The Neuse River Corridor is an
exceptional, and vulnerable, resource. For many years, the Neuse
rolled virtually unnoticed through the rural fringes of Wake
County. This no longer is true. The City of Raleigh's
jurisdiction extends to, and in some areas beyond, the Neuse
River in response to a rapidly increasing pace of residential
development. The towns of Wake Forest and Knightdale also press
closer to the river's edge. The river's exposure to development
pressures on one hand heightens awareness of the river's
exceptional qualities while on the other hand, increases the risk
of degrading the river's ecological systems. The Corridor's
potential recreational value will rise dramatically as awareness
of the river increases. This value can only be sustained through
conservation of the river system as a whole.
Eastern Raleigh and especially the area along the Neuse River will continue to experience rapid and intense growth over the next five to ten years. Many of the opportunities to preserve the Neuse Corridor as a regional recreation system will be lost to residential development in the near future. There is, however, a growing awareness, appreciation and demand for recreation in a natural environment. Raleigh residents are accustomed to walking, jogging, bicycling, and observing wildlife on the existing greenway park system in addition to traditional active recreation activities. Essentially, this form of recreation has become an integral part of many people's fitness and quality of life goals.
The City of Raleigh, a national
leader in the greenway movement, has long recognized the
importance of protecting the water quality, wildlife and
vegetation of the Neuse River, as well as the Corridor's
potential for recreation. The City's Capital Area Greenway plan,
included in the Comprehensive Plan, identifies the Neuse River as
a Major Greenway Corridor with a designated width of 150 feet on
both sides of the river bank. Recognizing the recreational
potential offered by the river, the City of Raleigh has already
acquired over 330 acres of parkland, including three major sites
at Anderson Point Park, Milburnie Park and Horseshoe Farm Park,
along with miles of greenway easement and has built three and
one-half miles of greenway trail along the Corridor.
The City is now on the threshold of taking another precedent setting step by expanding the river Corridor into a Regional Park, as recommended in the Comprehensive Plan. This park, created by linking the Neuse River Greenway with park land next to the Corridor, will protect the City's major natural resource and create a superb recreational facility for the region. Connections to the City's greenway system will link the river park to much of the City's park system. The park corridor could serve as one leg of a regional Triangle greenway system as well as an important link in the state-wide Mountains-to-Sea Trail. The evolution from river corridor to regional park is both visionary and realistically achievable. It can become a catalyst for the sensitive use, management, and conservation of the Neuse River as it flows eastward. It will certainly create a recreational resource of enormous value to the people of Raleigh.
In 1995, building on many years of thought, planning and land acquisition, the City of Raleigh established a Master Plan Committee and retained a team of planning consultants to develop this Comprehensive Master Recreation Plan for an 18 mile corridor along the Neuse River on the eastern side of the city. Included as part of the master plan, are detailed master plans for Anderson Point Park and Milburnie Park on prime sites within the Corridor project area. The City intends to construct the first phase of these two parks in the near future using bond funds allocated for the purpose. These actions begin to identify and establish objectives and standards for future development of the Corridor.
The Neuse River Corridor was first designated as a greenway corridor in the Capital Area Greenway Study of 1972. This designation was adopted as part of the City's Comprehensive Plan of 1979. In 1985, The Future of the Neuse River in Wake County, edited by
William L. Flournoy, described
the history of the Neuse River in Wake County and discussed the
future role it may play in an urban community. This relevant
study focused upon the recreational, economic and environmental
quality issues relating to the Neuse River Corridor and the
options and opportunities this Corridor presents to the City of
Raleigh and Wake County at large. By 1989, the Raleigh
Comprehensive Plan identified as one of its natural
environment policies the protection of the Neuse River and its
flood plain as a regional open space resource. The Raleigh
Parks Plan, a part of the Comprehensive Plan, states that
future recreation demands may dictate the need for a new type of
park in the hierarchy of the Raleigh park system. This
"regional park" would be a large-scale facility
focusing on the citizens of Raleigh, adjacent municipalities and
counties. The Parks Plan recognizes the importance of the Neuse
River Corridor as a significant resource throughout Wake County
and the City of Raleigh, and identifies the Corridor as a
possible regional park. The Plan also identifies urgency for
action to protect this Corridor from rapid growth and
development. The Parks Plan outlines nine recommendations
regarding the development of the Neuse River Corridor as a
regional park:
1. Maintain for the Neuse River Corridor the highest priority available for resource allocation;
2. Establish a steering committee to develop concepts for the Neuse River Corridor;
3. Establish a committee of citizens to advise and review recommendations of the steering committee;
4. Maintain the land acquisition process necessary to ensure the development of the proposed Greenway;
5. Identify and protect those parcels of land which are wetlands or rare habitat for flora and fauna;
6. Continue to work with Wake County and the State of North Carolina to develop a conceptual Master Plan for the Corridor;
7. Target critical land holdings in the proposed Corridor and purchase options on such land, purchase such land fee simple, or secure through life tenancy;
8. Identify target park sites abutting or accessible to the Corridor for acquisition and connection to the Corridor as a parallel priority of this development; and
9. Establish the guidelines for
a Neuse River Corridor overlay zone to govern development within
and adjacent to already protected acreage within the Corridor.
The City has taken action on some of the initial recommendations outlined in the Raleigh Parks Plan. The efforts of this Master Plan process focus upon establishing the framework for protection of the Neuse River Corridor and its development as a regional park.
The Neuse River basin
encompasses 6,192 square miles in 19 counties and contains
roughly one-sixth of the state's population. It is the third
largest river basin in North Carolina and is one of only three
major river basins whose boundaries are located entirely within
the state. The Neuse River originates at the confluence of the
Eno and Flat Rivers northwest of Durham in the northern Piedmont
region of North Carolina. This point is now covered by the waters
of Falls Lake. The river flows 200 miles southeasterly past the
cities of Raleigh, Smithfield, Goldsboro, Kinston and New Bern to
the tidal waters of Pamlico Sound.
The Neuse River basin traverses two physiographic regions: the Piedmont Plateau and the Coastal Plain, with the transition between these two regions found within Wake County. Land within Wake County represents approximately ten percent of the Neuse River basin.
