park, it is classified in the Residential subcategory for manufactured housing.

Social/Cultural Land owned and/or used for public facilities, such as the town hall, the fire department, the highway patrol station, the post office, and the armory. The category also includes public and private schools, including Haywood Community College, health care facilities (other than medical offices), churches and other religious institutions, historic and cultural facilities, and other similar uses.

Undeveloped Land that is vacant, mainly in a natural state, not in active use, developed very little in relation to the size of the parcel, not in permanent conservation, or otherwise unclassifiable. It may include land where construction activity was in progress at the time of the land use inventory. For purposes of the Land Use Plan, it includes parcels that were subject to the flood buyout program following the 2004 floods.

Summary of Existing Land Use Findings

The predominant existing land use within the Study Area is Open Land at 49 percent (see Table 61).

While it occupies the second highest proportion of land within the town limits (30 percent), Open

Land comprises the highest percentage of acreage in the ETJ (52 percent). Some Open Land parcels

are used for agriculture, horticulture, or forestry production. However, it appears that much of the

Open Land in the Study Area includes very low density residential development. As indicated in the

existing land use category descriptions, properties containing residential uses are classified as Open

Land if the residential density is equal to or less than 1 unit per 10 or more acres.

Residential is the second most prevalent existing land use in the Study Area (38 percent) and it

occupies the highest percentage (42 percent) of land in Clyde’s town limits.

Most of the land in the Study Area currently classified as Commercial (14 percent) is found within

the Clyde town limits. The amount of land in Social/Cultural uses is approximately the same in both

the town limits and in the ETJ (6 percent).

Only 3 percent of the land in the Study Area is in the Undeveloped category.



Table 61: Existing Land Uses – Clyde Land Use Plan Study Area, Town Limits, and Extraterritorial Jurisdiction

Study Area Town Limits ETJ

Land Use Acres Percent Acres Percent Acres Percent

Commercial 116 4% 67 14% 49 2%

Open Land 1,518 49% 143 30% 1,375 52%

Residential 1,200 38% 200 42% 1,000 38%

Social/Cultural 187 6% 28 6% 159 6%

Undeveloped 96 3% 40 8% 56 2%

Totals 3,117 100% 478 100% 2,639 100% Source(s): Haywood County Geographic Information System and NC DCP. Note: Because the acreage figures are based on parcel information from county tax records, they do not include area within road rights-of-way or waterways such as the Pigeon River. Therefore, the acreage figures shown for the Study Area, the town limits, and the ETJ are smaller than their actual sizes.

Table 62: Residential Land Uses – Clyde Land Use Plan Study Area, Town Limits, and Extraterritorial Jurisdiction


Residential Land Uses

Acres Percent of Residential Land Use

Percent of Study

Area Acres

Percent of Residential Land Use

Percent of Town

Limits Acres

Percent of Residential Land Use

Percent of ETJ

Single-family Dwellings

1,057 88% 34% 167 84% 35% 890 89% 34%

Multi-family Dwellings

23 2% <1% 10 5% 2% 13 1% <1%

Manufactured Housing

120 10% 4% 23 11% 5% 97 10% 4%

Totals 1,200 100% 38% 200 100% 42% 1,000 100% 38% Source(s): Haywood County Geographic Information System and NC DCP. Note: Because the acreage figures are based on parcel information from county tax records, they do not include area within road rights-of-way or waterways such as the Pigeon River. Therefore, the acreage figures shown for the Study Area, the town limits, and the ETJ are smaller than their actual sizes.

Development Patterns and Trends

Development patterns and the way land is used in a community emerge and evolve based on

numerous factors such as an area’s geography, physical features, natural resources, human activity,

infrastructure, economic conditions, public and private investment, proximity to employment

centers, and many others. Government programs and policies, such as those regarding the

extension of water and sewer lines, annexation, subdivision of land, zoning, and other land use and

environmental regulations, may encourage, guide, manage, and/or limit development, thereby

affecting land use patterns.



Development in the Clyde Area

Building construction information can illustrate where and how much a community has developed

over a period of time. The Haywood County tax records include the year buildings, of all types, were

constructed. Map 11, Year Built, contains a series of maps showing how many buildings had been

constructed in the Study Area as of a certain year based on the Haywood County data. The maps

show how development progressed between 1900 and 2008.

Comparing the map series on Map 11 with other maps in the CLUP, such as Map 3 (Water Service),

Map 4 (Sewer Service), Map 6 (Floodplain Areas), Map 8 (Slope), and Map 9 (Farm Uses), helps

illustrate the influence that factors such as topography, the presence of infrastructure (roads, the

railroad, public water and sewer lines, etc.), and floodplains, for example, have on development

patterns.

Previous Land Use Plans

The Town of Clyde previously completed at least two land use plans, a Land Use Survey and

Development Plan in 1964 (the 1964 Plan) and a Land Development Plan Update in 1975-76 (the

1975-76 Plan). Both plans include existing, as well as future, land use maps.

Existing land use maps from the prior plans show that residential was the predominant land use in

the Clyde area. With a few exceptions, commercial uses were concentrated in the downtown area

and along Carolina Boulevard within the town limits.

The 1964 Plan proposed that the Clyde area would mainly be comprised of Medium Density

Residential uses, with pockets of Heavy Density Residential at the north and south ends of Main

Street. A Central Business District was designated between Charles and Mulberry Streets. A

Highway Service Business category was proposed along the south side of Carolina Boulevard,

between Smathers Street and Pleasant Hill Drive. An area on the northwest side of the intersection

of US 74 and US 19/23 was designated as Tourist Service Business. There were no areas designated

for public or industrial uses.

The 1964 future land use map also included a “Sketch Thoroughfare Plan” that showed proposed

transportation improvements to improve traffic flow. The most significant proposed projects

included a new bridge across the Pigeon River at Mulberry Street and a loop road in south Clyde.

The proposed bridge was intended to allow people from in and around all parts of Clyde to have

better access to downtown businesses. The loop road, which was to run from Charles Street

northeast to Carolina Boulevard, was proposed in anticipation of projected residential growth in the

southern area of Clyde.

