land use plan for Pender County, North Carolina

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

COASTAL ZONE
INFORMATION CENTER

COASTAL AREA MANAGEMENTACT

LAND USE PLAN

PENDER COUNTY, NORTH CAROLINA

HD
211
.N8
C63
1976

COASTAL ZONE
INFORMATION CENTER

CERTIFIED

C0PY

(See last page for Certification)

LAND USE PLAN

FOR

COUNTY,.NORTH@:CAROLINA.

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 Commission

May 21, 1976

The preparation of this report was financially assiste d by grants from the
State of North Carolina, the National oceanic and Atm@)spheric Administr@Ltion,
and the Coastal Plains Regional Commission.

NOTICE TO USERS

All major policy related maps and documents are either included within
the text or attached to the back of the plan. However, due to the expense
and technical limitations required for reprinting some il.lustrations may
be omitted. Complete copies are available for inspection at the N. C.
Coastal Resources Commission offices in Raleigh or at the local government
offices.

TABLE OF CONTENTS

Page Number

List of Tables

INTRODUCTION

Purpose of a Land Use Plan in North Carolina 1-2
Coastal Area Management

Method of Preparing the Plan 1-5

CURRENT CONDITIONS SECTIONI

Population and Economy

'Population

Housing

Education 1-2

Employment 1-21

County Government Finance 1-4

Agriculture 1-6

Manufacturing .1-7

Outmigration 1-7

Economic Act ivities Having an Impact 1-8
on Resources

Existing Land Use

Agriculture I-10

Forestry 1-12

Recreation, 1-13

Urban 1-16

Industry,, 1-18

Transportation 1-19

Utilities 1-20

Current Plans, policies and Regulations
Concerning Land Use in Pender County

Plans I-22

Existing Local Regulations Affecting Land I-28
Use in Pender County

Constraints

Physical I-31

Fragile I-40

Resource Potential I-53

Community Service Facilities I-57

ISSUES, OBJECTIVES AND STANDARDS SECTION II

Major Issues and General Alternatives

East-West Population Characteristics II-I

Provisions of Service Facilities II-3

Employment Opportunities II-5

Drainage II-13

Priorities for Public Services II-16

Projected Population Growth II-19

Adopted objectives and Standards II-24

AREAS OF ENVIRONMENTAL CONCERN SECTION III

Introduction

The Estuarine System III-2

The Beach Foredune System III-4

Outer Banks-Hazard Areas III-5

Historic and Natural Resource Areas III-7

FUTURE LAND USE SECTION IV

The Demand for Land

Factors Influencing Growth IV-1
Population Distribution IV-3
Land Classification System IV-3
ii

Residential Land IV-7

Commercial and Institutional Land IV-10

Industrial Land IV-10

Recreational Land IV-12

Outside Pressure for Change IV-14

PLAN ADOPTION AND IMPLEMENTATION SECTION V

Plan Adoption V-1

Plan Implementation V-4

Enactment of Ordinances V-4

Coordination of Permit-Letting Authorities V-5

Related Planning Activities V-6

Periodic Review and Revision of the Plan V-7

REFERENCES CITED SECTION VI

APPENDIX

Public Participation A

iii
6

LIST OF TABLES

Table 'Page Number

1-1 Pender County Average Annual-Work Force Estimates
1962, 1972 1-3

1-2 Pender County Average Annual Labor Force Estimates
1970, 1973

1-3 Pender County Game Species 1-15

1-4 Mean Annual Rate'of Change (feet per year),@1938-1972 1-52

1-5 Areas With Possible Natural Resource Potential 1-54

1-6 Pender:County Schools, 1974/1975 1-60

1-7 Pender County Volunteer Fire Departments, 1973 1-64

1-8 Pender County Fire Departments, Type and Condition
of Ecrdipment 1-65

2-1 Population Projections '11-21

4-1 Population Increase Distribution to Land Classes by
Place 1985 IV-8

INTRODUCTION

PURPOSE OF A LAND USE PLAN IN NORTH CAROLINA COASTAL AREA MANAGEMENT

The North Carolina Coastal Area Management Act of 1974 /Chapter

1.284 1973 Session Laws (G. S. 11317 (CAMA) established "....'a cooperative

program 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 establi shed the,following goals for the coastal area.

management system:

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

11(2) To insure that the development or pre-c;ervation of the
-land and water resources of the coastal area proceeds
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;

To establish policies, guidelines and standards for:

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 or 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 ofindustries, port.facili-
ties, commercial establishments and other
developments;

(iii) Recreation and tourist facilities and parklands;

Aiv) Transportation and circulation patterns,for the
coastal area including.major thoroughfares,
transportation routes,.navigation channels and
harbors, and other public utilities and.facili-
ties;

M 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 processes established by the CAMA include:

(a) State guidelines setting the objectives,:policies and standards to be

followed in public and piivate 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 Board of

County@Commissioners of Pender County declared the intent of the County 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 Commission
on January 27,'1'975, as subsequently amended.
1-2

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

comprehensive plan for Pender County. The.land use plan expresses the

way the democratically elected representatives of the peoplethink the

finite land.area should be allocated to best meet the.hopes and aspirations

of the people who.@live and pay taxes in a specific jurisdiction. A land

use plan can only be.thorough when health care, education, transportation,'

economic development, le isure 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.

Pender County's land use plan relies upon those data most readily

available and focuses upon the major emphases of the CAMA; development

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 Pender County's intention to utilize the plan as a keystone

for all future county activity. The land useplan is a major step in

comprehensive planning for Pender County. Matters such as dommunity develop-

m
ent projects,. land use controls and servicefacility plans can be based

1-3

upon the plan; policy issues., such as employmentr health care, taxes
and maintenance of natural and historic resources are preliminarily

identified for later study and decision-making as elements of the

County's comprehensive planning process.

1-4

METHOD OF PREPARING THE PLAN

The Pender County 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.p;ob-

lems 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 County; 4) projected factors consistent with the

selected County goals and the physical restraints; 5) allocated land

according to the projected magnitude of demand and the physical charac-

teristics-of,the County; and 6) used-the inventory data developed in

step 2 to delineate areas recommended as areas of environmental concern

with a,list of suggested uses.

Coastal Resources Commission Guidelines emphasize the value of

mapping three sets of datar existing land use, land classified according

.to projected use in 1985, and areas the county considers to beits areas

of environmental concern. Existing land use and areas of environmental

concern in Pender County were mapped at a scale of 1 inch 2,000 ft; Land

Classification was mapped at 1 inch 2 miles. The basic map medium

was aerial photograph mosaics prepared by the U. S.'Agricultural Stabiliz'a-

tion.and Conservation Service.

'The air-photograph maps are easily reproducible and will

serve as a useful public information tool. Additionally, the reproducible

mosaics are available for use as base maps to support other planning

activities and for implementation of the plan.

1-5

Data describing current conditions in the County were assembled

from numerous federal, state and local government sources,as listed in.

References Cited (p.-VI-1). Where more current or detailed information

than was available in publications was needed, personal communication

with representatives of the publishing agencies were used to complete the

data collection and analysis. Existing land use was determined by air

photo interpretation based on familiarity with the area and by visual

inspection of structures, vegetation and water. Valuable assistance was

given by representatives of the Agricultural Extension Se vice,.the U. S.

Soil Conservation Service, and the North Carolina Forest Service in the

determination of both map delineations and current trends. This method

of defining existing conditions permitted rapid identification of hazardous,

fragile, and unique areas which, in turn constitute a major portion of the

areas that should be of environmental concern.

Details of Pender County's public participation program are

contained in Appendix A.

The CAMA sponsored,land use planning in the County was closely

coordinated with-comparable activities conducted by the Atkinson, Burgaw.,

Surf City and Topsail Beach Planning Boards. Each of these municipalities

has developed a separate land use plan to guide development within its

political jurisdiction. The municipal plans were formulated.in much,the

same manner as-the County plan, following the.Coastal Resources Commission

Guidelines. No major conflicts between the-County and municipal plans

have surfaced. If in the future, conflicts.should arise, provisions of the

County plan shall govern, except in cases where a municipal plan imposes

greater restrictions upon land use or greater demands for new development.

1-6

The two beach municipalities encompass all of the developed.

beach area land,and each has formulated its own land use plan. Details

of physical, economic and social conditions along the beaches are

covered in each the Topsail Beach and Surf City plans and are not

repeated here. The Pender Countyplan, instead, deals more extensively

with land use conditions and issues of more county-wide significance and

application.

1-7

SECTION 1

CURRENT CONDITIONS

POPULATION AND ECONOMY

Population

The population of Pender County was reported to be 18,149

in the 1970 U. S. Census of Population; the 1960 population was reported

as 18,508, a decrease of 2 percent from 1960 to 1970 (U. S. Department

of Commerce 1973).

The U. S. Department of Commerce classifies populations as

rural or urban. Areas defined as being within a zone of commercial in-

fluence and haVing populations of 2,500 or,more are classed as urban; all

other areas are classed as rural. In 1970 only Burgaw had a population

of over 1,000 persons: 1,744 or 9.5 percent of the county total. The

population.distribution is classified as 100 percent rural farm and
rural non-farm. There has been since 1960,'a decrease of 53.5 percent

in.rural farm and an increase of 21.5 percent in rural non-farm residents.

The resident population distribution is heavily influenced by

open water and wetland. The areas of greatest population concentration are

along US 117 in the center of the county and between US 17 and the Atlantic

Ocean.

Housing

According to the 1970-U-S, Census-data, 2,104 (33.perlpent) of@the

6,626 year-round housing units in Pender County lacked some or all

plumbing facilities; of the 5,237 units occupied at that time, 800 (15

percent) were@classified as being overcrowded. The median value of owner

occupied housing units was $6,700,and 38.3 percent of all housing was

classified as structurally deficient. The 1970 situation represents an

improvement from 1960 when 37.9 percent of all. dwellings lacked

plumbing facilities, 21.9 percent were overcrowded, And 43 percent of all

housing was classified structurally deficient (U. S. Department of Commerce

1973).