The project area, bounded on the
north by Falls Lake Dam, extends approximately 18 miles to the
Poole Road crossing and includes one-half mile on either side of
the river. In the northern portion of the study area (Falls Dam
to Buffaloe Road), the City is constructing a canoe launch at
Falls Rapids and owns the 135 acre Horseshoe Farm Park on the
east bank of the river north of US-401. Along the southern
segment (Buffaloe Road to Poole Road), the City owns several
parcels adjacent to the river. These include a 9.6 acre parcel
south of Buffaloe Road at Elizabeth Road on the west bank of the
river, Milburnie Park - West (formerly called Neuse River West
Park) (35.2 acres), Milburnie Park - East (formerly called Neuse
River East Park) (23.9 acres), Anderson Point Park (105 acres)
and a 22.7 acre canoe access north of Poole Road on the west bank
of the river.
Milburnie Park and Anderson
Point Park are City-owned undeveloped park sites within the
project area. Milburnie Park, centered around Milburnie Dam,
located fourteen and one-half miles downstream from Falls Dam and
approximately one-half mile north of US-64, includes two
City-owned park sites. Milburnie West (formerly Neuse West Park)
is a 35-acre site on the west side of the river above the dam.
Milburnie East (formerly Neuse East Park) is a 25-acre site on
the east side of the river below the dam. The area referred to as
Milburnie Park in the plan includes both of these sites, along
with land within the Corridor immediately adjacent to these
sites. Anderson Point Park is a 105 acre site located at the
point where Crabtree Creek flows into the Neuse River,
approximately two miles downstream from Milburnie Park. The
Corridor segment between these two parks is also part of the more
intensive planning process.
The initial and basic objective set forth by the City is to develop a comprehensive recreation master plan for the Neuse River Corridor to guide acquisition and development along the Corridor from Falls Lake Dam to Poole Road. The project goals are:
1. Protect, enhance and bring attention to the prime natural resource - the river and its ecological system;
2. Develop recreation resources within and adjacent to the Corridor to provide opportunities to experience and enjoy the river Corridor in many different ways;
3. Develop a long distance trail system with opportunities for loop routes of varying lengths, accommodating a variety of modes of non-motorized travel;
4. Provide access points along the Corridor for both local and regional use. These access points should include, at a minimum, adequate parking, clear wayfinding information, and other trail-related facilities;
5. Identify opportunities for development of river-oriented park facilities adjacent to the river Corridor and upland sites for field sports and other intensive-use, active recreation facilities; and
6. Identify and preserve or
develop connections between the river Corridor and private and
public land to diversify and expand access to and use of the
river Corridor.
The project objectives also
include development of detailed master plans for Anderson Point
Park and Milburnie Park, including intensive study of the
Corridor between the two sites. The main goal for the park master
plans is to take full advantage of these prime locations along
the river for river-oriented and other unique recreation
facilities for the entire Raleigh community. A key function of
these parks is to provide access to the greenway and to provide
recreational facilities which complement and enhance the
recreational opportunities offered by the Corridor.
The Parks and Recreation
Department categorized Anderson Point Park as a Community Park
within the City's park system hierarchy. The department staff
identified the need for a community center at one of the sites,
based on the district needs stated in the "Parks, Recreation
and Open Space" component of the Comprehensive Plan. They
also requested that the master plans for the two parks include a
mix of active and passive recreation, including play field areas,
picnic facilities, play areas, and trails. They also identified a
need for an Adventure Center with a ropes course to be used in
association with the existing Adventure Program run by the
department. This program currently makes extensive use of the
segment of Corridor between Milburnie East and Poole Road for
canoe training.
The plan for the Corridor
between the two parks establishes the main elements and character
of this segment of Corridor. It establishes the framework for
land uses and travel along the greenway Corridor in general.
Essential elements include the trail systems, links to the
adjoining neighborhoods and parks, as well as recognition of
special places along the Corridor.
(concept drawing of regional park)
A regional park along the Neuse
River will create a recreational resource unmatched in the
region, and will simultaneously serve to protect the region's
major natural resource. The river Corridor offers tremendous
recreational potential. The linear nature of the Corridor allows
opportunity for activities that often conflict with others in a
traditional park setting. A Corridor can provide more apparent
open space than a typical park due to its proportionally higher
amount of linear edge. In addition to water-dependent activities
such as canoeing, kayaking and fishing, the river Corridor can
accommodate hiking, bicycling, rollerblading, bird watching,
running and many other outdoor pursuits. The addition of upland
park sites linked to the river Corridor creates opportunities for
a broad range of active recreation facilities to complement the
Corridor offerings. Acquisition of a relatively small amount of
upland property in conjunction with the river Corridor creates
potential for a series of major parks, each with a unique
recreational focus and character, linked together by river
greenway to form an outstanding regional park.
A river-oriented regional park
along the Neuse River is likely to have a substantial economic
benefit to the City and to Wake County as a whole. Rivers and
greenway Corridors are traditionally recognized for their
environmental protection, recreation values, and aesthetic
appearance. These Corridors also have the potential to create
jobs, enhance property values, expand local businesses, attract
new or relocating businesses, increase local tax revenues,
decrease local government expenditures, and promote a local
community (National Park Service, 1990).
Greenways can stimulate the
economy by providing an array of economic and quality of life
benefits. Numerous studies demonstrate that linear parks can
increase nearby property values, which can in turn increase local
tax revenues. Spending by residents on greenway-related
activities helps support recreation-oriented businesses and
employment, as well as other businesses that are patronized by
greenway users. Studies show that in urban, suburban and rural
areas, properties near trails, forest preserves, rivers, or
protected Corridors consistently show equal or higher property
values than more distant properties (Maryland Greenways
Commission, 1994). In cities such as Boulder, Seattle and
Philadelphia, studies indicate that property values near
greenbelts are highest and decline with distance from the
greenbelt. The largest value increases are often for houses with
views of or immediate access to greenbelts. These properties were
also easier to sell. The findings of these national studies are
borne out by Raleigh's experience with the existing greenway
system. The neighborhoods and properties adjacent to existing
greenway trails are some of the most sought-after residential
locations in the City.
Potential economic benefits will
largely depend upon the amenities offered, the scale and
magnitude of the project, accessibility, level of projected use,
and intended users (National Park Service, 1990). The greater the
amenities provided by the project and the heavier the potential
use, the greater the potential economic benefits are likely to
be. Development of a regional park focused on the river greenway
Corridor will greatly increase these benefits.