While working on the 2012-2022 Clyde Land Use Plan, local leaders and the public expressed the

desire for Clyde to remain primarily as a residential community. Those contributing to the 1964 Plan

had a similar mindset:



As can be seen from the plan, we wish to maintain a residential community. Clyde is

now serving in this capacity and serving very well. Therefore, it is only logical to

promote this asset in the future rather than attempt to develop along unfamiliar

lines. In addition, most of us have chosen Clyde as a home; thus we have a vested

interest in maintaining a residential community. We feel that south Clyde has the

greatest potential for residential development.

By designating a large land area along Carolina Boulevard as commercial, the Town hoped to

prevent the “unwise establishment of businesses in residential neighborhoods.”

The 1964 Plan text mentions property that was reserved for industry, due to the availability of

community facilities, among other assets. However, as noted previously, the future land use map

did not include an industrial category.

The 1964 Plan also expressed the recognition among town leaders that the area’s beauty provided

an opportunity to attract tourists. They had some interest in promoting tourism, but in a very

limited sense:

The particular tourism here would not be the active type as found in Maggie Valley

or Cherokee, with their large recreation attractions. The tourism promotion in Clyde

should be of the passive type – summer homes and mountain cottages, vacation

farms and ranches, and similar facilities.

In order to learn how the citizens felt about the idea of tourism and to study the matter further, the

Town, according to the 1964 Plan, planned to establish a committee.

Eleven years after the publication of the 1964 Plan, the 1975-76 Plan indicated that the desire for

Clyde to remain a predominantly residential community was still strong. Development had

generally occurred in accordance with the 1964 Plan. In preparing the 1975-76 Plan, the Town

found that most of the development since 1964 was mainly residential and was occurring on the

western side of the planning area. The 1964 Plan had anticipated the southern part of Clyde would

attract the most development.

The areas proposed as Heavy Density Residential in the 1964 Plan on the north and south ends of

Main Street had not developed as such; however some higher density residential uses had

developed on the western end of Broad Street in the town limits and in the western part of the

1975-76 planning area. The 1975-76 Plan noted that there had not been much infill development as

new residential development tended to occur along major roads.

There was more commercial development in the Clyde area in 1975, particularly beyond the

downtown area, than the 1964 Plan had anticipated. Some of the commercial growth was along

Carolina Boulevard, west of downtown Clyde, but businesses also developed along Glance and Bea

Streets in the town limits as well as in growing residential areas.



The future land use map in the 1975-76 Plan designated most of the land in Clyde and its

surrounding area as Residential, with no density specified. Because the Town expected most

commercial development to occur along US 19/23, it added some land to a Commercial category

along the highway to the east and west of Clyde, as well as on the north side of Carolina Boulevard

within Clyde. The growth in residential development in some parts of Clyde indicated there may be

a need for more small businesses there in the future. Therefore, the 1975-76 Plan designated

several Neighborhood Business areas.

The Town added an Industrial classification to the future land use map in the 1975-76 Plan and

applied it only to an existing industrial landfill in the northeastern section of the planning area. The

Tourist Service Use area shown in the 1964 Plan was replaced in the 1975-76 Plan with a Residential

designation because residential uses were developing there and there had been no demand for

tourism-related uses.

Another significant difference between the future land use maps in the older plans is the addition of

a Public, Semi-Public and Institutional category. The category reflected the construction of

additional public facilities in the Clyde area, including Haywood Technical Institute (now Haywood

Community College), a North Carolina Highway Patrol station, a new post office, a park, and a

sewage treatment facility. The 1975-76 Plan also designated the floodway of the Pigeon River, the

site of the then-proposed armory (next to Haywood Technical Institute), a proposed County park

site (behind the school gymnasium at Hyder Mountain Road and North Main Street), as well as

several existing cemeteries, as Public, Semi-Public and Institutional. The 1975-76 Plan anticipated

the addition of public and semi-public uses with new recreational opportunities due to the growth

of population in the Clyde area.

Interstate 40 was completed north of Clyde in the years between publication of the 1964 Plan and

the 1975-76 Plan. According to the 1975-76 Plan, a new bridge was constructed across the Pigeon

River at Main Street, rather than at Mulberry Street as recommended in the 1964 Plan, in part due

to the location of the elementary school’s location (at that time) at West Broad and Main Streets.

Because growth was occurring more on the western side of Clyde, the 1975-76 Plan recommended

making improvements to existing roads and building a connecting road in southern Clyde, rather

than constructing a new loop road, as recommended in the 1964 Plan. The improvements were

intended to allow travelers to access Carolina Boulevard without having to go through the central

business district.

Current Land Use Pattern and Prior Land Use Plans

Given that the Town of Clyde’s previous land use plan was completed more than 30 years ago, what

can the community learn by comparing today’s land use pattern in the Study Area with the future

land use anticipated by the 1975-76 Plan?

As indicated previously, the 1975-76 future land use map had four land use categories: Residential;

Commercial; Public, Semi-Public and Institutional; and Industrial. It projected that most of the



planning area (which, for the 1975-76 Plan, included the Clyde town limits and lands within one mile

of the town limits), would contain residential land uses, however no density was specified. Today,

residential land uses comprise the largest land area; however there is a substantial amount of land

in the Study Area that is developed at a very low residential density. Many of the low density

residential areas are classified as Open Land in the Existing Land Use Map (Map 10), so the

residential land use pattern looks more irregular than what was planned due to the differences in

the land use categories. Also, the 1975-76 Plan did not really address the future of agricultural land

uses other than to classify the properties as Residential on the future land use map and state

elsewhere that, “Agricultural and forest land should remain intact until it is needed for urban

development.” Agricultural uses are classified as Open Land on the Existing Land Use Map (Map 10)

in the 2012-2022 CLUP.

The location of commercial uses in the Clyde area has generally conformed to the 1975-76 Plan,

particularly downtown and along Carolina Boulevard. The pattern of commercial development

appears to have been strongly influenced by the zoning regulations the Town of Clyde updated,

enacted, and enforced, following adoption of the 1975-76 Plan.

