land use plan for the Town of Atkinson, North Carolina

[From the U.S. Government Printing Office, www.gpo.gov]

ATKINSON

COASTAL ZONE
RESOURCES
HD CORPORATION
211 Olt-,
.A84
L16
1976
4505 FRANKLIN AVENUE
WILMINGTON, N.C. 28401

LAND USE PLAN

FOR THE

TOWN OF ATKINSON, NORTH CAROLI14A

Prepared in Accord with

State Guidelines for Local Planning in the Coastal Area

Under the Coastal Area Management Act of 1974.

Submitted to

North Carolina Coastal Resources Commision

May 21, 1976

The preparation of this report was financially assisted by grants from the
State of North Carolina, the National Oceanic and Atmospheric Administration,
and the Coastal Plains Regional Commission.

US Department of Commerce
FC:L-% Coantal Scrvices Center Library
223,1 South Hoboon Avenue
Charleston, SC 29405-2413

TABLE OF CONTENTS

Page.Number

INTRODUCTION

Purpose of a Land Use Plan in North Carolina
Coastal Area Management

Method of Preparing the Plan 1-5

CURRENT CONDITIONS SECTION 1

Population and Economy

Population
Employment 1-2
Commerce 1-3
ExistingLand Use 1-4

Regulations and Policies Concerning Land Use 1-8

Location Regulations 1-8
Plans 1-8

Constraints 1-9

ISSUES, OBJECTIVES, AND STANDARDS SECTION 2

Major Issues and General Alternatives 2-1

Population 2-1
Employment 2-1
Service Facilities 2-2
Regulation of Growth 2-4

Objectives and Standards of Atkinson 2-6

FUTURE LAND USE SECTION 3

Factors Influencing Growth 3-1

Land Classification 3-3

Implementation of Town Policies 3-5

REFERENCES.CITED.: SECTION 4

APPENDIX A: PUBLIC PARTICIPATION

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I INTRODUCTION
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PURPOSE OF A LAND USE PLAN IN NORTH CAROLINA COASTAL AREA 14ANAGEMENT

The North Carolina Coastal Area Management Act of 1974 /Chapter

1284 1973 Session Laws (G. S. 113@7 (CAMA) established "....a coopera-

p
tive rogram of coastal area management between local and State

governments" whereby "Local government shall have the initiative for

planning."

Enactment of CAMA was based upon findings by the General Assembly

that

"Among North Carolina's most valuable resources are its
coastal lands and waters."

'.'the estuaries are among the most biologically productive
regions of this State and of the.nation'.'

"an immediate and pressing need exists to establish a
comprehensive plan for the protection, preservation,
orderly development, and management of the coastal area
of North Carolina."

The CAMA established the following goals for the coastal area
management system.

11(l) To provide a management system capable of preserving and
managing the natural ecological conditions of the
estuarine system, the barrier dune system, and the
beaches, so as to safeguard and perpetuate their natural
productivity and their biological, economic and esthetic
values;

"(2) To insure that thedevelopment or preservation of the
land and water resources of the coastal area proceeds in
a.manner consistent with the capability of the land and
water for development, use, or preservation based on
ecological considerations;

"(3) To insure the orderly and balanced use and preservation of
our coastal resources on behalf of the people of North
Carolina and the nation;

"(4) To establish policies, guidelines and standards for:

W Protection, preservation, and conservation of
natural resources including but not limited
to water use, scenic vistas, and fish and
wildlife; and management of transitional or
intensely developed areas and areas especially
suited to intensive use of development, as
well as areas of significant natural value;

(ii) The economic development of the coastal area,
including but not limited to construction,
location and design of industries, port facilities,
commercial establishment and other developments;

(iii) Recreation and tourist facilities and parklands;

(iv) Transportation and circulation patterns for the
coastal area including major thoroughfares,
transportation routes, navigation channels and
harbors, and other public utilities and facilities;

(v) Preservation and enhancement of the historic,
cultural, and scientific aspects of the coastal area;

(vi) Protection of present common law and statutory public
rights in the lands and waters of the coastal area."

The planning processe s established by the CAMA include: (a) State

guidelines setting the objectives, policies and standards to be followed in

public and private use of land and water within the coastal area; and (b) a

land use plan for each county within the coastal area.

Following the procedures contained in the CAMA, the Mayor and

Board of Aldermen of Atkinson declared the intent of the Town to prepare a

land use plan in accordance with State Guidelines for Local Planning In

the,Coastal Area under the Coastal Area Management Act of 1974 (Guidelines)

adopted by the North Carolina Coastal Resources on January 27, 1975, as

subsequently amended.

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The Guidelines mandate that each land use plan contain:

1) A statement of Local Land Use Objectives, Policies and
Standards;

2) A Summary of Data Collection and Analysis;

3) An Existing Land Use Map;

4) A Land Classification Map;

5) Written text describing and indicating appropriate
development for Interim Areas of Environmental Concern.

A land use plan is one of many elements that constitute a compre-

hensive plan for Atkinson. The land use plan expresses the way the

democratically elected representatives of the people think the finite land

area should be allocated to best meet the hopes and aspirations of the

people who live and pay taxe's in a specific jurisdiction. A land use plan

can only be thorough when health care, education, transportation, economic

development, leisure time, and other components of a comprehensive plan

are tested against the people.'-s goals and objectives so they can be integrated

into the land use element.

Atkinson's land use plan relies upon those data most readily

available and focuses upon the ma jor emphases of the CAMA: d evelopment

within the capability of the natural resources. Other topics, such as water

and sewer, roads and streets, and employment are consistent with issues

raised by the public, but are peripheral to establishing a basis for

decision-making with respect to land.

It is Atkinson's intention to utilize the plan as a keystone for

all future town activity. The land use plan is a major step in comprehensive

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planning for Atkinson, Matters such as zoning, building codes, Town appearance,,

and community development can be based upon the plan; policy issues, such as

annexation, taxes, maintenance of water quality, health care and employment

are preliminaLrily identified for later study and decision-making as elements

of the Town's comprehensive planning process.

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METHOD OF PREPARING THE PLAN

The Atkinson land use plan was developed as an iterative process

among elected and appointed public officials, the public, and professional

resource specialists.