Conservation of the river
Corridor as greenway may result in reduced costs to local
governments, other public agencies and the community as a whole
by reducing the need for more expensive flood and pollution
control measures and reducing potential for flood damage to
private property.
The Neuse River Corridor
provides numerous ecological functions for the region. It
incorporates diverse plant and animal habitats and serves as a
conduit for wildlife migration. In a natural state, the river and
associated wetlands function to collect and transport stormwater
and, consequently, serve to control flooding. They also act as
natural filters, trapping sediment and cleansing surface water,
and provide an opportunity for recharge of groundwater systems.
Protection of these natural functions, particularly in an urban
area, is becoming critical as environmental quality issues
continue to increase in importance.
The City of Raleigh's population
increased 41 percent between 1980 and 1990. The City experienced
a 56 percent increase in its total number of households during
the same period. The 1990 Raleigh Comprehensive Plan projects the
heaviest population growth will shift to east of the City.
Development pressures have
already reached the Neuse River Valley. Large subdivisions such
as Village Lakes, Riverbend, Perry Creek and Hedingham, as well
as numerous large lot individual home sites, have been
established over the past 10 years. The City is approving
development plans on a regular basis for large future
developments such as Falls River (Duke property), Wakefield, and
North College Park, just to name a few. Developers are also
preparing preliminary plans and zoning applications for hundreds
of acres of land along the Corridor. Planning for a regional park
along this Corridor is timely and must quickly take the form of
action before private development projects overwhelm
opportunities still available.
Due to the extensive size of the project area and complexity of issues associated with it, the planning approach for this study was simple and direct. The City retained a planning team, consisting of the firms of Mark Robinson & Associates P.A. of Raleigh and JJR/Johnson Johnson & Roy of Ann Arbor, Michigan, to work with a Master Plan Committee and Parks and Recreation Department staff to produce this Master Plan. The team interviewed citizens and City staff members regarding the Neuse River Corridor and its surrounding area. These people identified the following key points to guide the planning process:
1. A vision is needed for the Neuse River which anticipates needs, capabilities and opportunities to be addressed over a 20- to 50-year period of time;
2. Adjacent to the Corridor, the development pace has quickened recently. Consequently, there is pressure to plan and act now before opportunities are lost;
3. There is no other resource like the Neuse in the Raleigh area; and
4. There is a need to bring more
people to the water, to let them know that the river is there,
and to accommodate and develop water-based recreational
activities.
The team prepared an inventory
of the basic characteristics of the river Corridor and of the
Milburnie and Anderson Point Park sites. The Corridor inventory
was based primarily on maps and other documentation provided by
the City to identify various aspects of the physical and cultural
environment of the project area. The planning team also explored
the area by airplane, canoe, car and foot to get a firsthand view
of the Corridor. The Milburnie and Anderson Point park sites were
examined in more detail. The inventory work resulted in an
understanding of 1) the ecological context of the river, 2) the
existing and projected patterns of development surrounding the
river and 3) the scope of recreational opportunity which this
Corridor and the two park sites could potentially accommodate.
The planning team then presented an analysis of the inventory to
the Master Plan Committee and used this analysis, along with
program direction provided by the Committee, the Parks &
Recreation Department and others, as a basis for the Corridor and
park master plans first shown to the Committee.
The City assembled a Master Plan
Committee of Raleigh residents to assist the City with creation
of the Neuse River Corridor Master Plan. The Master Plan
Committee first met on October 11, 1995, for an introduction to
the process, followed by a field trip on November 4 to visit
several sites along the river, including both parks.
On January 17, 1996, the
planning team presented to the committee the inventory and
analysis for the Corridor as a whole and, in more detail, for
Anderson Point Park, Milburnie Park and the segment of Corridor
in between. The committee met on January 24 to discuss and
develop program guidelines for the Corridor.
A public information meeting was
held on February 27 to solicit input from citizens and to give
them an opportunity to voice concerns. This meeting was attended
by approximately fifty people, most of whom were very supportive
of the plans for the Corridor and parks. The main concerns
focused upon the possible conflicts between public greenway users
and adjacent property owners, particularly in the Foxcroft area.
(workshop photo)
The committee and planning team
met again on February 28 for an interactive workshop focused on
presentation and discussion of the conceptual framework for the
Corridor master plan and three alternative plans each for
Milburnie Park and Anderson Point Park. The committee approved in
principle the conceptual framework for the Corridor master plan
and selected the preferred master plan elements for each of the
park sites. A follow-up meeting was held on April 3 to discuss
the master plans for Anderson Point Park and Milburnie Park in
more detail, including revisions to the previously agreed-upon
plan for Anderson Point Park. At this meeting the committee
reached agreement on master plans for both parks.
On April 24 the planning team
presented the conceptual framework and master plan for the
Corridor as a whole, and final master plans for Anderson Point
and Milburnie Parks to the Master Plan Committee. After some
discussion, the committee members present approved all the plans
presented. The committee requested completion of the written
report so that the plans and report could be presented to the
Parks Advisory Board as a complete package. The committee met on
May 15 to review the first draft of the master plan report and
met again on June 4 to review and approve the final text. They
then approved the plan for presentation to the Parks and
Recreation Advisory Board at their next meeting.
This Master Plan, including the
Master Plan and Conceptual Framework for the Neuse River
Corridor, and the Master Plans for Milburnie Park and Anderson
Point Park, was presented to the Raleigh Parks Recreation and
Greenways Advisory Board on June 13. The board approved the plan
and in turn presented it to the Raleigh City Council for its
consideration on June 18, 1996.
(Wake County Current Land Use Map)
The Neuse River Corridor lies
within Raleigh's North, Northeast and Southeast Districts. The
Northeast District contains a large segment of the Corridor.
Single family dwellings account for over 25% of the land use in
the Northeast District, while multi-family dwellings comprise
only 2% of the area. A majority of the land, however, is
undeveloped. The open space/potential development and
agricultural land use categories occupy 62% of the District
acreage. The Neuse River and its associated recreational uses
make the district attractive for residential development and much
of this land is currently being rezoned for additional
residential development in the near future.
As these statistics indicate, a
majority of the land along the river is either undeveloped or in
agricultural use. This is especially true in the northern portion
of the study area (Falls Dam to Buffaloe Road). Single family
residences make up much of the developed land along the river and
are more prevalent along the reach from Buffaloe Road to Poole
Road.