Education

In 1,970 the average educational attainment-of Pender County

residents 27 years old or older was 9.3 years, for -males,And; 10.2

years for females, (Pender County Agricultural Extension Service 1973).

During the 19601s,public school expenditures almost doubled; they now

exceed the whole of general government. Public schools are operated by'

the county and include five kindergartens, seven elementary, four junior

and two high schools.

Employment

The 1970 Census shows.a per capita income of $1,713 and a

median family income of $5,390; 28.8 percent of the county's families were

below the then defined poverty level of $3,000.

The Bureau of Employment Security Research of the North

Carolina Employment Security Commission publishes employment data by county,

area and state. Table 1-1 depicts the overall changes in employment in the

county between 1962 and 1972.

Actually, such an "average" does not validly reflect real

employment in Pender County because significant flucutations in employment

and underemplbyment. follow the seasonal patterns of agricultural activi-

ties. Under-pmployment is highest in January and February due to the

1-2

a
Table 1-1. Pender County Average Annual Work Force Estimates 1962, 1972.

1962 1972

Employment 4,960 % total 5,100 % total

Agricultural 2,720- 55 1,610 32

Nonagricultural Wage
and Salary 1,560 31 2,610 51

All Other Non-agricultural 680 14 880 17

Unemployment 420 .360

Rate Unemployment 7.8' 6.6
Total Civilian Work Force b 5,380 5,460

a
Source.- North-Carolina Work Force EstimatesP-Bureau of Employment Security Research, Employment,
Security Commission of North Carolina, Raleigh, N. C.

bCivilian Work Force is based largely on a count of jobs by place of work. Publications prior to on Ie of
the most recently released (November, 1974) dealt with the "Work Force" concept in which employment.data
are based largely on a count of jobs by place of work. Beginning with the 1974 release, "Labor Force"
estimates are being used instead; the labor force is the sum of employed and unemployed persons by place
of residence. The labor force estimates reflect the number of Pender County residents actually employed,
whether -@ their emplgyment be, in Pender _. or. neighboring countkes. . Because of the change in approach - to
employment data@analysis, current employment figures cannot'readily be compared with those developed in
the 19601s.

slow-down of agricultural activities, and high again in June following

the end of the. spring school semester. However, the above figures

indicate a continuing relative trend from agricultural to non-agricultural.

employment. Agriculture accounted for 55 percent.of total employment in

1962, but only 32.0 percent.in 1972. Pender County.experienced a gain

of only 230 manufacturing employees between 1962-1972, the largest

increase in employment occurring in the construction industry (Cape Fear

Council of Governments 1973).

Table 1-2, based on employment by place of residence, shows a

decrease in-the unemployment rate in the county from 1970 to 1973.

More recent information has not been published, but the EmplOyment Security

Commission preliminary studies show an average unemployment rate of 8.9

a
percent in 1974 and 1.3.8 percent as of August 1975.

County Government Finance

Property taxes in Pender County in 1973 accounted for 80 percent

of the total County tax revenue. Because of the lack of industry and the

limited amount of commercial activity, property tax revenues are rela--;

tively small. In fiscal year (FY) 1973-1974, the total assessed

valuation for all real and tangible personal property and utility valuation
was $82,067,119; the tax rate was $1.10 b per $100 valuation, producing a

total property tax revenue of $902,736. For comparison, the assessed

arlo, yd Outland, Bureau of Employment Security Research, Employment Security
commission, p.ersonal communication.

b
In FY 1973-1974 a rate of $.62 was levied for schools and $.48 for pur-
poses other, than schools (North Carolina Department of Revenue 1974).

1-4

@L 0

Table 1-2. Pender County Average Annual Labor Force Estimates 1970, 1973. a

1970 1973

Employment 6,480 total @6,820 total

Agricultural 1,140 18 1,070 16-

Nonagricultural Wage
.and Salary 4,940 76 5,350 78

All Other Nonagricultural 400 6 400 6

Unemployment 420, 390

Rate Unemployment 6.1
Total Civilian Labor Force b 6,900 7,210

a
Source: North Carolina Labor Force Estimates,.Bureau of Employment Security Research, Employment
Security Commission of North Carolina, Raleigh, NC, 1974.

Civilian Labor Force is the sum of employed and unemployed persons by place of. residence.

valuation of nearby Brunswick County for the same year was $278,207,620,,

which at a rate of $1.42 per $100 valuation produced property tax

revenue of $3,950,547. Pender County's share of.sales taxes in 1973

produced a revenue of $143,000, county shares of states taxes such as

intangibles and beverage taxes added $70,328, for a total County tax

revenue of $1,135,366 (North Carolina Department of Revenue 1974).

The largest single county expenditure in 1973 was for schools,

amounting to $505,799 or 56 percent of the property tax revenue. Miscel-

laneous expenditures such as allocations to.libraries, community

colleges, rural fire control, and farmand home agents accounted for 17

percent.of property tax revenues;,welfare allocations including hospital

and aid to dependent children grants accounted for,:another 17 percent of

the total.

Agriculture

Pender County functions as an economic entity whose primary reason

for being is the productivity, supply and distribution of goods and

services (Wiggins-Rimer and Associates 1973). The distribution of agri-

cultural enterprises is relatively well balanced. Poultry ranks first

in the. county followed by tobacco, truck crops, field crops and live-

stock (Pender-County Agricultural Extension Service 1973). Pender County

farms lead North Carolina in the production of blueberries and commerc,.

lettuce. Most of the county's marketing facilities complement its

agricultural production. Egg and blueberry marketing, meat packing and

poultry processing, together with lumber mills, are examples of the

agricultural base of the County's economy.

1-6

Manufacturing

In 1973 only three non farm and forest manufacturing plants

were located in the county. The North Carolina Division of Commerce

and Industry breakdown of manufacturing firms in Pender.County.lists a

commercial printing firm, a women's apparel firm, and a hosiery manu-

facturing firm employing respectively.1-4, 250-499, and 100-149 persons

each in 1973. All three of these firms are located in Burgaw.

Outmigration

The most serious economic problem in Pender County is the

continued outmigration of people whoare,not able to find jobs within the.

county. Outmigration, particularly of the Rural Farm sector end Blacks,

accounted for the net decrease in the county's population.between 1960

and 1970 (Cape Fear Council of Governments 1973). Sufficient new jobs

are not being created for new entrants into the labor force; the agri-

cultural sector is no longer able to absorb them partially because the trend

in Pender County, as elsewhere, is toward larger farm units that are highly

mechanized and capital intensive, thus less labor intensive.

The loss of young productive potential from the county results

in a relative increase in the residual population in the number of people

45 years old or older, and a proportional rise of those with lower educe-

tion and motivation. The outmigration of high school graduates represents

.an export of human capital from the county; the rate of loss of young

people is increasing at the same time as the cost to educate them in--;

creases. Earlier economic projections, published before the current

recession, predicted net outmigrat-jQn ending in the current decade, with

1-7

in-migration of productive workersattracted by jobs in the county,

increasing between 1980 and 1990 (Cape Fear Council of.Goveiriments 1973).

It is.still too early to assess the most recent outmigration due to,

the economic situation.

The 1970 Census reports that 40.3 percent of the Pender County

work force commuted outside the county to work (Pender County Agri-

cultural Extension Service 1973). Because of low taxes, many people find

it advantageous to live in Pender County while workingelsewhere. TO

a certain extent, thecounty serves as a bedroom community for people

working in New Hanover County,,,The public finance implications,..

of such a situation can be serious. Tax income generated by middle

income housing seldom equals the cost of education, fire and police

protection, and similar services demanded by commuting residents (Real

Estate Research Corp. 1974). The alternatives are substandard services

or very high tax rates on real property.

Economic Activities Having Impact on Resources

The existing economic activities in inland Pender County do

not seriously affect the land and water resources.of the county. While

many economic activities, especially agriculture and forestry, depend

upon land and water resources, there are now no major water-using

industries in the county. Growth in industry would in many areas require

supplies of water, would increase the complexity of water quality

management, would generally compete for land that is well suited for

conflicting uses. For example, land that is best suited for industrial

plant siting and residential use is in most cases the best agricultural

land. Presently, such conflicts are limited to isolated small scale

incidents.

In. the immediate coastal area of the county, however, serious

problems have already been encountered as a result of the great demands

placed on the land and water resources. A tremendous growth in tourism

has occurred in.the last 20years, centering on the strip between

US 17 and the Atlantic Intracoastal Waterway (AIWW). Increased disposable

income, mobility, leisure time, and access, in the two decades between

1950 and 1970, have resulted in an increase in outdoor recreatlon and

vacation second-home building in the county; an increased life-span

coupled with affluence has resulted in an increased number of persons

seeking locations for retirement housing. As a result, the market value

of waterfront acreage has increased tremendously, leading to higher and,

higher housing densitie s. As vacation-retirement homes have i ncreased

in number, so have commercial support facilities such as restaurants,

motels and shopping areas. Throughout the US 17 strip, single family

detached dwellings abound, each utilizing subsurface sewage disposal

methods, and many relying on shallow wells for w ater supply. Deteriora-

tion of the quality of drinking water, closing of Virginia and Bekkie

Creek shellfish waters to harvesting, traffic congestion, and more

crowded living conditions have already resulted. Yet the demand for

living space, water, and services continues to rise. Presently, the

effects of intensive land use are felt primarily in the summer months

when beach area populations increase manyfold. As permanent residences

become more numerous in the beach areas, however, resultant problems will

be more likely to carry over through the winter months, only to increase

again in summer.