The iterative process: 1) Sampled public recognition of problems

and opportunities in general terms; 2) defined the known physical, social,

and institutional setting; 3) invited the public to participate in matching

problem solutions with the setting by defining objectives and standards

for the Town; 4) projected factors consistent with the selected Town goals

and the physical restraints; and 5) allocated land according to the pro@

jected magnitude of demand and the physical characteristics of the Town.

Coastal Resources Commission Guidelines emphasize the need to map

-.three sets of@data:- existing land use, land classified according to
p-roj'ected use, in, 1-9-85,- and areas.th-at will be recommended as interim areas

of environmental concern. However, there are-no Interim Areas of Environ-

mental Concern in Atkinson, as those area s are defined in the State Guidelines.

Atkinson data were mapped at a scale of 1 inch = 400 ft. The basic map

medium was an aerial photograph at a scale of inch 200 ft purchased from

the U. S. Agricultural Stabilization and Conservation Service.

@Existing land use was determined by air photo interpretation and

visual inspection of structures, vegetation and water. This method of de-

fining existing conditions permitted rapid identification of hazardous,

fragile, and unique areas to see if any might constitute an area,of environ-

mental concern.

The air-photograph maps are easily reproducible and.will serve as

a useful public information tool.. Additionally, the reproducible photograph

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is available for use as a base map to support other planning activities and

for implementation of the plan.

Details of Atkinson's public participation program are contained

in Appendix A.

The CAMA sponsored planning in the Town was closely coordinated

with comparable activities conducted by the Pender County Planning Board.

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SECTION

CURRENT CONDITIONS

POPULATION AND ECONOMY

Settlement of the Town of Atkinson began in 1822 around a railway

station. For the next 27 years the Town was called Lewis, named for the

man who donated the lot for the station. The Town was incorporated in

1909 and renamed Atkinson in honor of an engineer involved in the completion

of the Cape Fear and Yatkin Valley Railroad. For about the next 25 years,

the town remained a small, but thriving rural community. 'Agriculture

formed the basis of the economy of the a-rea; the Seaboard Coastline Rail-

road ran regularly through the center of town establishing the town as a

center for the marketing and.transfer of the area's agricultural products.

As railroad traffic has declined over the last 30 years, so has the ability

of-,farming tio-provide a.sound economic basis for the area. The railroad

no longer runs through Atkinson, and farming is no longer the principal

occupation.

Po]2ulation

U. S. Census data report a slow but steady increase in the popu-

lation of Atkinson over the last 25 years:, in 1950, the population was 294,

in 1960, 302; and in 1970, 325 (U. S. Department of Commerce.),1973).. ."i".

The most recent estimate made in the town's application for Powell Bill

funds, lists the current population at 340 persons..

The U. S. Department of Commerce classifies populations as Rural

or Urban. Areas defined as being within a zone of commercial influence

and having populations of 2500 or more are classed as Urban; all other

areas are Rural. According to the 1970 U. S. Census of Population, all of

Pender County, including Atkinson, is classed as Rural.

For the two decades between 1950 and 1970, there were not enough

jobs available in the area to accommodate all of Atkinson's high school

graduates and others seeking employment; agricultural activities were no

longer able to absorb.the new entrants into the labor force. Out-migration

of the youth from the town resulted, leaving a disproportionate number of

older people in the residual population. In the last five years, however,

several new industries have opened in neighboring counties, particularly

in adjacent New Hanover County. More of the labor force is now able to

find jobs close enough to Atkinson to remain residents of the town. Further-

more, with increased employment opportunities, Atkinson is now seeing the

return to residency of some of its natives who had formerly left town. The

current trend is toward a more balanced age distribution than existed in
year-s past.

Employment

It is estimated that presently one-half of the town's resident

workers commute to neighboring counties for industrial jobs with General

Electric on US 117, Castle Hayne; DuPont on NC 53W; Hercules on US 421 N;

or Federal Paperboard Co. at Riegelwood. One-eighth,ofthe labor force

is employed in general commerce in Atkinson, such as grocery store, bank,

and service station operation; only about one-fourth@df.'.the townspeople

are, employed in agriculture, producing mainly corn and tobacco; about one-
eighth of the adult population of Atkinson is retired.a

a
John Eakins, Maiior,'-_ Jean Butler,iTown Clerk, Personal Interview, May 24,
1975.

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Commerce

There are no major businesses or industries in Atkinson; the.

largest operation, a grill called Woody's Kitchen, employs only four people.
In the last 10 years, several small businesses have been, established in-

cluding a garage-repair shop, a branch bank, the grill, and a fabric shop.

A convenience store is presently under construction on NC 53 in the

western section of town.

Atkinson's corLmerce can now fill most of the day-to-day shopping

needs of its townspeople, including groceries, banking services, beauty
needs, fabrics and the like. It is still necessary to leave town to obtain
the professional services of doctors, lawyers, and dentists. Burgaw is the
most common shopping place for professional services and for prescription
drugs, large items such as furniture and applian ces, and specialty goods
and services. Some of the commuters working in and around Wilmington find
choices larger and prices lower.in the Wilmington area and do much of their
shopping on the way home from work. For most Atkinson residents, however,
the 41 mile trip to Wilmington is made only on special occasions.

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EXISTING LAND USE

The Town of Atkinson is located in Caswell Township in the western

part of Pender County, 15.5 milesIvirtually due west of Burgaw. The town

is accessible from Burgaw by NC 53, and from Wilmington by US 421 to NC 53.

Wilmington is the population center closest to Atkinson, located 41 miles

to the southeast.

According to 1970 U. S. census data, there are no parts of Pender

County that meet'the population density criteria for being classified as

Urban. All of the county, including Atkinson, is classified Rural-Farm

or Rural Nonfarm. For the purpose of discussing existing land use in

Atkinson, however, the term Urban will refer to nonfarm areas with a

build-up of.residential and/or commercial structures..

There is presently no zoning ordinance or subdivision regulation

that applies to land use in Atkinson. Throughout the town limits, land

use is mixed, with residential, commercial, recreational, public and

institutional land occurring together in a random fashion. The area of

town that serves as the central business district extends for one block

east along NC 53, starting at the intersection of NC 53 and First Street.