(Map of Jurisdictional Boundaries)
Jurisdiction for land use
regulations along the river is divided between Wake County and
the cities of Raleigh, Wake Forest and Knightdale. It is likely
that the County's jurisdiction will eventually be relinquished to
one of these municipalities. The boundaries between Raleigh, Wake
Forest and Knightdale, while generally identified, are not
assumed to be absolutely fixed at the time of this report.
(Summary Table of Zoning Districts by Municipality)
Zoning categories generally
reflect holdovers from the rural past or are residential in
anticipation of the most prevalent development pressure. Current
zoning, except for conservation district, has little influence on
Corridor development other than as a sign of likely adjacent land
use.
(Land Use Controls Continuum Diagram)
The conservation buffer zoning
district, flood plain development standards and the greenway
easement, along with the transfer of development density from
flood plain areas to upland areas are the primary land use
controls currently used to protect the river and gain access
along its banks.
The development of parks has
traditionally occurred on land owned outright by the City. The
expansion of City holdings has traditionally been through fee
simple acquisition; that is, the City buys the property outright
without any encumbrances or limitations upon the property title.
Fee simple acquisition can be modified to allow life tenancy by
the seller. While fee simple acquisition remains a primary tool
in the City's effort to assemble land for recreational purposes,
other tools for resource protection and use are being utilized
and can be used even more to meet the City's objectives.
Alternatives to fee simple acquisition include:
Easements: Easements can
be utilized to achieve some degree of protection or to enable
right of passage across some properties that the City is unable
to acquire. Easements allow a private owner to retain ownership
while agreeing to allow the City to influence some aspect of the
property's use or development. A conservation easement may simply
involve a property owner's agreement not to develop a particular
site or it may provide for active management of the site by the
City. For example, a scenic easement may establish a buffer zone
adjacent to the river within which no development or clearing of
vegetation could occur. The City currently acquires greenway
easements along the Neuse River within the 100-year flood plain
or 150 feet of its bank, whichever is less, which allows the City
to develop and use a greenway trail. This provision could be
strengthened by changing the wording to establish a greenway
easement over the 100-year flood plain or within 150 feet of the
river bank, whichever is greater.
Gifts: The City may accept gifts of property as a low cost strategy for enlarging the Neuse River regional park while providing a legacy for the interested donors. Depending upon the type of gift, the property may be appropriate for use as parkland or for use as property to trade for more desirable property.
Life Tenancy: Property
owners can sell or give the City property but retain the right to
live on the land for the rest of their lives.
Zoning: Zoning can be
used as a tool to control certain aspects of a private land
owner's property for the benefit of the broader community.
Currently, a Conservation Buffer District is used as a tool to
protect the 100-year flood plain in the portions of the Corridor
most recently rezoned or annexed into the City from the County.
This type of protection could be strengthened by expanding the
current use of the district to include use as an overlay district
to allow protection of resources in the public interest.
Transfer of Density/Transfer of Development Rights: A planning policy allowing transfer of density or transfer of development rights (TDR) enables a land owner, with the City's approval, to transfer the development capacity from land that is less suited to development to land which is better suited for development. This strategy recognizes that land has inherent characteristics which make it either better or worse suited for development, and that it is in the general public's best interest that a developer be allowed and encouraged to only develop the land that is good for development. In this way, land which serves many other benefits such as flood protection, recreational opportunities, wildlife habitat, etc. can be preserved or developed for that use. The City currently allows and encourages transfer of density within a tract of land. The City could broaden the application of this concept to allow transfer of development rights to other parcels.
Grant Programs: Federal
and State funds have historically been distributed to deserving
local units of government through competitive grant programs. The
City could use this type of partnership to leverage land
acquisition or development funds.
Intergovernmental Agreement:
Public sector partnerships are contracts between governmental
agencies which may deal with a variety of open space issues.
Partnering with Wake County, Wake Forest, and Knightdale will be
an important component of this plan for recreation along the
Neuse. Encouraging the protection and recreational development of
land controlled by neighboring communities encourages a win-win
relationship whereby the residents and facility users of each
community benefit.
Public/Private Partnerships: Relationships between the City and private-sector stakeholders can also provide mutual benefits. Private developers are often receptive to providing open space, linkages, and access through proposed developments. This relationship is occurring along the northern reach of the study area. The developers of Falls River, for example, have recognized the added benefit to future residents of environmentally sensitive design and establishment of linkages from their neighborhood to the greenway system. Plans for this development designate the entire 100-year flood plain as greenway corridor and include greenway corridors connecting the interior of the site to the river Corridor. Private-public partnerships could also involve private construction of public greenway trails on privately owned land.
Land Banking: Creating
City partnerships with non-profit conservation groups can be
beneficial to the objectives of both groups. These conservation
groups can often acquire potential parkland and critical greenway
links on behalf of public agencies. They have the advantage of
being able to move quickly to purchase and hold open space while
a public agency such as the City secures financing - in effect
land banking the site until public ownership can occur. The
Nature Conservancy, Trust for Public Land or local organizations
(e.g. Triangle Land Conservancy or Friends of the Neuse) may be
able to assist the City in this manner.
Wetlands Mitigation Projects:
When wetlands must be impacted and/or destroyed by essential
development, the U.S. Army Corps of Engineers often requires
creation of new wetlands and/or enhancement of degraded wetlands
as a means of mitigation. This could involve the establishment of
created wetlands or enhancement of degraded wetlands adjacent to
Corridor parkland and transference of ownership and
responsibility for preservation to the City.
Management Agreements: A
management agreement between a private landowner and the City may
improve the condition of a natural landscape or protect the
quality of land owned privately through the use of staff
expertise and other resources. For example, an agreement to
install additional storm water retention or to reestablish
vegetation along the river in some areas could improve the
overall water quality of the river, thus improving the resource
for all.
Leases: Leases can
provide open space benefits in the short term. However, perpetual
protection and use of the property is not guaranteed. Leasing can
be a valuable short term tool to facilitate later acquisition of
the same property or fill an immediate need until acquisition of
another parcel can occur.
Each of these strategies could
be implemented to help the City reach the goals of this project.