1-9

EXISTING LAND USE

Pender County is the seventh largest county in North Carolina

with a total of more than 550,000 acres of land and water, exclusive

a
of territorial waters of the 'Atlantic. In 1967, only 100 acres were

owned by the Federal goverment and 63,000 by the State; only 3,913

(0.7 percent) were urban or built-up, the rest being.in farms, forest,

wetland, or woodland (Ospina and Danielson 1973).

Agriculture

According to the North Carolina Agricultural Extension Service,

only one-fourth of the Pender.County area was in farmland in 1973; nearly

one-half of the remaining woodland acreage was agricultural Class II or

III which is suitable for crop production (Qspina and Danielson 1973).

The Extension Service breakdown of agricultural land use reports only

about 62,000 acres of Pender County actually in cropland; there being

some 66,500 acres of farmland in woodlandl pasture, and other non-crop

farm uses.

From the standpoint of agriculture, Pender County can be

divided into three sections. The bulk of agricultural production takes

place throughout that section of the county west of the Northeast Cape

Fear River; farming is still practiced to a certain degree along and to

aTheoretically, Pender County's eastern boundary corresponds with the
limit of State jurisdiction three miles off-shore the territorial sea.

I-10

the southeast of Hwy. 17. Between these two sections lies.a vast area

of predominantly swampland, in which little or no farming is done.

Agriculture in Pender County is diversified. Corn, tobacco,

poultry, soybeans, and.sweet potatoes, and swine, dairy and beef cattle

are grown throughout the county. Other products have a more specialized

geographic distribution depending primarily on soil conditions. Peanuts

are grown in the southeastern part of the county, especially in the

Hampstead and Holly Ridge areas, with a small amount grown in Rocky

Point;@blueberries are the specialty southwest of Burg-aw, around Currie

and Atkinson, and in the vicinity of Maple Hill; commercial vegetable

crops (snap beans, cabbage, squash, and cucumbers) are limit6d primarily

a
to the St. Helena area from Burgaw south into Rocky Point and Long Creek.

In the last 15 years many changes have taken place in agri-

culture in Pender County. The number of farms and the numb er of acres

in farmland have decreased; the average size of a farm, however., has.

,increased from 87 acres in 1959 to 115 acres in 1969 (Stone 1974). The

number of acres of farmland harvested has.also increased. Improvements

in farm machinery, fertilizers, weed and pest control, and advances in

.plant breeding have resulted in a general trend toward increased yields

and more cash:from fewer acres. In 1969, 30 percent of the farmland

in the county.was in the 260-499 acre per farm class, 24 percent in the

500-1000 acre per farm class; the average.market value.per farm

.a Pender County Agricultural Extension Service, Personal Communication.

increased from $8,464 in 1964 to $12,419 in 1969.(U..S. Department of

Commerce 1972).

Forestry

According to the U. S. Forest Service (USFS),.Bl percent.of*

Pender County iain forestlafid, 99 percentof which is-commercidl forest

land.' (Cost 1973). The above figures include as forestland some.of.

that land agricultural sources classify as farmland in woods.

The 1973 USFS breakdown of forestland reports 450,817 acres of

commercial forestland in Pender County, less than 25,percent (127,937

acres) of which is owned by forest industries; well over half (259,830

acres) is in private individual ownership, none is federally owned,. and

only a small amount (63,018) belongs to the state of North Carolina (cost

1973).

The term Site Class is used to describe land's inherent capa-

city to grow crops of industrial wood; the classes are based on

comparisons with fully stocked natural stands. The lower the class number

(from 1-5) the higher this capacity is. In Pender County, no sites have

been accorded class-1 or 2 commercial status. The bulk of commercial

,forestland (264,525 acres) is in site class 4; most (182,694 acres) of

the remainder is in site class S. Approximate stocking of forestland is:

30 percent poor, 30 percent medium, and only 20 percent fully (Cost

1973). The trees are predominantly in the loblolly-shortleaf type, with

some longleaf-slash, and oak-gum-cypress. Both the net annual fores t

growth in Pender County and the annual removals are highest in pine.' Trees

1-12

in Pender County are harvested for pulpwood, dimension stock, and

sawtimber the use to be made of the wood dictated primarily by. the

existing market.

The SCS has made an appraisal of those soils in Pender County

that are good for ",woods." This list excludes soils belonging to only

three of the 10 associations in the county: the Dorovan-Ponzer, the

Capers-Newhan, and the Lynn Haven-Leon-Kureb Associations (U. S. $oil Con-

servation Service 1973). The three associations are characterized by

swamps, marshes, and those areas adjacent to swamps and marshes that

are generally underlain by hard'-pans respectively.

Recreation

There are two major areas of recreational land use in Pender

County the coastal lands and waters, and the inland woods, swamps

and streams. The activities involved in both areas are strongly

resource oriented.

Along the coast, activities are predominantly water and shore

oriented and include fishing, boating, sw=ing, and hunting. The Pender

County towns of Surf City and Topsail Beach are located on Topsail

island, between the Intracoastal Waterway and the Atlantic Ocean. Access

to the Island is provided by two bridges, one in Pender County, the

other in Onslow County. Attractions of the towns include some ten miles

of sandy beaches with five ocean piers and-miles of marsh and sandy

shoreline along the adjacent sounds. The towns have facilities for.

lodging, dining and shopping, including restaurants, motels, and rental

cottages.

Inland Pender County contains thousands of acres of woodland

and miles of fresh water streams. The SCS reports fair to good

populations of deer, bear, raccoon, rabbit, bobcat, turkey, quail and

dove; the fresh wat-ML Z@,"=CLLLLS support bream, bass, crappie, pike,

rockfish, shad and herring (U. S. Soil Conservation Service 1973). There

-are 63,000 acres of public and 85,000 acres of corporately owned land

in the county open to hunting and 25-30 privately owned hunting clubs,

a
many of which lease commercial forestland. The North Carolina Wild-

life Resources.Commission maintains the Holly Shelter Game Management

Area in eastern Pender County swampland. Hunting activities,in this

area include planned hunts arranged several times each seasoii, with

several days each season reserved for bow and arrow hunters. Table 1-3

lists the recreational value of various Pender County game species.

The Wildlife Resources Commission has also provided numerous

access areas on the Northeast Cape Fear and Black Rivers with facilities

for boating, skiing and camping.

In March 1973, the Soil Conservation Service published An

Apprdisal of Potential for outdoor Recreational Development for Pender

County. The study appraised the possibility of developing anew or im-

proving various kinds of recreation areas and activities,in the county.

Those activities found to have the highest potentials were pack (canoe)

trip camping and small game hunting. Specific areas or sites for the

development of these activities, however, were not designated.

a
A. H. Pridgen, SCS Conservation Technician, Personal Communication.

1-14

Table 1-3. Pender County Game Species. a

Estimated Man Days
of Recreational Pursuit
Game S2ecies, Provided (1972-73)

BIG GAME

Deer 53,875

Bear 700

Turkey 32

WATERFOWL

Ducks 616

Geese 198

OTHER GAME

Squirrel 4,636

Rabbit 5,665

Dove 936

Quail 4,437

Raccoon 10,175

.Fox 1,086

Woodcock 1,217

Opossum 4,372

Wildcat 336

Clapper Rail 152

aSource: Barick and Critcher, 1975. Wildlife and Land Use Planning
with Particular Reference to Coastal Counties. North Carolina'Wildlife
Resources Commission. Raleigh, N. C.

1-15

Urban

According to U. S. Census datar.Pender County is entirely

rural farm and rural non-farm, without sufficient population density

to warrant the urban classification. For the purpose ofthis dis-

cussion,,however, the term "urban" will refer to the build-up of even

small concentrations of residential, commercial, and public or semi-

public buildings.,

There are five incorporated Towns in Pender County. Three of

these towns, Burgaw, Atkinson, and Watha, are located in the large

farming section of the county, west of the Northeast Cape Fear River.

The County seat, Bu.rgaw,.is the largest of these towns, with about 9.5

percent of the county's population. Burgaw is located approximately in

the center of the county at the intersection of Highways US 117 and NC.53,

adjacent to the Seaboard Coastline Railroad. Burgaw functions not only

as the political and geographic center of the county, but as a com-

mercial and business center as well.

The remaining two incorporated towns, Surf City, and Topsail

Beach, are recreation-based towns located on the coast. Both have small

year-round populations and offer few commercial services in winter. In

summer, however, the towns function as the focus of beach vacations for

people from various parts of the state and country.

The centers of population in Pender County have traditionally

been found in-those areas of the county most intensely farmed. The

1-16

communities of Burgaw, Atkinson, Penderlea, Watha,. Currie and Long Creek,

for instance, grew as centers of area agricultural and marketing

activities. Westof the Northeast Cape Fear River former agricultural

centers remain the population centers today. Recently, however, resi-

dential development has become influenced by industrial bases, and

radiates primarily from the industrial sites of nearby New Hanover County.

This trend combines with explosive summer-vacation, second home-

retirement development in the zone between US 17 and the Atlantic ocean.

Residential developmentis currently heaviestin the Hampstead area and

is spreading out in a band between US 17 and the AIWW.

Dwelling units in Pender County have traditionally been single

family detached homes on large lots as opposed to a present tendency

toward an increased number of.smaller lots and mobile homes. There is

very little apartment or condominium dwelling in Pender County; multiple

dwellings that do exist are found mainly.in the beach towns.

Commercial land use in Pender County has, like residential,

begun to take on a new form as' other land uses change., Traditionally,

each town or community has had its "business district" in which most

commercial activities were centered. Additional commerce was spread

sparsely throughout the town or was located at the important crossroads

of rural areas. Most commercial development that is occurring presently

is along major highways such as US 17, US 117 and NC 53, especially

where those are running between industrial sites, larger towns, and

residential development.