Located in this one block area are a gas pump, barber, beauty and fabric

shops, a grocery-store, insurance office, service station, grill, bank

and a post office.

NC 53 traverses the Town of Atkinson from northeast to south-

west, becoming the main street within the town limits. At the time of

its incorporation in 1909, and for the next 60 years, the Seaboard Coast-

line Railroad traversed the town from southeast to northwest. The

railroad tracks were removed in 1972, but the right-of-way and First Street,

which runs parallel and to the east of the right-of-way,,continue to

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function as a transportation corridor. The town, by virtue of NC 53 and

First Str eet, is divided into four sections -- north, east., south, and west.

In the eastern section of Atkinson, land is developed for urban

uses for only two blocks along First Street and five blocks along NC 53.

In this section are several residences, including some mobile homes,

commercial activities, a Masonic Lodge, and a church. The main drainage

canal of the town empties into Mill Branch which, with its tributaries,

runs through this section of town. Little of the land in this section is

presently being used for urban purposes; most is in timber stands of mixed

pine and hardwood; the rest is farmed. There are no roads extending into

this area for more than one block, and no new roads have been proposed

to extend into it further.

-In the southern section of Atkinson, land has been developed for
urban uses for five-blocks along NC 53, and for one and one-half blocks

along the railroad right-of-way.. most buildings are.residences,*.though

a monument yard, welding shop, women's club house, and beauty shop are

1ocated here. 'The Town of Atkinson owns the block of land at the inter-

section of First Street and NC 53, having bought it in 1974 from the

rail road company. The Town's new medical clinic being built in this block

i.s expected to:take up about 4.00 sq. ft. of the 900 sq. ft. of area.

Presently streets extend for one and one-half.to three blocks into this

section of town, with new streets proposed to extend for a total of five

blocks. Most of the land in this part of town that is not being used for

urban purposes is presently supporting timber stands, some of which have

recently been cutover; there is a small amount of farmland in the extreme

southern p art.

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In the western section of Atkinson, land is developed for urban

uses for five blocks along NC 53 and for one and one-half blocks along
First Street. a Land use in this section is predominantly residential,

especially on.those lots that are not located on NC 53. In addition to

the housing in this section are ABC, grocery and convenience stores, a

garage, and two churches, all located on NC 53. Atkinson Junior High

School is located in the second block off of NC 53. Roads extend into

this section of town for only one to five blocks, with the exception of

Sunset Street which continues northwestward across the town limits

becoming SR 1218. The land in this section of town that is not being

used for urban purposes is in the west being farmed, and in the northwest

supporting a pine plantation.

Land is presently being used most intensively in the northern

section of Atkinson, with urban land use extending northwest and north-

east nearly to the town limits. Blocks are large, with only one street,

Henry Street, running parallel to NC 53. The block located at the inter-

section of NC 53 and First Street is owned in large part by the Town of

Atkinsont and contains the Town Hall, Volunteer Fire Department and the:@

Town Park. Land use away from NC 53 is residential, with the exception

of a church@and electrical shop toward the NW town limits. Most of the

land here not presently used for urban purposes is farmed, with some in

the north supporting timber.

There is no land in or immediately surrounding Atkinson currently

being used for industry. There are two tracts of land in Atkinson that

aBlocks in western and northern sections of Atkinson are twice as long as
those,in the eastern and southern sections.

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have been proposed by the Town (in accord with the owner) to be used as

industrial sites. one of these sites is located in the southern section

of town, along NC 53 from Pope Street to the Town limits, and is presently

supporting timber. The second proposed industrial site is located to

the northwest of the school, extending to the town limits between

Sunset Street and the railroad.right-of-way. Part of this site has been

recently cut-over, the rest is a pine plantation.

The only lands in Atkinson equipped for recreational use are

the Town Park and school yard. Conversion of the abandoned Atlantic

Coastline Railroad:right-of-way,,from Richards in Pender County to Kerr

in Sampson County, to a recreation-historic-nature trail has been proposed

by some Pender County residents. Development of this trail would create

additional recreation land in a strip through the town, providing land for

hiking and camping for residents of Atkinson as well as tourists.

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REGULATIONS AND POLICIES CONCERNING.LAND USE

Location Regulations

There are no zoning or subdivision regulations that apply to land

use in Atkinson, but the Town of Atkinson "Code of General Ordinances in

1973" describes structural, lot size, and building location requirements in

the town. Atkinson has adopted the 1968 edition of the North Carolina

State Building Code as its standard; a building permit is required for con-

struction or alteration of.buildings and for the location of mobile homes.

A permit from the Town Clerk is required for the establishment of private

water supplies and sewage disposal systems. Before location of a mobile

home on a lot, written assent must be obtained from adjoining lot owners

and residents, and a copy of that assent must be filed with the Town Clerk.

Authority for enforcement of theTown Ordinances that concern

building and lot requirements is conferred on a Building Inspector to be

appointed by the Town Aldermen. Condemnation decisions, however, are

made by the Aldermen, on the recommendations of the Building Inspector,

Fire Chief, and Mayor.

Plans

The only plans relating to land use that have been developed for

Atkinson concern public water and sewer facilities. At the request of

the Town Board a preliminary engineering report (PER)-of the feasibility of

public water and sewer systems in Atkinson has been@prepared by Henry von

Oesen and Associates, Inc. (1974), Consulting Engineers and Planners. The

PER recommends that both-water supply and waste water collection and

treatment systems be developed in Atkinson with the financial assistance of

the Farmers Home Administration

CONSTRAINTS

There are certain areas of Atkinson where development would be

either especially costly or likely to cause undesirable consequences because

of the inherent characteristics of the land and water. The permeability of

soils, their susceptibility to flooding, and their biological productivity

can and-have exerted influence upon the choice of land areas that can most

economically, and with the least risk and uncertainty, be put to various

uses.

Flooding

The-U. S. Geological Survey is in the process of mapping Flood

Prone Areas of Pender County. The purpose of these maps as stated on

each map is to "show admin istrators, planners and engineers concerned with

future land developments those'..a.reas that are subject to floodinIg. The

flood prone areas shown on these maps have a 1 in 100 chance on the average

of being inundated during any year. The flood areas are being delineated

without consideration of present or future flood control storage that

may reduce flood levels.