Each strategy has times when it would be the most appropriate
solution. However, these strategies can often be used to greatest
advantage in tandem. These tools can also be used as interim
solutions on the road to outright acquisition.
The existing road system adjacent to the Neuse River includes six road crossings of the river at the following locations:
Falls of Neuse Road
US-1
US-401
Buffaloe Road
US-64
Poole Road
Additionally, two railroads
cross the river. The CSX crosses just upstream from US-1 and the
Norfolk Southern Railway crosses south of US-64 through the
northern section of Anderson Point Park.
The adopted Thoroughfare Plan
for the urbanized area is mutually approved by the governing
bodies of all local jurisdictions and the North Carolina
Department of Transportation. It includes those roadways which
are considered the most important Corridors for safe and
efficient travel throughout the City and the region.
The most significant additions
to the roadway system in this area will be the Northern Wake
Expressway (Outer Loop), the easterly extension of Raleigh
Boulevard, upgrading to freeway status the portion of US-1 which
is north of the proposed Northern Wake Expressway (Outer Loop)
and the US-64 Bypass.
Projects in the Northeast also
include improvements to two major thoroughfares: the extension of
Spring Forest Road to Buffaloe Road and the widening of US-401
from US-1 North to Ligon Mill Road. Planned minor thoroughfare
improvements are the extension of Highwoods Boulevard to the
proposed Raleigh Boulevard, construction of Neuse River Road from
Falls of Neuse Road to US-1 and completion of Southhall Road from
the proposed Spring Forest Road to Rogers Lane at US-64 east.
East of the river, projects
include the Hodges Road/Old Milburnie Road connector,
continuation of Raleigh Boulevard to the Northern Wake Expressway
and Forestville Road, realignment of Mitchell Mill Road at US-401
and realignment of three minor thoroughfares east of Forestville
Road.
These proposed road improvements will result in the addition of four new river crossings. plus construction of a new bridge in place of the existing US-401 crossing. Falls of Neuse relocation will include a new bridge south of the existing bridge which will remain in place. The Northern Wake Expressway (Outer Loop) will include a new bridge north of Buffaloe Road. Raleigh Boulevard extension will include a new bridge halfway between Buffaloe Road and US-64. The US-64 Bypass as currently proposed by NCDOT will require a new crossing through Anderson Point Park. The proposed US-64 Bypass will result in taking of park land which will require acquisition of additional park land by NCDOT to mitigate this loss and the construction of an access bridge connecting the two segments of the park.
(Map of bridges)
The "Interlocal Cooperation
Agreement" between the City of Raleigh, the County, and the
private sector provides for joint responsibility for wastewater
services to be supplied through the Neuse River/Perry Creek
wastewater collection system. One of the main goals is to
incorporate small package treatment plants into the wastewater
collection system. The development of the 3.5 mile greenway trail
along the Neuse River was linked to sanitary sewer easement
acquisition and construction. Although sewer easement acquisition
is not technically tied to greenway development, it provides a
convenient tool for efficient acquisition.
As the City of Raleigh continues
to expand, development will soon encompass the Neuse River. The
primary type of development anticipated for this area is single
and multi-family residential. Commercial development is
anticipated in the vicinity of the US-64 Neuse River crossing as
well as a proposed commercial center where US-401 intersects with
the proposed Northern Wake Expressway (Outer Loop). These
commercial centers will increase development pressure on the
river but they will also provide an opportunity to increase
awareness and use of this special resource.
The Neuse River traverses two
physiographic regions: the Piedmont Plateau and the Coastal
Plain. The project area coincides with the meeting point; the
rocky transition area between the two regions known as the
"fall line" starts at Falls Dam and extends to Poole
Road.
The Piedmont Plateau is typified
by highly-erodible clay soils, rolling topography with broad
ridges and sharply defined stream valleys, and low gradient
streams composed of a series of sluggish pools separated by
riffles and occasional small rapids (picture of rapids).
Stream flood plains are relatively narrow and mostly forested.
There are no natural lakes in the region but several small ponds
have been created. Soils in the region are underlain by a
fractured rock formation with limited water storage capacity
which offers only a limited supply of groundwater. The Piedmont
Plateau makes up 40 percent of the river basin, encompassing much
of the Raleigh-Durham area, and is more populated and
industrialized than the Coastal Plain. Despite the increasingly
urban nature of the region, agricultural activity remains
widespread, and forests occupy over one-third of the land area.
The Coastal Plain is
characterized by flat terrain, low-lying swamplands and
productive estuarine areas. Streams, including the mainstream of
the Neuse, are much more meandering, slower-moving, have lower
banks, and are often lined by extensive swamps, bottomland
hardwood forests, or marshes. The Coastal Plain is underlain by
deep sands and groundwater is more abundant. Forestry and
agriculture are the primary land use activities in the Coastal
Plain.
The project area is generally
underlain by relatively uniform bedrock, lying at some distance
below the ground, which does not particularly affect the dynamics
of the river. There are, however, several linear outcrops of a
harder rock called diabase dikes, which run along and across the
river in several places in the project area. These outcrops have
caused the river to change course abruptly in places, such as at
Riverbend. An outcropping of the Rolesville Dome, a granite rock
formation, caused the river to change course dramatically in the
vicinity of Horseshoe Farm and US-401 crossing, forming two
horseshoe shaped bends. Rock outcrops have created rocky rapids
in places along this otherwise flat-water Corridor and steep
rocky slopes and knobs close to the river banks. These rocky
slopes have fostered development of communities of plants more
commonly found in the mountains, such as mountain laurel,
especially where the slopes face north or east. The flood plain
is very narrow in these areas.
Within the study area, the river
is relatively uniform in width. Exceptions occur at the rapids
below Falls Lake, the impoundment above Milburnie Dam and the
area below Milburnie Dam where the river is much wider. The river
bottom substrate varies from sandy/silty to rocky with areas of
large rocks scattered throughout.
The reach of the river north of
US-401 has been impacted by flood surges associated with
intermittent discharges from Falls Lake Dam. Release from the
dam, controlled by the Army Corps of Engineers, can cause
dramatic fluctuations in water levels below the dam. The results
of these extreme fluctuations in water volume and velocity
include scouring and bank erosion to the first levee. Despite
such unnatural conditions, some stretches along the northern part
of the river contain beautiful examples of flood plain and
bottomland forests. This is especially true at the oxbow area on
the west bank just south of the US-1 crossing and at Horseshoe
Farm. The reach of the river below US-401, although containing
more residential development, contains a more typical flood plain
cross-section.