1-17

Industry

According to the N. C. Division of Commerce and Industry,

there were in 1973., 25 firms known to produce marketable goods in Pender

County. Most of these firms are agricultural or forestry based indus-

triesproducing goods such as furniture, plywood and lumber; animal

feeds, meats and packaged fruits. Poultry is the number one.industry

in the county producing an income of over $5.5 million annually; the

largest egg marketing establishment in North Carolina is located in

Burgaw. Most (16) of the 25 manufacturing firms in the county are

located in Burgaw with the next largest concentration (5) in Rocky Point.

The N. C. Division of Commerce and Industry maintains'a list of

industrial sites in Pender County with relevant information about the

existing ownership, use, and condition of the sites. Most of these sites,

are located in or around Burgaw with additional ones found in Watha,

Penderlea and Rocky Point. But.as there is no county-wide zoning, there

are few areas restricted to or from industrial location.

There is presently no full time industrial Developer for Pender

County; however# on October 25, 1975, in a County referendum, the-resi-

dents of Pender County voted for establishment of an Industrial Commission

to hire a full time Industrial Developer. A Local Industrial Development

Corporation in Burgaw is able to assist financially in construction of

industrial buildings, and the town of Burgaw has an Industrial Develop-

ment Team whose purpose it is to encourage the location of industry in

the area.

General Industrial Location Criteria for the Coastal Plains

of North Carolina have been developed in order to describe the kind of

sites sought by industry (Kiser 1975). These criteria include the.

following:

1. Reasonably level land capable of,being graded without

undue expense.

2. Direct access to high-speed all-weather highway

facilities.

3. Reasonable access to railroad facilities.

4. Reasonable access to airport facilities for the movement

of passengers and freight.

5. Available adequate water supply, sanitary sewer systems,

facilities, and power supply.

Transportation

Pender County is traversed by Hwy. US 17 (north-south) in

the east, US 117 (north-south): in the center of the county and US 421

(northeast-southwest).'in' the west. In addition, it is crossed by NC 53

(east-west) in the center, NC 210 (east-west) in the south, and NC 50

(north-south)' on the beach. According to the 1970 State Functional

Classification System, US 17 is scheduled to be upgraded and included as

a portion of the Coastal Corridor Highway. When completed, this highway

will facilitate tourist travel along the eastern seacoast from Virginia

south through the Carolinas and Georgia. Highway acquisition is scheduled

for fiscal year 1978 and construction by 1981. The State Department of

1-19

Transportation has proposed long-range extension of 1-40 from 1-95 near

Raleigh to Wilmington. However, there is no calendar nor any funding

approved yet for the completion of any phase of 1-40 from 1-95 to:

Wilmington.

The Seaboard Coastline Railroad serves the county with two

separate lines. The main line runs north-south;through the center of

the county connecting Rocky Point, Burgaw, Watha and Willard. The

secondary line runs north-south near the coast along US 17, through

Scott's Hilli Hampstead, Woodside and Edgecombe. Both lines provide

freight service from Wilmington to counties to the north. Airports

serving the county include the Wallace Municipal Airport on the northern

edge of Pender County, New Hanover County Airport in the south'I and two

private airports.

utilities

Pender County is provided with electrical power from three

sources. Carolina Power and Light Company service areas run predominantly

in bands along major highways and railroads. These bands are found along

US 17 east to the AIWW; along US 117 and the Seaboard Coast Line Railroad

through Burgaw; along NC 210 and 133 through Long Creek, Currie and

Atkinson; and in the Penderlea-Willard area. The Jones-Onslow Electric

Member.Corporation service areas cover Topsail island, extending westward

around Watts' Landing, and to scattered localities along the Onslow-Pender

County line. The remainder and largest part of the County is serviced

by the Four-County Electric Member Corporation.

1-20

Telephone service throughout most of.Pender County is pro-

vided by Southern Bell. The Southern Bell service area.includes the

whole county except Topsail Island and the Willard area, both of which

are serviced by the.Carolina Telephone Company.out of Jacksonville.

There is currently so little industrial land use., land

subdivision or extensive change being made in.land use that few land use

compatibility problems exist. As in many areas where new growth is

unplanned and unregulated, Pender County land is undergoing strip

development. New housing and commercial areas are being built along

highways, producing miles of landscape dotted with cutover vegetation,

billboards and driveways4 In the beach areas, unplanned growth has

resulted in degradation of some of the very resources which make the

land attractive. But throughout most of the county, the most serious

land use problem is the under-utilization of land and water resources.

1-21

CURRENT PLANS,, POLICIES AND REGULATIONS

CONCERNING LAND USE IN PENDER COUNTY

Plams

Existing Community Facility Plans for Pender County Area Compiled With-
in the last 10 years.

Water Supply and Sewage Disposal
1. Inventory of Facilities - Regional and Water Supply and Waste-
water Disposal Study, Wiggins, Rimerand Associates, 1973.

Summary of Contents

A. General Background Information
1. Population, economy
2. Existing water supply facilities public and private
3. Problems related to water supply

B. Conclusions

1. Water

a. Atkinston is in need of wat er for peak de-m ands
and fire protection. The town has applied to
@the appropriate State and Federal Agencies for
funds to construct a community water system.a
b.' In Penderlea A large subdivision is being developed.
with a community water system. The developer wants
Penderlea to join the system, but as landowners in
Penderlea have had few problems with their water,

he has met with little success.

2. Wastewater Disposal

a. Atkinson has applied for funds to construct a
municipal wastewater disposal system.
b. The only existing system is in Burgaw, and is
operating at only halfcapacity. The town is'applying

for funds to construct an extension to serve the

whole city and many surrounding areas.

aAs of September. 1975, Atkinson, had made no formal application for funds.

1-22

a
Comprehensive Water and Sewer Plan Region 0 Henry von Oesen,
and Associates, Inc., 1972.

Summary of Contents
A. Existing conditions
1. Water supply sources
2. Future water demand for domestic and industrial purposes
3. Existing public water supply systems and wastewater'
collection and treatment systems
4. List of known industrial plants discharging wastewater
into Cape Fear River Basin

B. Proposals
1. Regional Water Supply Plan conceived design to serve
entire Region "0" and the maximum number of people within
the region to the maximum degree possible and, considered
economically feasible.
a. Certain portions of rural populations wouldhave
to rely on independent wells or "home" water
systems for some time,to come.
b. The plan, if implemented, is capable of serving
approximately 80% of the people in Region "0" by

the year 2.000.
c. Portions of population in Pender County to be
served by year 2000:

1980 - 63%

1990 - 61.9%

2000 63.0%

Regional wastewater treatment plan
a. Plans should be located adjacent to.largest streams
available to provide suitable effluent discharge

situation.'

e 'nomically
b. Assign thi largest reasonable and ecO

feasible area to be served by one plant.

aRegion "0" includes Brunswick, Columbus, Pender and New Hanover
Counties.

1-23

C. Certain existing plants can be'designated to
become regional plants.
d. Small remote treatment facilities will be
needed until discharge to 'a regional plant
is possible and feasible.

e. No provision is made for industrial wastes from
large plants normally treated in industrial waste
treatment plants owned and, operated by the in-
dustry,
III. Comprehensive Water and Sewer Program, Pender County, North Carolina,
F. T. Green and Associates, 1968.

Summary of Contents
A. Methodology of Analysis and Study

B. Background Basic Studies

1. Population and economy

2. Natural resources

3. Existing land use
4. Financing of water and sewer systems

S. Water supply sources

C. Plans

l.- Atkinson

",,a. Recommend single well with not less than 100 gpm
capacity and storage tank with not less than
75,000 gallon capacity.
b. No installation of sanitary sewerage collection
and disposal system prior to late 1970's. Such
a system will probably be desirable between

1980-1990.

2. Long Creek
a. Recommend installation of pneumatic water system
utilizing artesian wells. Elevated storage is

not of immediate concern not until there are

more than 200 customers.

b. There is little need for planning or installation
of a sanitary sewerage facility prior to the

late 1980's.

1-24

3. Surf City and Topsail Beach
a. Expand existing source of water supply and dis-
tribution system to serve new customers.
b Both communities expect by mid-1980 to have
population meriting a system of sanitary

sewerage collection and disposal.

4. Penderlea.

a. Planning for a water system should begin in the
early.1970's.
b. Planning for waste disposal system should begin

in late 1970's.

5. Maple Hill and Lee Webb
The two communities could adequately be served as an
interconnected water supply and distribution system

planned now.

1-25

Existing Land Use Plans for Pender County Area C2Miled Within the Last
Ten Years

I. Land Development Plan, Burgaw, North Carolina, North Carolina De-
partment of Natural and Economic Resources, Division of Community
Services, October, 1974,

Summary of Contents

A. Background
.a. Population and economy

2. Topography

Soils

4. Utilities

B. Existing Land Uses
C. Goals and Objectives

D. Land Development Plan
l.. Central business district in center of town.
2. Neighborhood area bordering Atlantic Coastline Railroad.
3. Residental-Commercial areasincorporating'the bulk of

the land area within the town limits.

4. Residential-Agricultural area principally surrounding

the town.

5. Industrial areas at edges of town extending somewhat

outside the town limits.

6. office and institutional areas scattered principally

within the town limits.

.71.1 Parks and recreation areas along waterways.
Er Plan Implementation
1. Zoning - revise and expand existing ordinance to cover
corporate limits and 1-mile area surrounding.
2. Subdivision regulations --@ to insure proper design
standards are met and necessary improvements provided.

3. Codes related to buildings - @minimum standards for con-
struction, plumbing, heating and electrical installations.,
4. Annexation - when significant amounts of residental de-
velopment is proposed outside the corporate limits.
5. Housing improvement

1-26

Existing Transp .ortation Plans for Pender County Area Compiled within the
Last 10 Years

I. Cape Fear Region Population and Economy Inventory and Analysis
Key Issues, Cape Fear Council of Governments, 1973'.
Whilethe above is not a formal Transportation Plan,.it does
make certain recommendations for the region that would affect
Pender County.
A. An improved overland transportation network between the Port
of Wilmington and inland industrial and market centers. Such
an improvement would lead to an expansion of activity at the
port as well as to the attractiveness of the region for more
general economic growth.
B. The location of Region "0" to the east of the mainstream of

north-south coastal movement through North Carolina has long
hindered access to the area. An improved link (a f6ur-lane

route) between Wilmington and the Piedmont along the U. S. 421
corridor needs to be provided. Such would provide Access to

1-95 and the industrial areas to the northeast.