The 1975-76 Plan’s future land use map and the Existing Land Use Map in the 2012-2022 CLUP are

somewhat similar in their depiction of public, institutional, cultural and similar uses, although the

category names are different. The former designates such uses as Public, Semi-Public and

Institutional while the latter designates them as Social/Cultural. The 1975-76 future land use map

included cemeteries in the Public, Semi-Public and Institutional category, while Map 10 in this Land

Use Plan designates two private cemeteries as Commercial. The 1975-76 map also showed the

Pigeon River and its floodway in the Public, Semi-Public and Institutional category. The 1975-76 Plan

had recommended that the Town adopt a floodplain ordinance or add a floodway district to its

zoning ordinance once the Tennessee Valley Authority delineated the Pigeon River’s floodway. Map

10 does not assign a land use classification to the Pigeon River and labels the land use for adjoining

parcels, even those in the floodway, based on their actual present use. There are a greater number

of properties identified as Social/Cultural on Map 10 because there are more public facilities today

and because churches were included in the category.

The 1975-76 future land use map designated one parcel as Industrial. That parcel is treated as Open

Land on Map 10, which contains no industrial classification.

Land Use Regulations

There are a variety of tools available to communities through the North Carolina General Statutes to

help them protect the health, safety, and welfare of citizens, establish minimum standards for and

mitigate the impacts of development, and guide future growth. Such regulations also influence land

use patterns.

Two types of regulatory authority that cities and towns can use to manage growth and development

are the general police powers and planning and development regulatory authority.



General Police Power Ordinances

The authority for cities and towns to adopt police power ordinances is stated in N.C.G.S. Chapter

160A, Article 8 (Delegation and Exercise of the General Police Power). N.C.G.S. § 160A-174(a)

provides general authority for cities to enact ordinances to regulate activities that may be

detrimental to the health, safety, or welfare of citizens and the “peace and dignity” of the city, as

well as to define and abate nuisances.

Article 8 also contains sections that provide specific authority for regulating certain activities ranging

from flea markets and outdoor advertising, for example, to noise, solid waste, junked and

abandoned vehicles, and abatement of public health nuisances. The authority for cities to require

businesses to be licensed is also addressed in Article 8.

A city can rely on the general authority and/or the specific authority provided in Article 8 in enacting

police power ordinances, although, local governments often follow the guidelines of both the

general and relevant specific authorities.

Police power ordinances are, generally, single purpose ordinances that apply a certain set of

standards to a community as a whole. The Town of Clyde’s Code of Ordinances contains police

power ordinances that relate to land use matters and impacts, such as a nuisance ordinance that

addresses noise, and regulations for pool rooms, arcades, junkyards, and adult establishments,

among others.

Other Planning and Development Ordinances

N.C.G.S. Chapter 160A, Article 19 (Planning and Regulation of Development), provides the authority

for cities and towns to adopt a variety of regulations and programs regarding planning and

development. It allows them to enact ordinances addressing zoning, subdivision of land, floodplain

management, erosion and sedimentation control, stormwater management, mountain ridge

protection, designation of historic districts and landmarks, building inspections, wireless

communication towers, minimum housing standards, forestry activities, and development

agreements. It also allows them to conduct planning and community development activities,

acquire open space, and create community appearance commissions, for example. Article 19

authorizes and provides the requirements for a municipality to establish an ETJ. It also allows a

municipality to apply regulations it adopts under Article 19 to its ETJ.

Some of the regulations mentioned above have been addressed elsewhere in the CLUP. Because of

its relevance to the entire Study Area, this Element focuses on the Town of Clyde’s Zoning

Ordinance.

Town of Clyde Zoning Ordinance

Zoning regulations take various forms. Many traditional ordinances sought to segregate uses into

different districts (industrial, commercial, residential, etc.). Other types of zoning allow for a

broader range of uses within districts but impose limitations on the amount and intensity of such

development depending on the district. Some zoning is very flexible in terms of the uses allowed



but controls the impacts (physical, visual, etc.) of such uses through standards. North Carolina’s

zoning laws have been amended, over time, to authorize a variety of options that allow

communities to introduce more flexibility in their ordinances.

The Town of Clyde’s 1964 Land Use Survey and Land Development Plan states that, at the time, the

Town’s Planning Board was preparing a zoning ordinance and had developed and forwarded a

subdivision ordinance to the Town’s governing board for consideration. According to its 1975-76

Land Development Plan Update, the Town adopted a zoning ordinance in 1965 and was in the

process of updating it at the time the 1975-76 Plan was adopted. In the years since, the Town has

made a number of minor and more significant amendments to its Zoning Ordinance for a variety of

reasons, such as adding uses that were not contemplated when the ordinance was first developed.

Clyde’s Zoning Ordinance is more traditional in nature. It establishes seven zoning districts, of which

three are residential, two are commercial, one is office and institutional, and one, which is not

currently in use, is industrial. In addition to regulating the uses allowed in each zoning district, the

ordinance contains standards for lot sizes, setbacks, building heights, street frontage, and density of

development. Many of the uses permitted by right have few, if any, other site specific standards

that must be met. Some uses, such as manufactured home parks, planned unit developments, and

wireless communication facilities, are subjected to a higher level of review and additional

requirements. The regulations for signs are fairly substantial. There is no differentiation between

the three residential zoning districts in terms of minimum lot sizes, lot width, and front and rear

setbacks. Mixed use development (which is recommended by this Land Use Plan) would be difficult,

if not impossible, to construct under the current zoning regulations.

Map 12, Zoning, shows the current zoning in the Study Area. Table 63 shows the results of an

analysis of Clyde’s Zoning Map.

Table 63: Current Zoning – Clyde Land Use Plan Study Area

Clyde Zoning District Number of

Parcels Acres

Percent of Study Area

R-1 Medium Density Residential 1,547 2,532 81%

R-1A Medium Density Residential (Restricted) 382 239 8%

R-2 High Density Residential 104 81 3%

C-1 Central Business 88 31 1%

C-2 Highway Commercial 68 67 2%

O&I Office and Institutional 32 167 5%

Totals 2,221 3,117 100%

Source(s): Haywood County Geographic Information System and the NC DCP.