The Flood Prone Area map of the Atkinson area has been completed,

and shows the town to be located well outside the area subjected to

inundation by the nearest large stream, the Black River. The Black River

flows approximately four miles from Atkinson and its flood prone area falls

within the 30 ft. msl elevation line in this vicinity. Atkinson is at an

avera ge elevation of About 60 ftmsl. Within the town, however, the water

table remains relatively high throughout most of the year and the perme-

ability of some of the soils is low; as a result, temporary ponding of

water in streets and yards often follows periods of heavy rainfall. The

Town maintains a network of drainage ditches which flow into a central

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canal in the southeastern part of town. Water from the canal empties

into Mill Branch, which enters Moore's Creek southeast of Atkinson. During

some periods of heavy rainfall when runoff is extremely high, Moore 's Creek

is unable to contain all of the water flowing into it; the resultant over-

load of the creek.causes a backup of water in Mill Branch and the drainage

canals, causing further ponding in Atkinson.

soils

According to the U. S. Soil Conservation Service (SCS) "General
Soil Map and Interpretations for Pender County," Atkinson is located
entirely within the Lumbee-Johns-Kalmia Soil Association. This association
is made up predominantly of the Lumbee, Johns, and Kalmia soils each of
which has its particular characteristics and suitability for various pur-
poses. The Lumbee soils are poorly drained and have gray or dark gray
surfaces over gray friable sandy.@clay loam subsoils. The Lumbee soils occur
chiefly on stream terraces and make up about 40 percent of the association.
The Johns soils are moderately,well and somewhat poorly drained with gray
sandy surfaces over friable sandy clay loam subsoils. Johns soils occur on
level uplands and on stream terraces and make up about 30 percent of the
association. The Kalmia soils are well drained with light gray sandy loam
or loamy sand surface over yellowish brown sandy clay loam subsoils. The
Kalmia soils occur on nearly level to gently sloping uplands and stream
terraces and make up about 20 perc ent of the association. The subsoils

of all three of these soils are underlain by sandy material at depths

generally less than 40 inches.,
The Lumbee-johns-Kalmia association includes a dominant portion
of the cropland in the county and most of its soils are well suited for

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both agricultural and woodland uses. The chief limitations for most resi-

dential and commercial uses of these soils are wetness and flooding. The

Kalmia soils have only slight limitations for septic tank fields, structures,

and roads and streets; the Johns soils have moderate to severe limitations

for the above uses due to their susceptibility to flooding; the Lumbee

soils have severe limitations for all the above uses plus agriculture, due

to their wetness and susceptibility to flooding (U. S. Soil Conservation

service 1973).

Sources of Water Supply

Ground water comprises the sole source of water supply in

Atkinson as in the rest of Pender County (Wiggins-Rimer and Associates

1973). The county is underlain by a large aquifer system from which

potable water can be-drawn'at various depths in different localities.

There are four geologic strata in the aquifer system, two of which are

important as sources of water supply in Atkinson.

The Pleistocene and Recent surficial sands cover most of Pender

County and constitute a major water source for individual wells in

Atkinson (Henry von Oesen and Associates 1974). In the surficial sands,

water occurs under water table conditions usually within 15 ft. of the

land surface. Recharge is accomplished direc tly by rainfall, subjecting

the water to possible contamination from the ground surface. The produc-

tivity of this aquifer is limited primarily by its thickness, which varies

locally. In most cases, water yields from wells in the surficial sands

are sufficient for domestic and farm uses; in periods of drought, however,

or when large amounts of water are needed as for fire fighting, yields have

sometimes proven inadequate (Wiggins-Rimer and Associates 1973). In places

where shallow wells are located too close to septic tank fields, contamina-

tion of this water supply may result.

The Peedee Cretaceous sands, limestone and marine clays occur

throughout Pender County and serve as an important source of water supply

in many areas west of the Northeast Cape Fear River. Wells in the Peedee

vary from 50-200 ft. deep and yield up to 300 gpm (Wiggins-Rimer and

P,
Associates 1973). Water quality and yields for specific locations can be

determined only on an individual case basis. Some existing wells in

Atkinson yield water with high concentrations of iron and hydrogen

sulfide to which residents have become accustomed but which newcomers may

find objectionable.

The Peedee formation immediately underlies the surficial sands

in the Atkinson area and is recharged directly by rainfall.

slopes

The Atkinson area of Pender County is characterized by low

rolling hills along water courses, on otherwise nearly level ground; with-

.in the town there is little natural elevation change. Grading of the land

surface during development is required only to the extent necessary to

facilitate proper water runoff to prevent ponding, and to insure good

foundations for structures. There are no steep slopes within the town,

the nearest ones being to the southwest along the Black River and to the

east near Ward's Corner. Along parts of NC 53 between the Black River

and Atkinson there are scenic areas of elevation change and hardwood stands;

a scenic drive can also be found on SR 1201, one and one-half miles north-

west of Atkinson.

Wildlife

Located to the north of Atkinson is a pocosin that is drained by

Mill Branch. Characterized by wet ground and slowly moving water, dense

shrub and low tree vegetation, this pocosin constitutes good wildlife

habitat. Throughout the Atkinson area, vegetation varies from cropland to
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pine stands and hardwood stands, creating conditions favorable to wildlife,

primarily deer.

Communitz Services

The Town of Atkinson's services include a one-man police force

and a 31 member volunteer fire department. The fire department equipment

-includes 1946 and 1970 pumpers, a 1958 tanker, a 350 gpm pump, and a 1973

van for carrying breathing apparatus and other small equipment. The fire
department serves the town and surrounding area within a 3-mile radius;
it is funded by the Town, annual appropriations from the County, private

contributions, fire district taxes and fund raising campaigns.

Under the auspices of the North Carolina Rural Health Services,

a medical clinic has recently been constructed in Atkinson and opened

in September 1975. The clinic provides a full-time family- nurse practi-

tioner and two Burgaw doctors on call. Each doctor also spends one-half

day each week in the clinic. Efforts are being made by the mayor to
find a way to incorporate a prescription drug store in the facility,so
that people using the clinic can obtain medicine in Atkinson rather than

travelling to Burgaw.