II. Transportation Goals for Cape Fear Region,,Traffic Planning Associates,

Inc., 1971.
Summary of Transportation Goals and Policies
A. To provide a broad rangelof employment opportunities for the
Region "0".
B. Utilize selected major transportation facilities as a major

ca-talyst for development.
C. Provide urban public transit for all segments of the population
consistent with public support available for transit.
1). Provide a coordinated multi-modal transportation system for

the region.
(There are currently no local utilities extension or open space
and recreation policies in effect in Pender County).

1-27

Existing Local Regulations Affecting Land Use in Pender' County

I. Pender County Soil Erosion and Sedimentation Control Okdinance

Effective Date: January 25, 1975

Application: All unincorporated areas within the geographic

confines of Pender County and to incorporated

areas as may by resolution adopt this ordinance.

Exclusions:

1. Certain agricultural and forestry activities

2. Activities covered under Mining-Act of 1971

.3. Those activities over which the State has

exclusive regulatory jurisdiction.

Summary of Provisions

A. A permit from the tower Cape Fear Soil and Water Conservation District

must be obtained before the undertaking of any land disturbing activi-

ties subject to this Ordinance.

B. An erosion control plan shall be prepared for activities on tracts of

one acre or more.

C. On site inspections will be made to insure compliance.

II. Rules and Regulations Adopted by the Pender County Board of Health Relative

to Sanitation in the County

Effective Date: July 5, 1954

Application: Geographic confines of Pender County

1,-2.8

Summary of Provisions

A. An Ordinance Relating to Proper Excreta Disposal Requirements:

1. Pender County Health Dept. approval of sewage disposal methods

for all places where people live, assemble or congregate.

2. Building inspection by authorized agent of P. C. Health Dept.

before use, sale, lease or rent of buildings.

B. Installation of Plumbing or Sewage Disposal Plant in Pender County

Requirements:

l.- Permit from P. C. Health Dept. for construction or installation

of plumbing or sewage disposal facilities.

2. Septic tanks must meet stated design criteria.

3. Disposal fields must be located at stated minimum distances away

from water supplies, streams, dwellings and property lines; must

have adequate seepage; must meet state design criteria.

4. Plumbing must be installed in accordance with N. C. State

Building Code.

5. Permit from P. C. Health Dept. for sludge removal

III. Rules and Regulations Governing the Sanitation and Operation of Trailer Camps

Effective Date: July 5, 1954

Application: Geographic confines of Pender Coiinty

Summary of Provisions

1. Location only where adequate drainage exists.

2. A minimum distance of 10' between trailers.

3. An approved sewage disposal system.

4. Solid waste disposal containers.

1-29

5. An adequate and accessible supply of safe drinking water.

6., Adequate supervision to maintain orderly and sanitary condition.

7. Receipt of Trailer Camp Permit from P. C. Health Dept. before

opening of camp to public; permit must be renewed annually.
(Local land use regulations are limited to thoselisted above.
There are currently no county subdivision or nusiance regulations,
floodway ordinances, historic districts, building codes, or en-
vironmental impact statementordinances, noris there county-wide
zoning).

446

CONSTRAINTS

There are areas of Pender County in which, because of the

physical condition of the land or water, particular kinds of develop-

ment would be either especially costly or likely to cause undesirable

consequences.

The inherent soil characteristics, water table elevations,

susceptibility to flooding, and extent of key public services strongly

influence private and public costs for development and management of

Pender County. The physical restraints hence the unit cost of

development for intensive urban development are least on these areas

which now support agricultural production; the restraints and costs

increase as sites become increasingly wet or removed from public services.

Factors that restrain intensive development may favor extensive resource

management forestry, wildlife, and recreation, for example.

Physical

Flooding

The U. S. Geological Survey is mapping the Flood Prone Areas

of Pender County. The purpose of these maps, as stated on each, is

to "show administrators, planners, and engineers concerned with future

land developments those area&.that are subject to flooding.". The flo od

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.

1-31

There is no single flood elevation.for Pender County. Flood

Prone Area maps have been completed for most of Pender County and show

that flood level elevations change considerably across the county. For,

example, south of RockyPoint on Turkey Creek, the areas follow a 10'

contour line; along the western edge of the AIWW, 15'; immediately

west of US 17, 45-50'; and north of Penderlea 501. Alongthe Pender

County Outer Banks, the flood level elevation is between 10-15 feet msl.

Soils

Good soils with little or no developmentproblems related to

them are relatively scarce in Pender County (Bellamy et al. 1974).

Nearly 40% of Pender County is wetland. In order to use

wetlands for most urban types of development, the water must be'removed

and kept off. Wetness.-or a tendency toward flooding and ponding, is,"

even outside the wetland areas, the most common soil limitation in the

county. Poor drainage has precluded development of large portions of

the county; it has influenced highway location and tended to isolate some

areas. Over 90 percent of the wetlands in the county are in the form

of swamps or pocosins. Pocosins created by haidpans in the soil can be

drained if the hardpan is broken; those occurring in muck soils over-

lying clay, on the other hand, are virtually unfit for any use that
requires dry ground. a S.o far, attempts at draining either kind of

pocosin on a large scale in Pender County have usually yielded unsatis-

factory results.

a
Mr. A. H. Pridgen, SCS Conservation Technician, Personal Communication.

1-32

L+

There are few soils in Pender County that will not provide

a good building foundation since throughout most of the county, there
i's good clay subsoil with a high bearing capacity and low shrink-swell. a

The Lumbee-Johns-Kalmia Association and Bladen-Lumbee-Craven are well

suited for foundations, as is the Barclay-Pasquotank-Weeksville if the

water is removed (U. S. Soil Conservation Service 1973). Adjacent to

rivers in the county, however,.there are often deep sands that, though

too high in elevation to be in danger of frequent flooding, offer little

strength for foundations.

Most of the soils in the county have.either severe or moderate

limitations for septic tanks, particularly those closely spared. Wet-

ness is the chief cause of problems with septic tanks, causing wastewater

to saturate the soil and pond on the surface. The deep sands adjacent

to rivers, a nd the Newhan sands along the beaches, however, offer s uch

rapid drainage that too little filtration occurs, limiting the useful-

ness of septic tanks in them as a method of sewage treatment.

The principal limitation for the use of Pender County soils

for most agricultural purposes is wetness and a tendency toward fl6oding;

even in the best agricultural soils, artificial drainage is usually

required for maximum production. The chief limitations for agricultural

use of the deep sands along the coast and rivers are sterility and

inability to hold moisture.

aA. H. Pridg ,en, SCS Conservation Technician, Personal Communication.

1-33

Steep Slopes

Land in Pender County is virtually level, with few areas where

steep slopes occur. In some places along rivers, particularly the Black

River, the water has cut through consolidated materials, resulting in

steep bluffs. South of the Black River near the Sampson and Bladen

County lines, steep slopes are predominantly in sands and sandy loam, so

erosion problems do not occur; in the areas surrounding Ward's Cornerl

however, steep slopes are found in clays, and serious erosion can result

a
when the soils are exposed.

The steep slopes in some partg,-of the county have created

ravines narrow and deep enough for water to be impounded without inun-

dating vast areas of land. The only areas well suited for ponds are where

the ravines exist over 'soils tight enough to hold water.

Wat er Quality

The North Carolina stream Classification System was developed

in order to protect any existing high quality waters in the state, and

to improve those waters of lesser quality, to the maximum extent

practical. Improved quality in raw water supplies can mean simplified

water treatment and reduced cost of water treatment plant operation. The

result is more consistently@high quality water delivered to the consumer.

Following public hearings, all stream sections in the county

were classified on the basis of desired and existing uses. Below is an

explanation of the "best usage" classification system as adapted by

aA. H. Pridgen, SCS Conservation Technician, Personal Communication..

1-34

6 6

Fresh Waters:

Class A-I Suitable as source of water supply for

drinking, culinary, or food processing

purposes after treatment by approved

disinfection only, and any other usage

requiring waters of, lower quality.

-'Class A-II Suitable as a source of water supply for

drinking, culinary, or food processing

purposes after approved treatment equal

to coagulation, sedimentation,,filtration,

disinfection, etc., and any other usage

requiring waters of lower quality..

Cl ass B Suitable for outdoor bathing and any

other usage requiring waters of lower

quality.

Class C Suitable for fishing and fish propagation?

and any other usage requiring waters of

lower quality.

Class D Suitable for agriculture and for industrial

cooling and process water after treatment

by the user as may be required under each

particular circumstance.

1-35

Tidal Salt Water:

Class SA Suitable for shellfishing for market

purposes and any other usage requiring...

water of lower quality.

Class SB -Suitable for bathing and any other usage

except shellfishing for market pur-

poses.

Class SC Suitable for fishing and any other usage

except bathing and shellfishing for market

purposes.

Water assigned Class "C" and Class "SC" and designated as "swamp waters"

(Swp. w.) require a minimum dissolved oxygen content of only 3.0 parts

per million.

There are no Class A-I, A-II. or B streams in Pender Countyr

all of its Streams being classified "swamp waters." All except three

streams in the.county are classified C, D, or SC; Beasley's Creek,

Bishop Creek, and Old Topsail Creek-are classified SA. The present use

of these three streams is forest and fishing.