Table 64 shows that the average size of all parcels in the Study Area, regardless of their zoning

(residential, commercial, etc.), is 1.4 acres. The average parcel size in the town limits of Clyde is 0.6

acres and in the Town’s ETJ, it is 1.8 acres.



Table 64: Parcel Sizes by Zoning District and Location – Clyde Land Use Plan Study Area, Town Limits, and Extraterritorial Jurisdiction


Clyde Zoning District

Average (Acres)

Largest (Acres)

Smallest (Acres)

Average (Acres)

Largest (Acres)

Smallest (Acres)

Average (Acres)

Largest (Acres)

Smallest (Acres)

R-1 1.5 115.5 0.1 0.6 14.0 0.1 2.0 115.5 0.1

R-1A 0.5 10.3 0.1 0.5 1.4 0.1 0.5 10.3 0.1

R-2 0.5 8.9 0.1 0.2 2.7 0.1 0.7 8.9 0.1

C-1 0.4 3.2 0.1 0.4 3.2 0.1 0.3 1.9 0.1

C-2 1.0 4.3 0.1 0.9 3.4 0.1 1.1 4.3 0.1

O&I 5.2 57.5 0.1 2.8 9.0 0.2 6.3 57.5 0.1

All Districts

1.4 115.5 0.1 0.6 14.0 0.1 1.8 115.5 0.1

Source(s): Haywood County Geographic Information System and the NC DCP. Note: The above figures may be lower than expected because of parcels split by zoning and ETJ boundaries.

Clyde’s Zoning Ordinance requires a minimum of 8,000 square feet (0.18 acres) for lots with access

to public water and public sewer in each of its residential zoning districts (R-1, R-1A, and R-2). The

minimum lot size increases depending on the availability of public water and sewer; to 10,000

square feet (0.23 acres) if public water but no public sewer is available and to 20,000 square feet

(0.46 acres) if neither public water nor public sewer is available. The Town also requires that the lot

size be increased by 3,000 additional square feet for each additional dwelling unit beyond the first,

provided public water and sewer is present, or by 10,000 additional square feet for each additional

dwelling unit when only public water or public sewer is present or if neither public water nor public

sewer is available.

The average parcel sizes in each of Clyde’s residential zoning districts (from Table 64) are shown

again in Table 65, below, along with the average parcel sizes for all residential zoning districts

combined.

Table 65: Average Parcel Sizes in Residential Zoning Districts in Clyde’s Zoning Jurisdiction

Overall


Clyde Zoning District Average (Acres)

Average (Acres)

Average (Acres)

R-1 1.5 0.6 2.0

R-1A 0.5 0.5 0.5

R-2 0.5 0.2 0.7

All Residential Districts 1.4 0.6 1.8

Source(s): NC DCP



As one might expect, the average size of all residentially-zoned lots within the town limits (0.6 acres)

is lower than that in the ETJ (1.8 acres). In all three residential zoning districts, the average lot sizes

for the Study Area as whole exceed the minimum lot sizes required for parcels without access to

both public water and public sewer. Only the average lot size for the R-2 zoning districts within the

town limits (0.2 acres or 8,712 square feet) is less than 10,000 square feet. Table 65 shows that all

of the residential districts, regardless of their location, have lots that are smaller than the 8,000

square foot minimum lot size. Despite the uniformity of the lot area standards among the three

types of residential zoning districts, lot sizes in the residential zoning districts vary widely depending

on location (in the town limits or in the ETJ). This is due, in part, to the availability of public utilities,

particularly the limited access to public sewer in parts of the ETJ.

The Town has indicated that administering the Zoning Ordinance presents some challenges for staff,

Town boards, and the public. For example, interpretation issues arise at times because of terms

whose definitions are inadequate, out of date, or nonexistent. Uses that one might expect to find in

certain districts are not included. There are also a variety of internal inconsistencies that have

developed in the ordinance over time (section numbering and cross-reference issues, different

names for the same use listed in multiple zoning districts, uses listed as permitted by right and as

conditional uses within the same district, etc.). Updates are also needed to address relevant

changes to N.C.G.S. Article 19, particularly those enacted between 2005 and the present.

A zoning ordinance can be a very useful tool for implementing a land use plan. The Clyde Zoning

Ordinance’s age and administration issues, among other factors, suggest that it has been in need of

a comprehensive review and update for some time. Once the Town adopts the Land Use Plan, it will

have a set of goals and recommendations that can be used as a starting point for preparing a new

version of the Zoning Ordinance that will be more relevant to the Town’s vision and better suited to

helping the Town realize its goals.

Future Land Use

Introduction

Land use planning attempts to balance economic, environmental, social, cultural, and numerous

other conditions, needs, desires, and values.

As it developed the CLUP, the Town examined a variety of factors. The maps and data related to

existing conditions, trends, development opportunities, and constraints were fundamental. The

community provided essential input via the Community Survey and visioning sessions. Contributions

from the Land Use Plan Committee; other Town boards, committees and staff; Haywood County and

federal government staffs; and individuals from other agencies and organizations helped bring all of

the elements of the CLUP together.



Public Input

Community Survey

The Community Survey results reflect that respondents were interested in having Clyde maintain its

small town character. Most of those who made comments in the survey about particular land uses

seemed to prefer that chain stores, large retailers, and industrial uses be discouraged and that a

variety of residential uses as well as small, local, independent businesses and others that cater more

to local people be encouraged such as: a drug store, restaurants, a coffee shop, an ice cream shop,

grocery store, other retail stores (clothing, shoes, hardware, etc.), personal services, gas stations,

health care, recreation, entertainment, parks and playgrounds, greenways/walkways,

community/senior center, community gathering space, farms, and gardens. There were several

survey respondents who were interested in having industrial uses that would bring jobs to the area.

Some respondents were interested in seeing something occupy the former WalMart store space

located near (but outside of) the Study Area. Manufactured housing drew some comments,

particularly in terms of their appearance.