The Town provides a maintenance operation to work principally

on streets and ditches in the town.

The Town government's main sources of revenue are property taxes

and ABC revenue and intergovernmental revenue sharing. The Town's main

expenses are the police:force and maintenance operations.

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Many community facilities offered in Pender County are operated

on a county-wide basis out of the town of Burgaw, the county seat. Road

networks in the western part of the county are integrated and distributed

in such a manner as to make the delivery of services out of Burgaw efficient

for the area. Atkinson is located approximately 15.5 miles west of Burgaw

and is within one-half hour's driving time from the town.

The Pender County Memorial Hospital is located in Burgaw and offers

X-ray, laboratory, dietary, surgical, and delivery room services to county

residents. The hospital and adjacent Medical Center operate health clinics

and an emergency room and maintain four Pender County doctors on staff.

Public education is operated by the County. Atkinson youth

attend grades K-5 -at West Pen'der'Elementary, grades 6-9 at Atkinson Junior

High, and grades 10-12 at Pender High School in Burgaw. A school bus

service is operated by the County and provides transportation for all

grades.

A volunteer organization, the Pender County Rescue Squad, Inc.,

was formed in 1961 to serve the whole of Pender County west of the AIWW.

Calls from throughout the area come to the county dispatcher in Burgaw,

who sends out emergency vehicles as needed. The squad is maintained,

financially by an annual appropr iation-from the Town of Burgaw and Pender

County, and by public donations and an annual fund raising project.

Solid waste collection and disposal for the unincorporated parts

of Pender County west of the AIWW has been operated by the County since

February,1973. There is one landfill for the area, located on SR 1640, four

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miles west of Burgaw.. The Town of Atkinson brings garbage to four estab-

lished collection boxes located on the periphery of town. The collection

truck makes as many rounds to each box as necessary two days each week,

followed by deliveries to the landfill.

Water Supply-Wastewater Disposal

There are no public water supplies presently in operation in

the Town of Atkinson. All of the townspeople rely on individual wells or

small private systems (10 connections or less) for their water supplies

Groundwater,comprises the sole source of water, with many water table wells

drawing water'from the Surficial Sands. Throughout the town, the shallow

wells produce water with a relatively high iron content causing some

Productivity of the shallow wells
staining.and,taste and odor problems.

varies but is generally adequate for domestic and farm needs. Water from

deeper wells, such as those drawing from the Peedee formation, is generally

of acceptable quality and quantity.

The Town of Akinson has been studying the need for and feasibility

of a municipal water supply. At this time, however,the-townspeople, most

of whom are satisfied with the existing supply, question the need for such

a system, and have not applied f or funds for its construction.

There is no publ ic wastewater disposal facility in Atkinson. All

of the people rely o n private wastewater disposal systems serving individual

residences and using subsurface disposal methods, either septic tanks or

privies. Some problems have been encountered in the town with contamination

of shallow wells by sewage; the characteristically high water table,

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especially in periods of heavy rains can rise close to the surface and make

contact with effluent. Some of the pollution problems are related to the

soil conditions; where the impermeability of the soils hinders the flow

of effluent downward, lateral flow into the Town's drainage ditches can

occur. The drainage of effluent into ditches poses a potential threat to

the health of the residents of Atkinson and areas downstream. Some problems,

however, are more likely to stem from improper location, installation, or

maintenance of the sewage disposal system.

A study of the need for and feasibility of a municipal sewage

treatment facility has been conducted for the Town of Atkinson. The Town

is presently reviewing the study and deciding on a course of action.

There have been no fragile areas, hazard areas or other areas with

resource potential identified in Atkinson, nor are there any significant

land use compatibility problems, major problems resulting from unplanned

development, or areas experiencing or likely to experience major changes

in predominant land uses. There is virtually no seasonal population change

or economic ac tivity which uses, depends on or may impair land and wate r

resources. There are no municipal floodway ordinances, building codes,

septic tank regulations, dune protection ordinances, sedimentation codes

or environmental impact st atement ordinances.

1-16

SECTION 2

ISSUES, OBJECTIVES, AM STANDARDS

MAJOR ISSUES AND GENERAL ALTERNATIVES

On September 24, 1975, a Town Meeting was held in Atkinson for

purpose of discussing the future of the Town. There were 68 resident

adults in attendance, about 20 percent of the total population. In the

course of the meeting the following issues were discussed;- informal votes

were taken on each issue to obtain a concensus of opinion.

Population

The present population of Atkinson is about 340. This figure

represents a 12.5 percent population increase overall since 1960, or an .8

percent increase per year. Between 1970 and 1975, the increase was .9

percent per year. A continuation of the 1970 to 1975 rate would result in

a population of 375 in 1980; 405 in, 1985, 440: in 1.990, and 525 in 2000.

Atkinson is a small rural town; its residents like it that way

and want it to remain the same in the future. Maintenance of the 1970 to

1975 growth rate would allow for natural increases in population due to the

birth rate, for young adults to remain residents of the Town, and for older

residents to retire in the community. Much higher a growth rate' would require

new service facilities and annexation of property adjacent to the Town in

order to accommodate new residents at the desired low density. A lower

or "no growth" rate, which would result from the outmigration of pro-

ductive youth and young adults, would ul timately change the family-oriented

community into a retirement village.

Employment

Much of the Atkinson labor force commutes long distances to jobs

in. neighboring counties. Commuting allows residents to live in their rural

2-1

home town but work and shop in more urbanized areas. The ever increasing

price of gasoline, however, will put increasing economic pressure on the
commuting population to move closer to their place of work;. to move out of.

Atkinson.

Atkinson has never been the site of heavy industry. Former

business enterprises have centered around the railroad and the area's

agricultural activities. There are two sites in the town proposed for

industrial location, should industry choose to locate in the town. But

neither site-is large, and.neither has the water or sewer facilities often

desired by industry. The location of industry in the town, even if it were

feasible given the limited amount of land in the jurisdiction, would tend

e Town'; the use of the undeveloped
.,"to change_-the rural- atmosphere of th

land for industrial purposes would tend to force new residential growth to

occur outside the town limits. The location of light industry outside but

near the town would allow Atkinson residents the opportunity of working in

their own.county, near their place of residence. Industry near the town

could conceivably encourage the location within the town of professional
and service support enterprises, as well as promote the expansion of existing

Atkinson commerce.