Sources of Water Supply-Recharge Areas

Ground water comprises the sole source of water supply for

both public and private systems in Pender County(Wiggins-Rimer &

Associates 1973). Subsurface water of reasonable quality and quantity can

be found throughout,the county, as the area is underlain by a-vast aquifer

1-36

6-2-

system from which potable water can be drawn at various depths. There

are four geologic strata occurring in the aquifer system underlying

the county. Most of these strata occur in a wedge-shaped form,

dipping generally 20 ft/mile (Laymon 1965). Some strata exist only

in limited areas, outcropping or disappearing toward the western part

of the county.

Pleistocene and recent surficial sands cover most of Pender

County and constitute the principal water source for individual wells

rural domestic supplies in the county (Von Oesen and Associates

1972). in the surficial sands, water usually occurs under watertable

conditions.within 15 ft of the land surface though in the beach areas,

this water may be partly confined by clay in the lower part of the

aquifer (Laympn 1965). The productivity o f this aquifer is limited

primarily only by its thickness; it is recharged directly by rainfall,

and is easily subject to contamination. The surficial sands are the

only potable water supply between the Cape Fear and Black Rivers, where

the underlying strata contain brackish water (Wiggins-Rimer & Associates

1973).

The Yorktown clays, shell beds and marls occur on a limited

basis east of the Northeast Cape Fear River., This formation is absent

in the central and western parts of the county and, unlike the other

strata in this area, does not thicken toward the-coast (LeGrand 1960).

The Yorktown is rarely used as a source of water supply.

1-37

The Castle Hayne limestone underlies the surficial sands in

the northeast and southeast sections of the county, outcrops in the

central portion of the county, and forms just a thin layer between

the surficial and Cretaceous sands in the south. The Castle Hayne

is absent from the western part of the county. The formation varies in

thickness locally..but, in general, thickens progressively toward the

coast. In Rocky Point, it ranges between 10 and 40 ft thick; in Maple

Hill, 40-100'; and in Topsail Beach, is about 701 thick (LeGrand 1960).

The Castle Hayne is not extensively used for water supply in

the county, but is potentially valuable as a large, long term supply,

especially in the east. In the beach areas the formation beginz at 351

below msl and its waters occur under artesian conditions; its recharge

area would, therefore, be expected to be located elsewhere, and not be

vulnerable to contamination from the immediate.area (Wiggins-Rimer and

Associates 1973). In most places where it occurs to the west of the

beaches, however, it begins less than 25' under highly permeable sur-

ficial sands. Under these conditions, a high recharge rate could be

expected (Wiggins-Rimer and Associates 1973).

The quality and quantity of water from the Castle Hayne aquifer

vary in different locations. It ranges from hard to very hard with a pH

of 7-8; in the Surf City, Holly Ridge area, it is low in chlorides and

high in iron locally; and at Holly Ridge, indications are that a specific

capacity of-50-70 gpm/ft of drawdown can be obtained (Laymon.1965). Most

1-38

attempts to.obtain good water from the Castle Hayne in the immediate

beach areas have proved unsuccessful thus far.

The Peedee Cretaceous sands, limestones and marine clays

occur throughout Pender County. For the most part, west of the North-

east Cape Fear River, the Peedee immediately underlies the surficial

sands. Toward the east it occurs beneath,.and is in hydraulic connec-

tion with, the Castle Hayne. In both cases, the Peedee is recharged

directly by rainfall; in the beach areas, however, the formation occurs

deep and its water is under artesian conditions. Rechargeto the Pee-

dee, therefore, probably does not take place in the immediate beach

areas.

The Peedee furnishes water to many wells drilled west of the

Northeast Cape Fear;..wells in it vary from 50-200 ft deep and yield UP

to 300 gpm (Wiggins-Rimer &.Associates 1973). In the eastern part of

the county it is rarely used for water supply, as it can be high in

chlorides and too deep to be used economically.

Subsurface water quality and yields for specific locations in

Pender County can be determined only on an individual case basis with a

test.,well. Often, water obtained from shallow aquifers will contain

excessive amounts of iron. In some locations, local people have become

accustomed to iron or hydrogen sulfide concentrations that others would

find objectionable. The,quality-that can be expected can sometimes be

estimated from the condition of wells nearby.

1-39

In general, satisfactory water.can be obtained from some

depth most anywhere in Pender County; and with the numerous existing

watertable wells, most of the surficial sands throughout Pender County

function, to a certain degree, as recharge areas.

Fragile

Wildlife Habitats

Less than 1 percent of the land and water area of Pender

County is developed for urban purposes and only 11 percent is in

cropla nd or pastureland (Ospina and Danielson 1973). The. bulk of the

undeveloped land in the county is forest or wetland that is being

managed and utilized to varying degrees. Along the rivers and in most

swamplands of the county a combination of wetness and dense vegetative

cover has discouraged intense utilization or occupancy of the land; a

scarcity of road networks through many of these areas continues to

discourage human encroachment.

A variety of wildlife species inhabits most of the undeveloped

land in Pender County, with population ratings varying with the quality

of habitat offered in different locations. The Soil Conservation

Service (1973) reports that deer, quail, raccoont anadromous fish and

warm water fish have good population ratings; all of the above have good.

existing habitat, as do bear. According to the SCS, there exists a

potential for developing good habitat for cottontail rabbit,imourning

doves, duck.and turkey. According to the Wildlife Resources Commission

1-40

(Barick and Critcher 1975), a moderate deer herd occurs throughout the

county with a high population on the Holly Shelter Game Land and on the

adjacent hunting club lands; a moderate and stable bear population is

present primarily east of the Northeast Cape Fear River; and a small

population of wild turkeys exists along theriver and in a few other

locations. According to the Wildlife Resources Commission, all small

game species occur, with foxes and wildcat common, and squirrel, quail,

woodcock, snipe, raccoon, and opossum abundant; the primary waterfowl

species is the wood duck, with other species such as mallard occurring

in limited numbers.

Bluegill and redbreast make up about 48% of the fish catch in@,

the county, with white perch, catfish, and other panfish making.,up an

additional 35% (Barick and Critcher 1975).

Of the species listed by the NCDNER in 1973 as endangeredi the

American alligator and red-cockaded woodpecker do occur in Pender Co,@Inty and

it is probable that the loggerhead turtle and Atlantic sturgeon'occur in

@the county '(Barick.and Critcher 1975).

In'addition to that land naturally suited for the regeneration

of game, several public and private game management areas and wildlife
preserves,exist. In the Angola Bay State Game Refuge and the Holly

Shelter State Game Management Area, wildlife and game are managed and

protected.for maximum productivity and proper stocking. on the Black

River, near the Bladen County line, 12,000 acres of privately owned pre-

dominantly riverfront property have been used over the years to raise

1-41

various wildlife species including quail and turkey. a

Natural and Scenic Areas

All three rivers of Pender County are listed on'the North

Carolina "Inventory of Natural, Scenic and Historic Areas." The Cape,

Fear and Northeast Cape Fear are both wide, deep and slow moving rivers

with hardwoods the dominant trees; both rivers are presently used for

swimming, boating and fishing, commerce and industry, and limited

camping; both are easily accessible at numerous points.

The Black River forms part of the western boundary of Pender

County and flows through Grady and Canetuck Townships. It is a narrowl

winding river with wooded shores and very black water. The,Black River

has been recommended for designation in a state-wide Natural and Scenic

Rivers Program. The purpose for such designation is the "preservation

of esthetic and recr eational qualities for the public," and avoidance

of "uncontrolled development and private use" (Natural, Scenic and

Recreational Rivers Committee 1971). According to the report of the

Rivers Committee, because of difficult logging conditions, the bottomland

hardwoods on the immediate floodplain of the Black River have not been

disturbed by logging operations; the soils along the stream are sandy

loam causing little siltation to occur even during heavy runoff. The

Black River can provide a beautiful and scenic route for the small boat

enthusiast.

'A. Pridgen, SCS Conservation Technician, Personal communication.

1-42

cl
Archeologic and Historic Areas

There are three sites in Pender County listed on the National
Park Service's6ational Register of Historic Places; one ofthe three,

Moore's Creek National Military Park, is-federally owned. The Moore's

Creek park-is located one mile west of Currie at the junction of SR 1100

and NC 210. On the National Register but in private ownership are the

Bannerman House and Sloop Point Plantation. The Bannerman House,.located

in the Players vicinity, .25 miles NE of the junction of S. R. 1522.and

S. R. 1520, is presently used as a private residence.. Sloop Point

Plantation is located in Topsail Township, 7 miles NE.of Hampstead, the

junction of S. R. 1561 and U. S. 17. Sloop Point Plantation is pre-

sently a private residence. There are other sites throughout Pender

County with potential. recreational value, including old churches, houses

and towns with architectural, political, religious or military signi-

ficance.

.Wetlands

Almost 40% of the land area of Pender County is made up of

wetlands, in which the land is covered by either standing or very slowly

moving water virtually year-round. In some-locations, the county's wet-

lands have been drained, filled,,or otherwise altered in order to

facilitate their utilization. In most cases, the draining of inland

wetlands has proven extremely costly, and many such attempts have been

unsuccessful. In the coastal wetlands, however, higher market land values

have often warranted the high'cost of removing the water and maintaining

1-43

40C)
dry ground; in these areas, wetland alteration has recently fallen under

strict control of the State and Federal government, and is becoming

less prevalent.

The chief value of the wetlands in Pender County is derived

from their function as wildlife and fish habitat and reproductive areas.

Alteration of these areas can severely affect the quantity and quality

of many fish and wildlife species valuable to the economy of the area.

Damage to wetlands occurs in various ways; for example: a) in the dredg-

ing of channels through coastal wetlands, the changes.made in the nature.

of the channel bottom can result in long and short.term changes in the

number and kinds of benthic (bottom dwelling) species; and increased

siltation often results from these dredging operations, affecting areas

beyond the immed iately altered site. The once common practice of dredging

a channel through marshland and depositing the spoil on adjacent land

for fill causes compaction of the marsh soil. Such compaction creates a

situation similar to a hardpan, hindering the movement of water (in-

cluding waste water from septic tanks) downward through the soil;

b) channelizing, snagging, and straightening hardwood stream channels may

significantly alter w ater temperatures thusaffecting the makeup of life

both in the water and on the adjacent lands; c) lowering water tables.in

swamps and marshes by only a small amount in a given site will often

effect changes in water level in adjacent areas.