Visioning Exercises

Those who took part in the visioning exercises provided numerous ideas and comments related to

land use in the Clyde area. Many echoed those obtained through the Community Survey.

Participants wanted to have a more vibrant downtown with a variety of additional businesses,

activities, and special events. The public also stressed the need for greenways, biking and walking

trails, and parks. Other topics of interest were: finding uses for the vacant flood buyout properties;

expanding educational opportunities; providing affordable housing; opening a senior/community

center; having a sustainable community; preserving the area’s history; allowing mixed-use

development; implementing design standards to ensure the compatibility of new and older

development; and encouraging the development of medical facilities, among others.

Guiding Principles for Future Land Use

The Town of Clyde’s goals for managing future land use and development in the Study Area focus on

the following principles:

Protecting existing residential neighborhoods from incompatible development while

allowing for infilling with additional residential units.

Encouraging mixed-use development projects that offer a variety of housing types,

businesses, services, and other activities in a manner that efficiently uses infrastructure and

at a scale that is pedestrian-oriented.

Supporting new retail, service, and other commercial business development and helping to

strengthen and grow existing businesses.

Revitalizing and invigorating the downtown area as the heart of the community

economically, socially, and culturally.



Recognizing and protecting lands used for agriculture, horticulture, and forestry for their

economic, open space, and other values.

Conserving and managing open spaces, natural resources, and environmentally sensitive

areas.

Protecting and enhancing environmental quality.

Maintaining the quality of public and community services.

Preserving historic and cultural resources.

Putting greater emphasis on site and building design.

Making neighborhoods and community facilities more accessible by multiple modes of

transportation.

Future Land Use Categories and Map

The Future Land Use Map (Map 13) is intended to depict the general pattern of land use that the

Town of Clyde would like to begin to emerge over the next ten years in the Study Area as this Land

Use Plan is implemented. It attempts to meld the historic development pattern of Clyde with the

Town’s vision for the future.

Six generalized future land use categories have been developed for the Clyde area and are shown on

the Future Land Use Map. They are: Town Center; General Residential; Rural Residential /

Agricultural; Mixed Use; Institutional; and Conservation. Table 66: Future Land Use – Clyde Land

Use Plan Study Area illustrates how much land is proposed in each of the future land use categories

shown on the Future Land Use Map as well as the proportion of the Study Area devoted to each

category.

Table 66: Future Land Use – Clyde Land Use Plan Study Area

Land Use Category Acres Percent of Study Area

Conservation 155 4%

General Residential 1,345 38%

Institutional 129 4%

Mixed Use 188 5%

Rural Residential / Agricultural 1,645 47%

Town Center 52 2%

Totals 3,514 100%

Source(s): NC DCP Note: The acreage figures include area within road rights-of-way or waterways such as the Pigeon River. Therefore, the numbers in this table are not directly comparable to those for the Existing Land Use Map.



The future land use categories are described below. Each category description includes a brief

summary of its intent, land development considerations, and examples of uses that might be

appropriate.

Town Center

The Town Center category focuses on the heart of downtown Clyde. This core area is characterized

by a variety of small retail businesses and services, a restaurant, offices, public facilities and spaces,

government uses and residential dwellings. The area reflects its history as the center of Clyde with a

compact, grid-based development pattern, attached and detached buildings, higher density

residential uses, a pedestrian orientation, etc. The presence of the Pigeon River and its floodplain,

the Southern Railroad line and US 19/23 (Carolina Boulevard) significantly impact the area.

The Town Center will continue to function and grow as the economic, social, cultural, and

governmental hub of Clyde in spite of challenges posed by physical barriers and Mother Nature. The

area is proposed to be the subject of a more detailed planning process.

Development considerations include: having land uses and the design of buildings and spaces that

are in keeping with the existing and desired small town character of the downtown; appropriate

infill development and redevelopment; mixing uses in the Town Center in general and within

buildings themselves; public safety (lighting, crosswalks, limitations on new residential development

in the floodplain to minimize the number of additional people living there, etc.); walkability;

connectivity with surrounding neighborhoods; community spaces for special events; economic

vitality; traffic management; streetscape/landscaping; and working with the Pigeon River, the flood

buyout parcels, US 19/23, the railroad line, etc.

Examples of uses include: governmental and civic uses; arts, cultural, and entertainment

establishments; offices; small-scale retail and service uses; restaurants; institutional and educational

uses; parks and community gardens; a tailgate market; live-work units; and other residential uses

(infill/redevelopment, with limitations in the 100-year floodplain).

General Residential

General Residential areas are generally located within the Clyde corporate limits and in the ETJ

where public utilities are provided. They include traditional neighborhoods that developed around

downtown as well as more suburban subdivision development in the outer part of the town limits

and the ETJ. Housing currently varies from single-family homes on lots ranging from 0.1 to 12 acres

in size to multi-family developments. Sidewalks are generally lacking. Neighborhoods are intended

to contain a variety of housing options that support the needs of the community and complement

the small town character of Clyde. Housing is the principal function of these areas, but small-scale

business and service uses may be permitted to support local residents.

Development considerations include: preservation and enhancement of existing neighborhoods;

availability of adequate infrastructure; public safety (e.g. limitations on new residential

development in the floodplain to minimize the number of additional people living there);



environmental impacts (steep slopes, floodplain, other natural features, loss of agricultural land,

scenic views, stormwater management, tree protection/vegetation, etc.); compatible infill

development and redevelopment; development standards; walkability (sidewalks and trails); traffic

management; connectivity between neighborhoods and to the Town Center; affordability; matching

housing demand with supply; open space preservation; provision of neighborhood recreation

opportunities, etc.

To encourage developers to build housing that meets the goals of the community, the Town of Clyde

could consider whether to offer incentives, such as density bonuses.

Examples of uses include: medium to higher density residential development; home occupations;

neighborhood parks and recreation facilities; public, educational, institutional and civic uses

compatible in scale and character with neighborhood; and, perhaps, small-scale retail business and

service uses that support area residents and that are compatible with the neighborhood.