Service Facilities

The lack of industry and large commercial enterprises in Atkinson

results in a low property tax base from which to,draw the revenue required
for municipal service.facilities. Most services currently in operation in

the town are maintained cooperatively by the County, Town, and volunteer,

organizations. Atkinson's size limits the amount of services that can cost

2-2

effectively be maintained by the Town alone. A large compactor type

garbage truck, for instance, as well as a landfill for the single town,

cannot be justified. Equipment required for maintaining the town's

drainage system would stand idle much of the time if it were operated in

Atkinson only. The small population cannot even support.a single doctor

or dentist practicing only in the immediate area.

The Town's residents consider a limited amount of publicly

operated services an acceptable price to pay for their rural lifestyle.

Voluntary local manpower can often accomplish efficiently and free of

charge some service provisions that the Town government could not. Certain

services usually provided in urban centers, such as public transportation

and entertainment, are willingly forsaken in Atkinson as infeasible under

the rural conditions-they desire.

There are problems in Atkinson, however, that concern the health

and safety of the townspeople and,to a certain extent,-residents of unin-

corporated areas nearby. Specifically, the contamination of shallow water

table wells and surface waters in ditches, by improperly functioning sewage

disposal systems, is a municipal-wide problem which the public sector must

try to solve. But solutions are hard to find.

Outside funding:,,could provide as much...'as 87 percent@of'the money.

needed for a municipal water and sewer system; but the remaining 13 percent,

plus future operations and maintenance costs, would be the responsibility

of the Town. Atkinson residents are aware of the pollution problem; but

they are also aware of the high cost of maintenance, operation, and

individual connection and use fees-they would be required to pay. Higher

2-3

taxes and fees would be problem enough forthe working residents who

constitute the bulk of the adult population; but for the retired people,

many of whom are living on social security or other low fixed incomes,*the

taxes and fees required would be impossible to meet.

The municipal services most desired by Atkinson residents are

supervised recreational areas and facilities. The Town has a public park,

but there are virtually no recreation facilities in the park at present.

There are,some organized athletic activities, such as softball teams,

currently utili:@inq the school yard fields. The townspeople would like to

establish a.center for the community recreation, meeting,, fund raising

activities that currently take place in a variety of places, i.e. whe rever

possible.
Regulat,ion of Growth

There are currently no zoning or subdivision regulations to control

growth in Atkinson. Growth in the area has always occurred slowly, most of

it within the municipal jurisdiction. There is no "urban sprawl" threatening

agricultural land use, and with the lack of industrial and business activity,

few problems with property values or confl icting demands for land have

occurred. Atkinson residents realize that such problems have occurred in

other municipalities where growth has been unplanned and unregulated; they

recognize the need for well established public policies to ensure that growth

in the future will be consistent with standards set for their desired

lifestyle.

2-4

Implementation and enforcement of Town policy will require some

professional expertise. Presently the responsibility for condemnation

proceedings and mobile home location approvals rest with the Town Board

of Aldermen. The building inspector is charged with the responsibility

for building permits; the County Sanitarian has the power to enforce the

N. C. State septic tank regulations. The coordination of these authori-

ties in a single body could both simplify permit issuance and reenforce

public policy.

Inresponse to public opinion in the Town Meeting, the Town of

@Atkinson has established the following Objectives and Standards for future

growth and development in the Town.

2-5

.OWECTIVES AND STANDARDS OF ATKINSON

Objective: Atkinson will promote the continued gradual development of

the Town as a rural, family-oriented community

Standard: 1) Public services, including police and fire protection,

solid waste collection, and medical and recreational

facilities will be planned for a population of 375 in

1980, 440 in 1990 and 525 in 2000.

2) The Town will encourage the location of future resi-

dential growth.within the municipal jurisdiction; public

services su pported by the Town with the exception of

fire protection will be provided only within the

existing municipal boundaries.

3) The Town will encourage'the location of professional

and service businesses within the municipal juris-
-diction.

.4) The Town will discourage the location of industry within

the municipal jurisdiction, but will encourage light

industry location in more urbanized areas of Pender

County.

5) The Town wil 1 coope rate with Pender County, the Cape

Fear Council of Governments and the Community Develop-

ment Committee in order to coordinate planning efforts

and facilitate implementation of Town policies.

2-6

Objective: The Town of Atkinson will continue to try to eliminate any

health problems caused by the physical limitations of the

soils and drainage system.

Standards: 1) Inorder to correct any improperly functioning septic

systems, the town will seek the assistance of County

Health Department personnel to determine the cause and

extent of ground and,surface water pollution.

2) The Town will seek County cooperation in assuring the

proper maintenance of the drainage ditch system.

Objective: The.Town of Atkinson will attempt to provide public recrea-

tion facilities for all its population.

-Standards: 1) A recreation committee will be formed in order to survey

the recreational needs of the Town and to establish

priorities for recreational facility development.

2) The Town will endeavor to establish a Town Center to house

recreationalmeeting and fund raising activities.

2-7

SECTION 3

FUTURE IAND USE

FACTORS INFLUENCING GROWTH

The 1975 Atkinson population was estimated to be 340. Projections

for the future call for gradual population increase to between 405 and 425

in 1985 and about 525 in the year 200D.

The projections developed by the Town for future growth in*

Atkinson a population of 405 in 1985, for instance.-- are based on the

estimated rate of growth incurred between 1970 and 1975. That growth can

be attributed partly to natural increases due to the birth rate, but also
to people moving into (or back into) the Town because of increased job op-
portunities in neighboring counties. Even though the town is located.30 to

35 miles from some of these employment centers, its overall appeal as a nice

place to live, the friendliness of its people, and its low taxes can attract
and hold people that might otherwise move closer to their place of work.

Pender County has initiated an economic development program, part

of which involves promoting in-county employment by expanding existing

business and locating new markets and industries. The county has also

established a growth policy of-encouraging new residential and commercial

development within or adjacent to existing communities, in order to reduce.

urban sprawl and@the associated costs of servicing sprawl development

Associated with its-economic,development program, the county has established

a County-wide growth goal calling for a population of 20,800 by 1985 and

25,000 by 1995; this growth goal exceeds projections based on recent

historical trends. In estimating the 1985 distribution of the population

increase throughout the county, a somewhat larger increase is predicted

for Atkinson than the community itself has predicted. Specifically, the

County has projected a population of 425 for Atkinson by 1985.