The water quality of the Neuse
River within the project area is considered to be generally good.
In the project area the undisturbed flood plain acts as a buffer
that removes nutrients and pollution from urban runoff before
they reach the water courses. Studies show that natural woodland
is far better at removing silt and other pollutants than is lawn.
The greenway Corridors established by the City of Raleigh, along
with other nutrient and pollution management measures, serve to
protect the water quality of the river.
Increased urban development and
population growth of the region as well as agricultural activity
are causing the water quality of the Neuse River to deteriorate
along the course of the river. Urban runoff includes high levels
of pesticides, heavy metals, nitrogen and siltation from
construction activities. Agricultural runoff includes high levels
of pesticides, fertilizer, silts, and animal wastes. In 1995
several major failures of animal waste facilities resulted in
these wastes being released into the Neuse River. The water
quality of the Neuse River was lowered. The result in 1995 was
three major fish kills which occurred in the lower Neuse River.
With increased urban development in both the upper basin where
Raleigh is situated and in the lower basin, it is not only
important to continue acquisition and protection of the Neuse
River and its tributaries, but to increase efforts to intercept
pollutants prior to discharge into the river. Neuse River water
quality is a major agenda item for the region.
The flood plain of the Neuse
within the project area is generally broad and forested. The
width on each side of the river ranges from less than 40 feet at
the narrowest points to over 1500 feet at very wide areas, with
an average width of 300 - 400 feet along much of the Corridor. A
large portion of the 100-year flood plain is frequently or
permanently flooded and is categorized as wetlands. In much of
the Corridor the flat portion of the flood plain lies at or below
the level of the 10-year flood elevation and is therefore flooded
at relatively frequent intervals. This level is typically 8 - 12
feet above the normal water level of the river. The 100-year
flood elevation is typically 5 or 6 feet above the general level
of the flood plain. In some areas there is a steep valley wall
between the flood plain and the adjacent uplands; in other areas
there is a more gradual transition.
Flooding along the Corridor is
controlled in large part by the U.S. Army Corps of Engineers. The
Corps has reduced the possibility of the extremely high flood
levels which occurred occasionally prior to the creation of Falls
Lake. The Corps can, and at this time does, release water at the
rate of a naturally occurring 100-year storm event and the
100-year flood plain remains a functioning part of the river
system.
Flood plain areas are generally
forested in mixed hardwood species. Farming has occurred on small
areas within the flood plain, and larger areas have been timbered
at times in the past. The wetness of the flood plain land in
general and the frequency of flooding has limited development of
the flood plain for agricultural or residential purposes in the
past. Even where adjoining flood plain land was timbered or
cleared, a wooded buffer remains along the river edge, resulting
in a fringe of mature hardwoods along much of the river. The
nature of these forest communities varies depending on the
relative height of the flood plain among other factors; oaks are
more prevalent at higher, drier elevations, with sycamores and
river birches more prevalent in lower areas.
Wetlands along the Neuse River
within the project area include riverine wetlands, wetlands
contained within a channel, such as the river itself, along with
tributary streams and creeks, and palustrine (non-tidal) wetlands
which are forested or dominated by shrubs and emergent
vegetation.
A majority of the forested
wetlands along the river Corridor are dominated by broad-leaved
deciduous trees. This would include such species as water oak (Quercus
nigra), sycamore (Platanus occidentalis), river birch
(Betula nigra), green ash (Fraxinus pennsylvanica)
and red maple (Acer rubrum). This type of wetland is
common along the Corridor and is typically associated with the
river flood plain.
Less common wetland systems
found adjacent to the river include forested wetlands that
contain bald cypress (Taxodium distichum) and emergent
wetlands dominated by persistent and non-persistent vegetation
such as cattail (Typha latifolia), pickerelweed (Pontederia
cordata) and arrow arum (Peltandra virginica). Bald
cypress wetlands are unique because the Neuse River represents
the western limit of the range where this species normally
occurs. Emergent wetland communities, typically referred to as
marshes, provide excellent opportunities for wildlife
observation. Emergent wetlands attract many species of birds,
mammals and amphibians to feed and nest. Due to the relative
scarcity of these wetland communities along the Neuse River
Corridor, they offer excellent opportunities to provide
interpretive experiences.
Rivers and streams act as
natural Corridors for wildlife migration and breeding.
Seasonally, they offer sites for birds and mammals to feed or
nest and provide continuous travelways for movement of
individuals from one location to another. They are also home and
refuge to many animal species. In addition to the river itself,
uplands adjacent to the river with thick shrubby growth or mature
woodlands offer important wildlife habitat.
Many of the wildlife species found in the Neuse River Corridor depend for survival on a variety of habitats, both within the river Corridor and on the adjacent uplands. A species may use one habitat type for a food source, another for cover and yet another for breeding. The river Corridor provides connections between these habitats as well as providing habitat itself. Large tracts of land uninterrupted by roads and development also serve as important wildlife habitat, providing havens for species unable to survive in smaller, more fragmented environments. The extensive wetlands, and large tracts of flood plain and upland forest along the Neuse are particularly valuable for this reason. As noted earlier, wetlands along the river also have special value for wildlife species.
Numerous bird and mammal
inventories have been completed in Wake County by organizations
such as the Audubon Society, as part of their spring bird count,
or by agencies such as the North Carolina Heritage Program or the
Raleigh Parks and Recreation Department while evaluating regional
natural features. Bird species frequently observed along the
Neuse River include Wood Duck, Kingfisher, Green and Great Blue
Heron, Pileated and other woodpeckers, Red-shouldered Hawk, and
various thrushes, flycatchers, warblers and songbirds. Resident
mammals include river otter, beaver, deer, raccoon, gray fox,
cottontail rabbit and numerous moles, voles and shrews. This list
is, by no means, exhaustive. A more thorough inventory of animal
species observed along the Neuse River Corridor would be a
valuable spin-off project of this study. The important point is
that rivers and adjacent habitats are home to many animals, and
protection of these habitats is critical to maintaining the
diversity of species, particularly in rapidly developing areas.