Rural Residential / Agricultural

Rural Residential/Agricultural areas include land located in more rural areas beyond the town limits

where access to existing or planned public water and sewer services is limited or non-existent.

Larger lots are required to accommodate wells and/or septic systems for residential development.

These areas also include land that is or has been used for agricultural purposes (prime or important

farmland, land taxed at present use value, etc.), land with slopes greater than 40 percent, and other

undeveloped land located in the 100-year floodplain.

Development considerations include: availability of infrastructure to support growth; preservation

of environmentally sensitive areas and natural resources; flood storage and water quality

protection; preservation of open space; protection of agricultural resources; and provision of

recreational opportunities, among others.

Examples of uses include: low density residential development, agriculture, including

agribusinesses; parks and recreation facilities; conservation areas; camps; campground;, home

occupations (including those in accessory buildings); and other uses compatible with and

complementary to rural areas.

Maximum residential density in Rural Residential/Agricultural areas shall be determined by zoning

and subdivision standards. Conservation subdivision design is recommended for residential

developments in order to preserve open space, steep slopes, floodprone land, agricultural

resources, scenic views and the rural character of the area while allowing flexibility in lot sizes and

the siting of homes (clustering, for example).

Mixed Use

Mixed Use areas are intended to accommodate more than one type of land use (retail and service

businesses, offices, residential, public, educational and institutional facilities, recreation, etc.) in a

compact, intensive development pattern that relies on design standards to ensure compatibility



among uses. Mixed use developments can help expand the housing choices available in a

community, decrease the need for short distance automobile trips, and reduce sprawl, sign clutter,

and the need for numerous curb cuts. More detailed planning studies will be needed for these

areas.

Development considerations include: access management; interconnectivity among uses; design

standards to address the appearance of new development along US 19/23, a primary transportation

corridor that is a gateway to the community; compatibility with surrounding areas; the availability of

adequate infrastructure; walkability; protection of environmentally sensitive areas; stormwater

management; housing affordability; open space preservation; and provision of neighborhood

recreation opportunities, among others.

Examples of uses include: retail businesses and services; restaurants; offices; public, educational;

and institutional uses; single-family and multi-family residential; live-work units; independent and

assisted living facilities; continuing care retirement communities; parks and recreation facilities; arts,

cultural, and entertainment facilities; community centers; hotels; etc.

Institutional

Institutional areas are suitable for uses and activities related to education, healthcare, government,

civic groups, community service providers, etc.

Development considerations include: access management; interconnectivity among uses; design

standards to address the appearance of new development along US 19/23, a primary transportation

corridor that is a gateway to the community; compatibility with surrounding areas; the availability of

adequate infrastructure; walkability; protection of environmentally sensitive areas; stormwater

management; open space preservation; and provision of neighborhood recreation opportunities,

among others.

Examples of uses include: schools (K-12, community colleges, colleges and universities, etc.);

libraries; post offices; hospitals and other healthcare facilities and associated services; independent

and assisted living facilities; continuing care retirement communities; nursing homes; local, state,

and federal government uses (excluding correctional facilities); churches and other places of

worship; religious campuses and retreat facilities; conference centers; daycare centers (child and

adult); private, non-profit organizations and services; civic groups; community centers; senior

centers; parks and recreational facilities; camps, etc.

Conservation

The Conservation category is used for areas where parks, recreation areas, or conservation areas

either exist or may be sited or preserved in the future. Such areas are intended to meet the

recreation needs of the community, provide open space and natural resource protection, reduce

stormwater runoff, and enhance the Town’s appearance.



Development considerations include: the desirability of the land for recreation or conservation

use; how the property fits into the future recreation, conservation and other plans of Clyde and/or

Haywood County; preservation of environmentally sensitive areas and natural resources; flood

storage and water quality protection; and preservation of open space, among others.

Examples of uses include: active outdoor recreation areas such as ball fields, tennis, or basketball

courts, swimming pools, playgrounds, dog parks, golf courses, and other areas for recreational

sports and games; passive outdoor recreation areas such as trails for walking and/or bicycling and

areas for picnicking, camping, fishing, etc.; and open space and lands intended to be left in a natural

state with little to no development, such as floodways, flood buyout parcels, stream (riparian)

buffers, ridgetops and very steep slopes, significant wetlands, nature preserves, forest reserves,

wildlife management areas, etc.

Using the Future Land Use Categories and Map

Unlike a zoning map, the Future Land Use Map (Map 13) is not regulatory in and of itself. It is a

generalized representation of what the land use pattern could be if the Land Use Plan’s goals are

realized.

The recommended future land use categories and map provide general planning guidance. The

category descriptions and map boundaries are intentionally broad, so that the Town has some

flexibility in determining how to translate them into zoning regulations and other policies. The

Town will need to consider how other goals, recommendations, and strategies in this Land Use Plan

relate to and impact implementation of the future land use recommendations.

The Town will use the future land use categories and map when considering amendments to the

Clyde Zoning Ordinance text and map, for making other land use permitting decisions, in planning

for capital projects, such as investments in public utility systems, etc. In doing so, the Town must

also consider the other goals, recommendations, and strategies as all components of the Land Use

Plan are interdependent.

The Future Land Use Map and land use categories are not intended to be static. Future economic

conditions, natural hazards, business and government decisions, and changes in leadership, among

numerous other issues, can impact land use planning. The Town should expect that it will need to

amend the Future Land Use Map and, possibly, the future land use categories, from time to time. It

is also recommended that the Town update the Land Use Plan every five to ten years.




1. Goal: Provide a land use mix and pattern that provides appropriate locations for people to live, work, shop, go to school, attend church, recreate, etc., while creating a more sustainable community.

1.1. Recommendation: Use the Land Use Plan and Future Land Use Map to guide land use

decisions, infrastructure investments, etc.

2. Goal: Efficiently use public infrastructure by focusing development in certain areas, as shown on the Future Land Use Map.2.1 Recommendation: Direct development to areas

that are or will soon be served by public infrastructure.