3-1

Atkinson is encouraging the location of light industry in the

county close enough to the Town that its residents can work within

reasonable commuting time from the place where they live. The Town's

projections for future growth are based on assumptions of their being

enough employment nearby for its natives to remain residents; the. projections

don't,@...however, take.:.,.into account the possibility of a shift in residence

that could result from the location of-new employment centers nearby. CoiMty

Projdcti6ns do,itake this possibility into account, and assume that much

of the new residential growth-will occur within the Town rather than

scattered in-more rural areas; for that reason, its projections for Atkinson

are higher. The difference between these two projections, however, does

not repre sent a conflict between municipal and county policy only a

differencein estimations of the probability Andimpact of light industry's

location in the area.

Atkinson supports the County policy of accommodating population

-increases within existing communities. The Town is discouraging sprawl

or strip development outside the town limits by establishing the policy of

limiting extension of existing or future services, such as street paving,

ditch maintenance and police protection, to areas within the jurisdic tion.

3-2

LAND CLASSIFICATION

The Land Classification System (LCS) was established by the N. C.

Land Policy Council for localities to use to identify the most appropriate

general uses of various kinds of land and to make a statement to state and

federal authorities, as well as local residents, on where and to what

density growth is desired.

The LCS includes the following five categories of land:

1. Developed Lands where existing population density is moderate

to high and where there is a variety of land uses which have

the necessary public services.

2. Transitional Lands where local government plans to accommodate

moderate to high density development during the following ten-

year period and where necessary-public services will be provided

to accommodate that growth.

3. Community Lands where low density development is grouped in

existing settlements or will occur in such settlements during

the following ten-year period and will not require extensive

public services now'or in the future.

4. Rural Lands whose highest use-is for agriculture, forestry,

mining, water supply, etc., based on their natural resource

potential. Also, lands for future needs not currently recognized.

5. Conservation -- Fragile, hazardous and other lands necessary to,

maintain a healthy natural environment and necessary to provide

for the public health, safety and welfare.

Current land use in Atkinson would allow a separation of the town

into two of the above classes Community (developed) and Rural (undeveloped).

3-3

There are no Areas of Environmental Conce rn to warrant the Conservation
category. Only about half of the land in the jurisdiction is currently
developed. The rest is in forest or farmland. There is, therefore, enough
land within the jurisdiction to accommodate the population increases
predicted by either the Town or County as well as any increases in com-
mercial. land necessary to support the residential growth. The Town owns
the block of land at the intersection of First street and NC 53, only part

of which has.been taken up by the new medical center; the rest of this

block could be used for any municipal facilities which may in the future be

needed.
Actually, there are probably enough single lots and other mall'
parcels of land within the developed parts of Town to accommodate future land
needs.'...-However' some pollution problems have been.encountered in the built-,
up area. Many of these problems may be attributable more to the improper
locatiopinstallation or maintenance of the septic tanks in use than to the

inherent limitations of the soils to accommodate septic tanks at the

existing densities. The Town.is requesting assistance from the County
Health Department in assessing the cause and extent of these problems and
will, if necessary, make provision to require larger lot_sizes in the
future if the density of population is found to.be amain cause.. Requiring
larger lot-sizes in the future could necessitate development of parts of
the yetundeveloped land; for that reason, the entire jurisdiction is
designated Community. The.Community designation is a policy determination
that density of development in the future will remain low enough that no
public sewer or water.lines will be necessary,.since the townspeople have
indicated an unwillingness to accept the financial burden of a municipal

sewer and water system.
3-4

IMPLEMENTATION OF TOWN POLICIES

The primary goal of Atkinson is for the Town to remain much the
way it is -- a rural community where residents can enjoy a safe, health-
ful,environment. Town policies to achieve and support that goal have been

@established. In order to implement those policies.,.future planning

efforts-will be focused on three major endeavors:

1. Septi c tank study

In order to.@_assess the extent@of the pollution problems so as

to begin solving them, the town is requesting assistance from the County
Health Department. The Town proposes evaluation of each septic tank
system in the town, with repair or reinstallation required for each one
found to be defective. The authority for granting permits for installing
septic tanks rests with the county; Atkinson will encourage the county to
develop-new or revised septic tank regulations inthe future, adequate to
prevent recurrence of the pollution problems. Meanwhile, the town will
consider the necessity for establishing zoning or subdivision regulations

for the Town requiring.lots to be sufficiently large to accommodate on-

site sewage disposal systems and water supplies safely.

2. Recreation program

Because of the limited tax base in the town and the lack of a sub-.

stantial increase in that tax base foreseen in the near future, the kinds

of services the town will be able to offer will remain limited. The towns-
people in the Town meeting gave highest priority to the development of
supervised municipal park and recreation facilities. In particular,

residents would like to have established a center for thecommunity

recreation, meeting and fund raising activities that currently take place

3-5

at random locations in the town. A recreation committee has been estab-

lished to study the feasibility of such a recreation program, and to

obtain new and more diverse equipment for the town park.

3. City-County coordination

The Atkinson, Land Use Plan was closely coordinated with the

Pender County Plan. In addition to the Atkinson Town Meeting, one of

the four Pender County Public Participation meetings was held in Atkinson

to obtain localarea views on County policy matters. A joint public

hearing for the County and municipal Plans was held in Biirgaw in order.-.@_'

to present the various Plans prepared in the County and ensure compata-

bility among them.

The future of the Town of Atkinson. is strongly related to the

future of Pender County,-in particular, to-the success of a-well organized

and directed economic development program. Growth policies, concerning

proper land management and use practices and the solicitation of certain

selected kinds.of businesses have been established in the Pender County

Land Use Plan., Atkinson supports county policies and encourages adherence to

those policies,in the future. The Town also recognizes that many planning

programs, for economic and rural:development, are initiated on the County

level. For that reason, the.Town will continue to coordinate its planning

activities with the County. Review and revision of the Atkinson Plan in

the future will be done in coordina *on with the County Plan.