Regional natural area
inventories completed by the North Carolina Natural Heritage
Program and the Triangle Land Conservancy (LeGrand and Astey,
1987 ; LeGrand and Smith, 1993) located three sites along the
Neuse River Corridor where special habitats exist or potentially
exist. These include parcels on the north and south side of the
river just downstream of the US-1 Neuse River crossing, the
Horseshoe Farm property north of the US-401 Neuse River crossing
and the reach of the river from Beaverdam Lake to Poole Road.
The two parcels downstream of
the US-1 crossing contain excellent quality bottomland and swamp
forests. The majority of this area is classified as mature
Piedmont/Mountain Bottomland Forest. On the west side, a swamp
forest is present in what probably represents a remnant oxbow of
the Neuse River. Numerous sloughs are found through this area
that potentially represent important breeding sites for
amphibious species. The area on the north side of the river also
contains extensive wetland areas, including a large wetland lake.
A portion of this area was cleared within the last five years. (picture
of Oxbow)
A natural area at Horseshoe Farm
contains a mature, essentially undisturbed bottomland and
hardwood forest. A well-developed natural levee and a few flood
plain pools are present. Three natural community types are
represented at this site: Piedmont/Mountain Levee Forest,
Piedmont/Mountain Bottomland Forest and Flood Plain Pool. (picture
of Horseshoe Farms)
The reach of the river from
Beaverdam Lake to Poole Road is significant for its aquatic
habitat and contains a rather narrow flood plain several hundred
yards wide at a maximum. This area contains numerous wetlands and
small ponds located in the flood plain. The unique character of
these wetlands is described above. (picture of wetland) The
river itself is home to several animal species of special concern
in North Carolina. The native Neuse River waterdog (Necturus
lewisi), a gilled, aquatic salamander, has been collected at
several sites along this stretch of the river. A rare mollusk,
the ancient floater (Alasmidonta heterodon), has been
collected in two locations but has not been found in recent years
and may no longer exist in this stretch of the Corridor. The
notched rainbow mollusk (Villosa constricta) has also been
taken from the river east of Raleigh.
Records of use by Europeans
within the Neuse River Corridor date back to the early
1700’s, with archaeological evidence of use by Native
Americans well before that time. Over time, bridges, ferries,
mills and farmsteads have come and gone. Some evidence of this
history is still visible along the riverbanks. While it is not
within the scope of this report to investigate past uses along
the Neuse River, numerous records of above and below ground
resources exist with the City and the State. These records should
be reviewed prior to the start of any specific project within the
Corridor. Historic sites along the river identified by the North
Carolina Division of Archives and History are indicated on the
Master Plan. (historic properties map)
Development of a park/greenway
system along the Neuse River may require coordination with
various state and federal agencies. The agencies involved and the
extent of interaction will depend on the type of development
proposed, anticipated impacts to natural resources and potential
sources of funding. Some of the environmental programs that may
affect construction along the Neuse River Corridor are described
below.
Wetlands
Section 404 of the Clean Water
Act authorizes the U.S. Army Corps of Engineers (COE) to regulate
the disposal of dredged or fill material into "waters of the
United States." Waters of the United States include both
wetlands and surface waters. As described in previous sections,
there are numerous wetlands existing along the Neuse River within
the project area. Impacts to these wetlands, including boardwalk
construction, may require coordination with the COE.
Soil Erosion and Sedimentation Control
Prior to construction, Soil
Erosion and Sedimentation Control plans are required to minimize
soil erosion and to prevent siltation of surface water. Local
municipal and/or state authorities. review these plans.
Additionally, projects resulting in the disturbance of five acres
or more will be subject to National Pollutant Discharge
Elimination System (NPDES) stormwater regulations administered by
the North Carolina Department of Environment, Health and Natural
Resources.
Flood Plains/Floodways
Wake County is a participant in
the National Flood Insurance Program. Federal Emergency
Management Agency (FEMA) Flood Insurance Rate maps identify the
approximate boundaries of the 100-year flood plain and floodway.
Construction activities in designated flood plain areas must be
in accordance with FEMA regulations. These regulations are
primarily concerned with residential structures and require
elevation of the first floor one foot above the 100-year flood
plain elevation. The City of Raleigh also requires public roads
to be constructed higher than the 100-year flood elevation.
Construction associated with park and greenway development in the
flood plain and floodway where the main concern is impacting the
flood elevation, will be reviewed and permitted by local
municipal authorities, typically through their engineering
departments.
Threatened or Endangered Species
Federally funded activities are
subject to review by the United States Fish and Wildlife Service
(USFWS) regarding impacts to federally-protected plants or
animals under the Endangered Species Act. In the case of
state-funded actions, the USFWS has the authority to exercise
jurisdiction on behalf of a protected plant or animal. Plants or
animals with state designations of Endangered, Threatened or
Special Concern are granted protection by the State Endangered
Species Act and the State of North Carolina Plant Protection and
Conservation Act. At a minimum, records pertaining to known
occurrences of plants or animals at the federal and state level
should be reviewed early in the design process and certainly
before the start of construction for any specific project along
the Neuse River. A more thorough approach would involve
completion of plant and animal inventories along the Corridor
that would provide a useful database ensuring protected species
would not be affected.
The Comprehensive Plan
identifies the Neuse River as a major Corridor of the Capital
Area Greenway System, with a width of 150 feet from each bank.
City code requires dedication of greenway easement over land 150
feet from the river bank or the 100-year flood plain, whichever
is less, whenever properties along the river are subdivided or
developed. The City has acquired several miles of greenway
easement as land along the river is developed or in association
with the extension of the Neuse River/Perry Creek Sewer line. The
City has also acquired outstanding park sites at Horseshoe Farm,
Milburnie and Anderson Point, and smaller sites at Elizabeth Road
and Poole Road, totaling over 330 acres. In addition to land and
greenway easement acquisition, the City has already built 3 1/2
miles of greenway trails as well as two canoe launch facilities
along the Neuse River.
The City has rezoned several
miles of the Neuse River flood plain as Conservation Buffer as
part of recent annexation agreements and utilizes at least one
mechanism for preserving flood plain areas by encouraging
transfer of density. In recent years, the majority of landowners
and developers along the Neuse have been willing to transfer
their development densities to the uplands and preserve the flood
plain in its natural state.