Within Pender County, there are three main types of wetland,

each with a characteristic soil and vegetation type. The hardwood swamps

1-44

of the county are found principally on the bottom,floodplains and low

lying stream terraces along the major rivers and creeks. such swamps,

occurring in long narrow bands, occupy only about 6% of the county land

area (U. S. Soil Conservation.Service 1972);.however, they extend along

miles of waterways, including the Cape Fear, Black, and Northeast Cape.

Fear Rivers and Moores and Long Creeks. This type of wetland is

characteristically wooded with deciduous species, but much of the timber

has been removed from these areas in logging operations over the years.,

The-swamps occurprincipally on soils of the Johnston-Lumbee association,

which are subject to flooding and ponding.

A second kind of wetland in Pender County is the pocolsin that has

organic soils of the Dorovan-Ponzer association. Such wetlands are found

occurring in a wide belt of land stretching between US Hwy. 17 and the

Northeast Cape Fear River. These pocosins are characteristically upland

bogs subject to ponding and flooding over long periods of time; organic

surfaces more than 60 inches thick can be found overlying either sandy

or loamy subsoils. The dominant vegetation is wetland shrubs, with sparse

stands of merchantable tree types. These pocosins are well suited to

wetland wildlife management, and poorly suited to commercial forestry.'

Both the Angola Bay State Game Refuge and the Holly Shelter State Game

Management Area are located in this type of wetland.

The third kind of wetland in Pender County is the tidal marsh-

land located the entire length of the county's coastal sounds and creeks

and within the influence of regular lunar tides. These estuarine marshes

and tidal flats are found covering all but the high sand ridges, dun6lands

1-45

and marine forests of this area, yet cover less than 4% of total county

land area (U. S. Soil Conservation Service 1972). The dominant soil

found in these areas is the very poorly drained Capers.soil, subject to

daily and frequent tidal flooding; the dominant vegetation is salt marsh

grass.

For the purpose of better defining their significance, tidal

marshes can be divided into two categories: low tidal and high tidal

marshes. Low tidal marshland is defined as that consisting primarily of

Spartina alterniflora and usually subject to inundation by the normal.rise

and fall of lunar tides.(Coastal Resources Commission 1975). The par-

ticular significance of the low marsh is based on its high yield to the

estuarine waters of organic detritus, which serves as a primary food

source for various species of finfish and shellfish, such as menhaden,

shrimp, flou nder, oysters, and crabs. The roots and rhizomes of the

Spartina. alterniflora serve as waterfowl food, and the stems as wildlife

nesting material. Low tidal marshes also help to retard shoreline

erosion.

High tidal marshland is subject to occasional flooding by-tides,

including wind tides, and is characterized by a variety of marsh

grassesf including Juncus roemerianus and various species of Spartina.

The high marshes also contribute to the detritus supply of the estuarine

system and support a diversity of wildlife types; they function as

effective sediment traps and as a further deterrent to-shoreline erosion.

1-46

Much private development has already occurred along the tidal'.

marshes of Pender County, particularly in places adjacent to the higher

land of Topsail Island and along the Intracoastal Waterway. The

Intracoastal Waterway is used extensively for water transportation,

fishing, and related water sports; the.adjacent,marshland has been used.

as sites for homes, piers and business enterprises supporting the Water-

way activities.. With bridge and highway connection to the mainland, and

commercial boating facilities available, much of the marshland Adjacent

to:T6psail;Island-is readily Accessible to the public.

Estuarine Waters

The estuarine waters that surround the coastal wetlands in'

Pender County are probably the most productive natural environment in'the

county, supporting many fish and shellfish species for part of all of

their life cycles. According to the statuatory definition /G. S. 113-

229(n)(2)/ estuarine waters in North Carolina include all of the waters

of the Atlantic Ocean within its boundaries, and all the waters of

the bays, sounds, rivers and tributaries thereto seaward of the dividing

line between Commercial Fishing Waters and Inland Fishing Waters; the

dividing line between these waters has been.estAblished for each body

of water by agreement between the N. C. Department of Conservation and

Development (now DNER) and the N. C. Wildlife Resources Commission. The
following waters in Pender County are classified Ccmmer@ial Fishing' Waters

and, as such, are designated estuarine waters of North Carolina:

1-47

1) The Cape Fear River below Kings Bluff Locks Thoroughfare;

the Black River below the point where the Thoroughfare

joins the Black River;

2) The Northeast Cape Fear River below the Lanes Ferry

Bridge,

3) Batts, Old Topsail, Mullet Run, Polly Branch, Virginia

(South Prong), and Bishops Creeks;

4) Beasleys Creek below the Narrows.

Public Trust Areas

The State of North Carolina supports the traditional public

rights of access to and use of lands and-waters designated Public Trust

Areas for purposes including navigation, fishing and recreation. Public

Trust Areas include.estuarine waters, navigable water bodies to their

ordinary high water marks, and all lands beneath these waters. The

State allows appropriate private development within Public Trust Areas,

provided that the development not be detrimental to public trust rights.

Ocean Beaches and Sand Dunes

Pender County has 15 miles of barrier island ocean shoreline,

10.8 miles of which are extensively developed and within municipal juris-

dictions. The Pender County barrier islands begin at Rich Inlet (the

New Hanover County line) and extend past Old.and New Topsail Inlets to'

the Onslow County line. The ocean beaches of the islands are charac-'

teristically wide and sandy with moderately high foredunes occurring

1-48

all along the shoreline; oak-cedar maritime.forests occur in most areas

of higher elevation behind and in the protection of the foredune.

There are approximately 4.2 miles of barrier island southwest

of New Topsail Inlet that are divided into two sections by Old Topsail

Inlet. Both sections are privately owned, undeveloped, and were cited

in the 1955 National Park Service."Seashore Recreation Area Survey."

The northernmost section, Hutaff's Beach, is similar in character to

the beach north of Surf City, with fair vegetation, moderate dunes, and

a wide beach. South of Hutaff's Beach is Foy's Beach with more extensive

maritime forest, sizeable dunes,and a wide beach. Both of these islands

are adjacent to the AIWW but are inaccessible by road.

The ocean beaches consist of unconsolidated soil material

without vegetative covering; they are characteristically of a larger soil

particle size and lower slope than the adjacent sand dunes into which

they grade. The character of the sand deposits on ocean beaches is

dynamic in nature, responding to fluctuations in the forces which cause

their deposition and erosion. Tidal action, littoral currents, and storms

cause a continual movement of sand both along the beach and between the

dunes and deeper ocean waters. The resultant changes in beach morphology

cause the shoreline, theoretically demarking the confluence of land and

water, to shift to the point of being virtually undefineable.

The ocean beaches are one of the most valuable natural recrea-,

tional resources in Pender County, and are extensively utilized as such.

Their dynamic nature, however, precludes safe and cost effective

1-49

structural development on them without the use of sound engineering

practices established for coastal hazard areas.

The foredunes along most of Topsail Island have been described

as relatively large, 12-20',in height, with no rear dune and very.little

movement of the sands inland (Boyce 1953). Where undisturbed by

development activities, most*foredunes in the Pender County portion of

the island are relatively well stabilized by vegetation, with herbaceous

and shrub zones on the lee side beginning just.over the crest of the

dune. Foredunes occur all along the coast of Topsail Island to within

about one half mile of New Topsail Inlet. Near the inlet, foredunes ar e

low or undeveloped especially where recent sand acretion has occurred.

Sand dunes are valuable both for their aesthetic appeal and

for the protection they afford the land behind them. Where stabilized

by vegetation, a foredune can act as a temporary buffer to the erosive

effects of storm wave action. For the most part, however, dunes are

relatively unstable land features over time and,as such, are hazardous

areas for the location of permanent structures.

Excessive Erosion Areas

"Storm erosion of beaches and dunes of.the North Carolina coast

has always occurred, but it has not been a serious economic problem un til

recently.when increased development of beach front property hastaken

place" (Knowles, et al. 1973). Knowledge of the patterns of coastal

erosion is essential to the safe and productive development of a coastal

region.

1-50

The continual erosion and accretion occurring along a beach

result in a gradual change in the location of both the high water and

dune lines over time; excessive erosion and accretion as accompany

large storms, can affect a change in the location of these lines very

rapidly. In the course of a large storm, great quantities-of beach

and dune sand can be eroded from a site and replaced by subsequent

acretion, with no net erosion resulting. Structures situated on these

sands, however, once removed, are seldom replaced intact. Planning

for safe development.of beach front property must take into account

both long term erosion trends, established from historical.records,

and the probability of extensive shorter term erosion losses predictable

by scientific study.

A comparison of mean annual erosion and aQcretion rates

occurring along Pender County beaches between 1938 and 1972 reports only

minor changes taking place annually in the dune and high water lines of

Surf City and Topsail Beach, accretion of the duneline between Old and

New Topsail inlets, and erosion of both dune and high water lines between

Rich andOld Topsail inlets. Table 1-4 shows these rates of change in

four sections of Pender County Beach.

1-51

Table 1-4.' Mean Annual Rates of Change (feet per year), 1938-1972.a

New Topsail Old
to Topsail,
Surf Topsail old Topsail. to
city Beach Inlet 'Rich Inlet

High water line 0.1 0.1 9.6 5.0
accretion accretion erosion

Dune line 0.5 1.2 2.1 5.7
accretion erosioA erosion erosion

a
Source: Wahls, H-E. 1972. A survey of North Carolina beach erosion
by air photo methods. Raleigh, N. C.