Strategies:

a. Develop utility policies to guide growth.

b. Encourage infill development on vacant land and redevelopment of properties

served by public utilities (downtown and along parts of Carolina Boulevard, for

example).

c. Conduct an analysis of existing infrastructure (sewer and water lines, sidewalks,

etc.) and identify needs based on these results.

2.2 Recommendation: Provide for more compact, higher density development where public

services and other amenities exist.

Strategies:

a. Amend the text of the Clyde Zoning Ordinance to create a greater differentiation

between residential districts in terms of their allowable development densities

and to allow mixed-use developments.

b. Amend Clyde’s official zoning map in accordance with the Land Use Plan and any

proposed Zoning Ordinance text amendments.

c. Provide incentives to encourage well-designed, higher density, and mixed-use

development in areas with existing or planned services.

d. Identify areas, neighborhoods, or nodes within the Clyde area that need site

specific planning and create small area plans for them.

3. Goal: Improve Clyde’s ability to manage future growth and development.

3.1. Recommendation: Ensure that Clyde has the regulations, incentives, other tools, and

funding to implement this Land Use Plan.

Strategies:



a. Review existing land development regulations to determine their sufficiency for

implementing this Land Use Plan and recommend revisions, new ordinances,

etc., as necessary.

b. Revise existing land development ordinances, as needed, to address changes in

the North Carolina General Statutes, improve internal consistency, refine

application and review procedures, build in more flexibility or control, etc.

c. Consider whether to merge Clyde’s land development ordinances into a unified

development ordinance.

d. Continue to fund a planner position.

e. Communicate regularly with Haywood County regarding the ordinances it

administers for Clyde.

f. Offer training opportunities to the Clyde Planning Board, Board of Adjustment,

and Historic Commission.

g. Establish a Town of Clyde Geographic Information System to assist in

interdepartmental communication and documentation, conducting land

development assessment and analysis, and establishing and maintaining general

inventories.

3.2. Recommendation: Study the relevance of the Town’s current extraterritorial jurisdiction

(ETJ) boundary to its land use planning goals.

Strategies:

a. Consider adjusting the ETJ boundary to follow existing property lines and define

an area that is strategically beneficial to the Town’s growth and development.

b. Study whether or not to relinquish part of the Town’s ETJ.


Endnotes |169

Endnotes

Endnotes

1 Average of estimates prepared by the NC Department of Commerce, Division of Community Planning, Western Regional

Office. See the Land Use Element of the 2012-2022 Clyde Land Use Plan for more information. http://www.smokymountainnews.com/issues/08_06/08_23_06/fr_rutherford_trace.html http://www.shookhistory.org/main_site/index.php?option=com_content&view=frontpage&Itemid=1 History for the Town of Clyde, Town of Clyde Website, http://townofclyde.com/html/about_clyde.html 2 NC Office of State Budget and Management

(http://www.osbm.state.nc.us/ncosbm/facts_and_figures/socioeconomic_data/population_estimates/demog/muncert09a.html). 3 U.S. Census Bureau, Population Estimates Program (http://factfinder.census.gov)

4 Email from Jennifer Song, State Demographer, N.C. Office of State Budget and Management, to Karen Smith, Chief

Planner, N.C. Department of Commerce, Division of Community Planning, Western Regional Office, dated March 3, 2011. 5 Per email correspondence between the State Demographer and NC Division of Community Planning, Western Regional

Office staff in February of 2011. 6 Email from Jennifer Song, State Demographer, N.C. Office of State Budget and Management, to Karen Smith, Chief

Planner, N.C. Department of Commerce, Division of Community Planning, Western Regional Office, dated March 3, 2011. 7 North Carolina State Data Center, printed table from ____.

8 U.S. Census Bureau, Census 2000 Brief, “Overview of Race and Hispanic Origin, March 2001.

9 2010 North Carolina State Street-Aid Allocations to Municipalities (October 1, 2010) and 2010 North Carolina State

Street-Aid Adjusted Allocations to Municipalities (March 24, 2011) published by the North Carolina Department of Transportation, Office of Inspector General, Powell Bill Program. 10

United States Department of Transportation, Federal Highways Administration, http://www.ops.fhwa.dot.gov/access_mgmt/ 11

French Broad River Metropolitan Planning Organization Comprehensive Transportation Plan, 2007. 12

Haywood Community College website (http://www.haywood.edu/rie/who_are_our_students). 13

Presentation to the Clyde Land Use Plan Committee by Debbie Trull, Haywood Community College Director of Administrative Services, 3/16/09. 14

Town of Clyde Code of Ordinances, Title V, Chapter 50, Section 50.08, Private Water Supply Regulated, June 2010. 15

Haywood County Schools website - http://www.haywood.k12.nc.us/.... 16

Ibid 17

Haywood Early College website - http://www.hec.haywood.k12.nc.us/?page_id=2 18

http://www.haywood.edu/UserFiles/file/pdf/Security.pdf 19

French Broad River Basinwide Water Quality Plan, April, 2011 (Draft) http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf ; NC Department of Environment and Natural Resources, Division of Water Quality 20

Cite source – DWQ…. 21

Cite a source? 22

Water Quality – We All Play a Part, NCDENR DWQ, July 2002, http://portal.ncdenr.org/c/document_library/get_file?uuid=63b16396-6138-4695-b4aa-323c55eed6e1&groupId=38364 23

French Broad River Basinwide Water Quality Plan, April, 2011 (Draft), NC Department of Environment and Natural Resources, Division of Water Quality, http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf 24

Same as above. 25

Haywood Waterways Association, A WATERSHED ACTION PLAN - OPTIONS FOR IMPROVING OUR WATER QUALITY - Pigeon River Watershed - Haywood County, North Carolina, March 7, 2002 26