The team of consultants
inventoried Anderson Point Park and Milburnie Park (formerly
Neuse River Park East and West) in more detail as part of the
master planning process. They prepared summary inventory and
analysis maps for each of these sites and for the segment of
river Corridor which connects them. The two parks are situated
approximately two miles apart on either side of US-64.
Milburnie Park, just north of
US-64, is centered around Milburnie Dam. Milburnie Dam is an
historic stone structure with a more recent hydroelectric plant
at the west end. The dam site is currently in private ownership.
Milburnie East is wooded, with a broad wet flood plain bordered
by steep slopes leading to a small hilltop. Milburnie West is a
relatively open site with a wooded area on the interior side and
grassy slopes along the river. A long high ridge along the
southern edge of the site, underlain by a diabase rock dike,
slopes gradually to the north along the river, with moderate side
slopes extending the upland close to the river's edge.
Anderson Point Park is located
approximately two miles further south along the river, at the
point where Crabtree Creek flows into the Neuse River. This
105-acre farm is divided by an existing railroad which separates
a 12-acre parcel north of the railroad from the main 93-acre
portion of the site. The central uplands are open farmland,
separated from the river flood plain by steep forested slopes.
The site is bordered by the Neuse River on the east and Crabtree
Creek on the west, which come together at the southern end of the
property, forming "the point".
More detailed descriptions of
these two park sites are provided in the sections of the report
which describe the individual park master plans.
The Corridor between the two
parks is representative of the Corridor as a whole. The flood
plain varies from a scant 50 feet in width on the west side along
Milburnie West and in a rocky area just above US-64, to over 1400
feet in width on the west side of the river at the wetland lake
area south of the highway. The wetland lake area is extensive and
includes a variety of forested and emergent wetland habitats
intermingled with drier forest and old fields. There are two
small Class I rapids between Milburnie and Anderson Point, with a
Class II rapids located a short way beyond the end of Anderson
Point Park. This river segment is used extensively by the Parks
and Recreation Department Adventure Program for canoe and kayak
training classes.
The following diagram titled
Inventory and Analysis summarizes the land use, jurisdictions,
Thoroughfare Plan, rapids, wetlands, flood plains, access points
and resource areas suitable for various park types. The 24
circles shown designate special resource areas along the Corridor
considered as possible candidates for the Arrival Park sites
proposed in the following Conceptual Framework.
Canoeing down the Neuse from
Falls Dam to Poole Road, one is struck by the apparent remoteness
of the Corridor. For long stretches the river is edged by
continuous forest on both sides with no visible sign of human
development. Except in a few areas, existing development along
the river is set well back from the banks, beyond and above the
broad wooded flood plain. The Corridor is not completely removed
from the city; sounds of traffic, quarry activities and industry
punctuate the river sounds, but the wildness of the area
certainly stands in contrast with more urban development nearby.
Preservation of the 100-year
flood plain is essential to preservation of the wild character of
the river, as well as the water quality and wildlife value of the
riverine environmental system. The river and flood plain together
form the core attraction for a regional park along the Neuse and
need to be conserved to maintain their special character.
In order to realize the
recreational potential of the river Corridor, three conditions
need to be addressed. First, more frequent and better public
access is needed, including adequate parking. Second, trails are
needed so people can explore the Corridor on land as well as by
river. Public access to the river is at present limited,
especially for people without access to canoes. Thirdly, there
should be opportunities for a range of recreational activities
along and adjacent to the river Corridor to heighten awareness of
the river and provide facilities in an attractive setting. In
addressing these conditions, it is important to keep sight of the
primary goal of conservation of the river Corridor. All
facilities and recreational amenities should be designed and
sited with this goal in mind.
The City has already begun to
address these needs, first by acquiring greenway easement and
park sites, and further by building 3-1/2 miles of trail as well
as parking areas and canoe launches. There are additional
opportunities along the river Corridor to address these needs.
While the character of the Corridor is generally uniform, it is
punctuated at relatively frequent intervals by features of
natural, historical or cultural interest which could serve as
focal points for access and recreational centers. There are
several large parcels of land along the river owned by public or
quasi-public institutions, such as Wake Tech and Capitol Area
Soccer League, with potential for sharing of access and
facilities.
Road bridges offer potential for
access points and pedestrian crossings and opportunity for
increased visibility and public awareness of the park. Beyond
this, there are a number of large currently undeveloped
properties along the Corridor with upland areas well suited for
development of active recreation facilities to complement the
river Corridor. There is also great potential for linkage to
other City parks and surrounding neighborhoods via greenways
along the tributaries of the Neuse. Lastly, there is a network of
existing and proposed roads which roughly parallel the river on
both sides, providing opportunity for greater access and
connections to the Corridor.
Milburnie Park and Anderson Point Park are situated at prime locations along the river. The two park sites are easily accessible from US-64 and contain natural, scenic and cultural features unique within the project area. They also contain land well suited for development of a variety of recreational facilities.
Milburnie Park centers around a historic stone
dam, the only dam remaining within the project area. The park
offers potential for a variety of recreation opportunities. At
Milburnie West the high ridge, the proximity of upland to river
and the open character of the site offer unusually good
opportunities for open parkland with views and easy access to the
river. The more isolated, steep and wooded terrain at Milburnie
East is best suited for less intensive uses which can take
advantage of the rugged woodland character of the site. The
extensive and varied wetland areas around the Milburnie area
provide prime wildlife habitat.
Anderson Point Park is located
at the confluence of the region's two main waterbodies, the Neuse
River and Crabtree Creek. The rolling open upland fields in the
center of the site are scenic and well suited for informal play
and passive recreation. The river is separated from the uplands
by steep wooded slopes and wet flood plain areas, making it more
challenging to provide easy access to the river banks. The area
around the point is attractive, with large hardwood trees and a
relatively open understory. Its development potential is limited
by frequent flooding and separation from the uplands by a broad
flood plain area and a power line Corridor. It is, however, a
scenic and symbolically important spot with potential for better
views up and down river and up Crabtree Creek. The highway
crossing proposed by NCDOT will greatly affect the current
pastoral and reasonably quiet character of the site, particularly
the upland areas on either side of the proposed highway Corridor.
The segment of Corridor between
and just below these two parks includes several rapids, the only
whitewater in the project area south of the Falls section, as
well as a major wetland area on the west side of the river south
of US-64.