3 6

SECTION 4

REFERENCES CITED

References Cited

U. S. Department of Commerce. 1973. U. S. census of population 1970
characteristics of the population -- North Carolina. U. S.
Government Printing Office. Washington, D. C.

Von Oesen, Henry and Associates. 1974. Preliminary engineering
report -- proposed water and sewer systems, Town of Atkinson,
North Carolina. Henry von Oesen and Associates, Inc. Wilmington,
N., C,
Wiggins-Rimer and Associates. 1973. Inventory of facilities
supply and waste water disposal study. Cape Fear
,Council of Governments. Wilmington, N. C.

APPENDIX A

APPENDIX.A. PUBLIC PARTICIPATION

In order to assess public opinion on specific issues facing the Town

and on desired courses of action, a Town Meeting was held on September 24,

1975, in the firehouse. Prior to the meeting, questionnaires (Exhibit A-1)

were distributed to every household in the Town. It was initially in-

tended that the questions asked in the announcement of the meeting be

discussed.duringthe meeting but answered later by filling in the spaces

provided. During the meeting, however, discussion became heavy, and.

votes on particular questions were called for and taken. The results of

those votes,(where taken).4are_summarized@in Exhibit A-2.

Total Town resident attendance at the meeting was 68 (67 adults), or

approximately 35 percent of the adult population.

A-1

Exhibit A-1.

ANNOUNCING

A TOWN MEETING ON SEPTEMBER 24, 1975

AT THE FIRE HOUSE .8:00 p.m.

DISCUSS THE FUTURE OF ATKINSON

Under the North Carolina Coastal Area Management Act (CAMA) the
Governor declared 20 counties to be the "Coastal Area" of North Carolina
and thus subject to the provisions.of CAMLA. A key requirement of the
CAMA is preparation of land use plans for the Coastal Area. The plans
could be prepared by,the cities, towns and counties. or the planning
would be done by State agencies. Your Town Government elected to have
the citizens of,Atkinson plan for their own future.

Upon completion, the plan can serve as a basis-for Town budgets
and telling others what we want for our Town. The best way to plan is
to have goals and objectives that you establish. That is why we want
your opinions. Please plan to attend our Town Meeting on Wednesday,
September 24, 1975. FREE COFFEE AND COLD DRXNKS WXLL BE AVAXLABLE. Think
about the following issues; be prepared to say how you feel about each
one and to bring to our attention other issues that are-bothering you.

1. How big should Atkinson become?
our population is now about 340; that is an increase
of 46. since 1950. But the rate is accelerating: 21
persons have been added since 1970. if the 1970-75 trend
continues, we could have a population of 375 in 1980; 440

Would this
in 1990, and 525 in 2000. be too large? just
right? not enough?
2. Where should employment be located?
Heavy,Industry: in Atkinson unincorporated.
area near Atkinson elsewhere
in Pender County other

Counties
Light Industry: in Atkinson unincorporated
area near At-kinson elsewhere
in Pender County other

Counties

A-2

Professional & Service: in Atkinson unincorporated

area near Atkinson elsewhere

in Penaer Count y other

Counties

3. Do you favor a sewer system?
4. Will a central water system be necessary if the Town is to

achieve your expectations?
5. Should growth be limited to the capacity of individual wells
and properly operating septic fields?
6. Are recreation facilities in Atkinson adequate? If not,

what should be added?
7. Are you satisfied with services provided by the Town? If not,,
are you willing to pay for increased services through increases

in Town Taxes?
8. Does Atkinson receive its fair share of County Services?
if not, what else should the County provide?
9. How should your Mayor and Aldermen act to achieve the quality

of life you expect?
Enact zoning regulations
Enact subdiv2sion regulations

Enforce building codes,
Establish a separate fund to attract employers
Arrange for free land, tax incentives., and utilities to
-attract employers
10.. Should trailers be permitted in Town?. If so, under what

conditions?

COME TO THE FIRE HOUSE

WEDNESDAY, SEPTEMBER 24 8:00 p.m.

A::- 3

EXHIBIT A-2. SUMMARY OF PUBLIC OPINION IN TOWN MEETING

Question How bi g should Atkinson become?

No formal vote taken; informal concensus that the present
(1970 to 1975) growth rate is right for the town.

Question 2. Where should employment be located?

.(a) Heavy industry: in Atkinson - 0
unincorporated area near Atkinson 20
elsewhere in Pender County 4

.(b) Light industry: in Atkinson -0
unincorporated area near Atkinson 42
elsewhere in Pender County -J;0

-(c) Professional. ...in Atkinson 43
unincorporated area near*Atkinson 0
Pender,County 0.

Do you favor a sewer system?

'Yes 24 (35%) No 30 (44%)

Question 4. .",Will,a:::centrdl,water;system:be necessary.i.f the Town'is to
achieve :,ryour;:.- expectations?

Yes 19 (28%) No no formal count but informal concensus
that central water would be too expensive.

Question 5. Should growth be limited to the capacity of individual wells
and properly operating septic tanks?

Yes informal concensus

Question 6. Are recreation facilities in Atkinson adequate?
If not, what should be added?

-No need a supervised playfield, maybe tennis courts, and
'community center.

Question 7. Are you satisfied with services provided by the Town? If
not, are you willing to pay for increased services through
increases in Town taxes?

Get what you pay for? 36 (53%) Yes
Increase taxes? 19 (28%) Yes
Improve ditches and garbage collection informal concensus

Question 8. Does Atkinson receive its fair share of County services?
if not, what else should the County provide?

Concensus no. There is no mosquito control and there are
too few solid waste containers.

A-4

Question 9. How should your Mayor and Aldermen act to achieve the
quality of life you expect?

Enact zoning regulations - no opposition
Enact subdivision regulations - no opposition
'Enforce building codes - 18 (26%)
Others not specifically addressed.

Question 10. Should trailers be permitted in Town? If so, under what
c
onditions?

Yes -,52 (76%) under the same conditions as single family
detached structures. There was concensus, however,
that there be no trailer parks.

Additional question Do you favor establishing a sewer.and water system?

22 (32%) Yes 31 (46%) No

A-5

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