French Broad River Basinwide Water Quality Plan, April, 2011 (Draft), NC Department of Environment and Natural Resources, Division of Water Quality, http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf

http://www.smokymountainnews.com/issues/08_06/08_23_06/fr_rutherford_trace.html

http://www.shookhistory.org/main_site/index.php?option=com_content&view=frontpage&Itemid=1

http://townofclyde.com/html/about_clyde.html

http://www.osbm.state.nc.us/ncosbm/facts_and_figures/socioeconomic_data/population_estimates/demog/muncert09a.html

http://www.osbm.state.nc.us/ncosbm/facts_and_figures/socioeconomic_data/population_estimates/demog/muncert09a.html

http://factfinder.census.gov/

http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf




170 | Endnotes

Endnotes – continued

27 North Carolina Wildlife Resources Commission. 2005. North Carolina Wildlife Action Plan. Raleigh, NC.

http://www.ncwildlife.org/Plan/documents/WAP_complete.pdf 28

NCDENR DWQ, July 2002. Water Quality – We All Play a Part, Raleigh, NC. http://portal.ncdenr.org/c/document_library/get_file?uuid=63b16396-6138-4695-b4aa-323c55eed6e1&groupId=38364 29

NC Wildlife Resources Commission….(same as above) 30

Haywood Waterways Association, A WATERSHED ACTION PLAN - OPTIONS FOR IMPROVING OUR WATER QUALITY - Pigeon River Watershed - Haywood County, North Carolina, March 7, 2002 31

French Broad River Basinwide Water Quality Plan, April, 2011 Draft - Approved and endorsed by the Environmental Management Commission in July, 2011 http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf, NC Department of Environment and Natural Resources, Division of Water Quality. 32

Clyde Stormwater Master Plan, 2008, McGill Engineering (see page 3-12). 33

French Broad River Basinwide Water Quality Plan, April, 2011 Draft - Approved and endorsed by the Environmental Management Commission in July, 2011 http://h2o.enr.state.nc.us/pb/documents/FrenchBroadRiverBasinPlanApril212011.pdf, NC Department of Environment and Natural Resources, Division of Water Quality 34

A Watershed Action Plan – Options for Improving Our Water Quality - Pigeon River Watershed - Haywood County, North Carolina (insert author, date, web address) 35

License Establishing the Pigeon River Fund, http://www.pigeonriverfund.org/License_Statement.html and the Pigeon River Fund Mission Statement, http://www.pigeonriverfund.org/Grants.html. 36

Pigeon River Fund website, http://www.pigeonriverfund.org/ 37

CWMTF site (insert web address) 38

North Carolina Drought Management Advisory Council, http://www.ncdrought.org 39

Same as above. 40

National Drought Mitigation Center, http://www.drought.unl.edu/risk/environment.htm, and the 2011 French Broad River Basinwide Plan 41

2011 French Broad Basinwide Plan…. 42

National Flood Insurance Program (insert document name) 43

National Flood Insurance Program (insert document name) 44

http://149.168.212.15./mitigation/Library/NFIP/NFIP_Unit7.pdf 45

http://149.168.212.15./mitigation/Library/NFIP/NFIP_Unit7.pdf 46

N.C.G.S. § 166-6A(b)(2)a.4. 47

N.C.G.S. § 143-215.51. 48

Letter from FEMA…. 49

Haywood County Flood Hazard Development Ordinance, 2012. 50

N.C.G.S. § 166A-6A(b)(2)a.3. 51

The Mountaineer…. 52

Flood Damage Reduction Planning Report, Town of Canton, Town of Clyde Pigeon River Watershed, 2006, by Carter-Burgess. 53

North Carolina Session Law 2005-1/Senate Bill 7, The Hurricane Recovery Act of 2005, http://www.ncleg.net/gascripts/BillLookUp/BillLookUp.pl?Session=2005&BillID=S7. 54

HDR Report, pp. 15-16 55

North Carolina Clean Water Management Trust Fund Contract for Haywood County – Pigeon River Buffer Project (2006A-014) 56

Presentation by Rick Wooten to the Mountain Resources Commission, 9/17/10…. 57

MRSSPS Report…. 58

N.C.G.S. § 153-B-1(c) 59

N.C.G.S. § 153-B-3(b) 60

Insert reference to August 2011 meeting of the MRC…. 61

History for the Town of Clyde, Town of Clyde website, http://www.townofclyde.com/node/4. 62

Economic Development Handbook, Third Edition, edited and revised by Jonathan Q. Morgan, NCEDA and School of Government, The University of North Carolina at Chapel Hill, 2009.

http://www.ncwildlife.org/Plan/documents/WAP_complete.pdf

http://portal.ncdenr.org/c/document_library/get_file?uuid=63b16396-6138-4695-b4aa-323c55eed6e1&groupId=38364



http://www.pigeonriverfund.org/License_Statement.html

http://www.pigeonriverfund.org/Grants.html

http://www.ncdrought.org/education.php

http://www.drought.unl.edu/risk/environment.htm

http://149.168.212.15./mitigation/Library/NFIP/NFIP_Unit7.pdf

http://149.168.212.15./mitigation/Library/NFIP/NFIP_Unit7.pdf

http://www.ncleg.net/gascripts/BillLookUp/BillLookUp.pl?Session=2005&BillID=S7

http://www.townofclyde.com/node/4


Endnotes |171

Endnotes – continued

63 Top 25 Employers by NC County (2011 3

rd Quarter), North Carolina Department of Commerce, Division of Employment

Security.http://www.ncesc.com/ 64

1916 Pictorial History of Haywood County… 65

Haywood County Economic Development Commission website, http://www.haywoodedc.org. 66

National Register Fact Sheet 1, North Carolina State Historic Preservation Office, Available online at http://www.hpo.ncdcr.gov/whatis.htm. 67

Haywood County Arts Council Quilt Trails Website, http://www.haywoodquilttrails.org/. 68

Haywood County Farmland Protection Plan, Haywood County Soil and Water Conservation District et al; 2008. 69

U.S. Department of Agriculture, Natural Resources Conservation Service. National Soil Survey Handbook, title 430-VI. Available online at http://soils.usda.gov/technical/handbook/. 70

http://www.huduser.org/portal/glossary/glossary_a.html 71

Out of Reach 2011, National Low Income Housing Coalition, June 2011.

http://www.ncesc.com/

http://www.haywoodedc.org/

http://www.hpo.ncdcr.gov/whatis.htm

http://www.haywoodquilttrails.org/

http://soils.usda.gov/technical/handbook/

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