The amount of dune erosion that will'take place during a stormI

of agiven frequency depends on several factors, primarily the storm

surge level, the height and massiveness of the dune, and the distance of

the dune from the mean water line (Knowles, et al. 1973). Along Pender

County beaches, the calculated recession from the toe of the dune during

a storm with an@expected frequency of once in twenty-five years is

approximately 112 feet (Knowles et al. 1973).

Erosion and accretion occur normally along the watercourses of

estuarine marshland in Pender County, but generally to a much lesser

degree than along its beaches. Erosion in the sound and along the intra-

coastal waterway is often accelerated by the wake of motor boats;

accretion in these waters is accelerated when sands and siltscarried

1-52

by streams from the mainland, settle out in the calmer waters of the

sounds. Costlybulkheading of sound front property and maintenance of

navigation channels is often required for developments in these areas.

Resource Potential

Natural Scenic and Recreational

Pender County has a variety of areas with natural, scenic or.

recreation resource potential located throughout its territorial

-boundaries. In some of these areas, the resource potenti al is not fully

realized partially because it is not fully understood;,iicomplete and

sometimes contradictory reports of the native biota, geology,.condition?

and ownership of specific sites yield insufficient informat* ki on which
3.0

to base realistic assessments of an area.

Table 1-5,lists those areas which have been suggested as having

a
resource potential as natural.areas.

There are two areas of Pender County with*natural and scenic

recreation value which are owned and managed by the State of North

Carolina. The 22,000 acre Angola Bay State Game Refuge, located in the

north of Holly Township bordering Duplin County, is a Carolina Bay, low,

wet and heavily wooded. The dominant tree species in this wetland area

are oak, gum and pond pine; bear and deer are present and protected

throughout the refuge. Due to a lack of roads, Angola Bay is presently

aSource: File material supplied by Robert Tuelings, DNER Division of
State Parks.

1-53

a
Table 1-5. Areas With Possible Natural Resource Potential.

Site Location Description

Clear Pond Rocky Point Township, Deep clearwater pond (in
southeast of Rocky an area characterized by
0
Point: Lat. 34 23'; dark water ) located on
long. 770511 top of a hill or bluff;
origin undecided, possible
limestone sinkhole; pre-
sence of rare flora
probable.

-------------------------------------------------------------------------

McRae Farm Near Rocky Point at Presence of nutmeg,
Marl Outcrops junction of US 117 hickory and other rare
at NC.210. plants.

-------------------------------------------------------------------------

Camp Kirkwood One mile off US 117 Bluff area where galax
(church camp) near Watha. grows.

apurther evaluation of the above or other areas could result in the
designation of some areas as Complex Natural Areas, Areas That Sustain
Remnant Species or Areas Containing Unique Geologic Formations. There
no Registered Natural Landmarks-in Pender County.

1-54

almost inaccessible to the general public. The 60,000 acre Holly.

Shelter State Game Management Area is located in Holly and Topsail

Townships, east of the Northeast Cape Fear River. Some 6,000 acres of

this area constitute the Holly Shelter Creek Area, a scenic Forest

Creek used for camping, fishing and woodland. Slow, narrow, shallow

and winding, the creek is mostly swamp, with deciduous trees dominant..

Theremainder of.the game management,area is used as a.State Game

Refuge, with deer hunting allowed on a limited and restricted basis;

it contains several natural lakes, each accessible at several points..

Though all of Pender County is below 100 ft msl., there are

some scenic high points in the western part of the county. 'The highest

.elevation in the county occurs 1 1/2 miles N.of Atkinson-on SR 1201,

a
where an ocean shoreline terrace has been dissected by streams. To

the south of Atkinson, deep valleys with sheer bluffs have been formed

by the Black River's cutting through well bedded sand and clay layers;

a scenic drive can be found along parts of NC 53 south of Atkinson.

A re-creation-historical-nature trail has been proposed for

development along the 27 mile abandoned right-of-way from Richards in

Pender County to Kerr in Sampson County. The trail, if developed, would

provide for hiking across the southwest corner of Pender County, through

Currie and Atkinson,. on into Sampson County. Public hearings on the

proposal are being held in the affected areas and a petition campaign in

a,A. H. Pridgen, SCS Conservation Technician, Personal Communication.

1-55

-7t

support of the trail has bee n launched by members of the Pender Co unty

Bicentennial Association.

commercial

Pender County's prime agricultural lands are of resource value

not only to the county but to the state as well. According to A. H.

Pridgen, SCS,Conservation.Technician, the areas of the county best suited

to farming are those on soils of the Lumbee-johns-Kalmia Association, and

the Barclay-Pasquotank-Weeksville Association, most of which are'located

between US 117 and US 421. The chief limitation of the soils in.,both of

these Associations is a tendency toward wetness and flooding; proper

drainage is required for maximum agricultural production. The predominant

land use in areas with soils in these Associations is woodland and farm-

land; however, most of the urban development located west of the Northeast

Cape Fear River, including thecommunities of Rocky Point, Long Creek,

Atkinson, Burgaw, Watha, and Willard, is also situated on these soils.

Marl is Pender County's only mineral resource with an

existing or foreseeable future market value. There are extensive areas in .

the central and northeastern parts of the county where good quality marl

can be found at or near the ground surface. According to Mr. Pridgen, the

center of the best marl deposits is in the northeast corner of the countyl

southwest of Maple Hill, just SE of Hwy. 53. At this time, however, the

low potential value of the marl does not seem to warrant extensive.efforts

to protect it.,

1-56

Community Service Facilities

Some community facilities in,Pender County are operated.on a

county-wide basis and some by individual communities and municipalities.

Many of the facilities and services that are offered on a.county-wide basis

are headquartered in the town of Burgaw, located centrally in Pender County.

Road networks west of the Northeast Cape Fear River are integrated And dis-

tributed in such a manner as to make the delivery of services from Burgaw

efficient for,that area; a "rule-of-thumb" is that all of this,part of

Pender County is within a 30-minute drive from Burgaw. The beach towns of

Surf City and Topsail Beach, located on the east coast of Pender County,

are well beyond a 30-minute drive from Burgaw; they Are isolated from the

bulk of the county by the Holly Shelter swamplands and its complete lack

of throughroads. As a result, some county-wide services, including the

rescue squad and solid waste collection, do not serve the beach areas.. Other

county services, such as the health clinics, hospital, and library, though

available to beach town residents, are little used by them. By virtue of

U. S. 17's N-S orientation, many services can be obtained more readily by

beach area residents in Wilmington or Jacksonville.

Health Services

Health services in Pender County are maintained primarily by the

Pender County Health Department, with headquarters in Burgaw,,under the'

supervision of the Pender County Board of Health. Pender memorial Hospital,

completed in 1951 and located in Burgaw, has an existing capacity of 47

beds and 12 basinettes in the nursery. There are four physicians and three

dentists who operate privately in Pender County and constitute the hospitaL

1-57

-2-3

staff; one of these physicians is employed by the hospital to perform

surgery for the whole county. The hospital maintains a "courtesy staff"

of 30 consulting doctors, mainly from New Hanover County, in order to

ensure that specialized treatment is available when necessary.

Services offered at Pender Memorial include x-ray, laboratory,,

dietary, surgical and delivery room; approximately 500 patients per month

use the emergency room for treatment of injuries, routine sickness, and
serious illnesses. The hospital is operating now at about 90 percent

capacity, and expansion of a wing to increase the capacity to 125 beds is

being planned.

'The Pender County Health Center, completed in 1954, adjoins the

hospital in Burgaw and houses both the Health Department Administration and

the Health Clinics. There are presently in operation family planning,

pediatrics, and immunization clinics, with a satellite clinic recently'

opened in Atkinson.

Under the direction of-a.non-profit organization, the Penslow

Foundation, a new health center complex is being planned for the coastal
area of the county. Plans call for construction of a building in Holly

Ridge housing three doctors' offices, one dentist office, a pharmacyt

waiting room, six'treatment rooms, an x-ray room, and a laboratory. The

clinic would be operated on a 24-hour basis to serve residents of the area

from the ocean west to Maple Hill and from Hampstead north to Verona in

Onslow County.

At present, there is a severe shortage of General Practicioners

in Pender County, with only four to serve 18,000 people. As a result, many

Pender County residents must go to doctors in Wilmington, and some clinics

in the Pender-County Memorial Hospital are held by New Hanover County doctors.

1-58

Schools

Public education in Pender County is operated.by the County, with

12 schools distributed throughout the jurisdiction. There are seven ele-

mentary schools, one located in each.of the following areas: Hampstead,

Rocky Point, Long Creek, on N. C. 53 between Atkinson and Rhyne Crossroads,

Burgaw, Willard, and Maple Hill. There are four Junior High Schools dis-

tributed geographically, located in the West (Atkinson), East (Hampstead),

Central (Burgaw), and Northwest (Penderlea). The two high schools are

located each in the center of the two areas of highest population concen-

tration: Topsail High School is located in Annandale and serves the beach areas

and the U. S. 17 corridor, Pender High School is located at Rhyne Crossroads,

virtually equidistance from Penderlea, Willard, Burgaw, Long Creek, Rocky

Point, and Atkinson.

In recent years the high school curriculum has been accelerated

with many educational courses added including commerce, vocational agri-

culture, home economics, trades,-industries, and driver education.

Beg inning in the fall of 1975, occupational education will be available

to all students in grades 7, 8, and 9 as well. A new comprehensive reading

program for all students in grades 1-8 will be offered in the fall of 1975,

with more individual instruction. A coordinated health service for all

pupils is maintained jointly by the Pender County Board of Education and

the Pender County Board of Health. Grades 1-12 are instructed in health

and physical education.

1-59

_75-

Table 1@6. Pender County Schools, 1974/1975. a.

Schools Grades Enrollment 1974/1975

Topsail High K-3 and 8-12 477

Topsail middle 4-7 270

Rocky Point Elementary K-6 203

Long Creek Elementary K-6 247

Atkinson Junior 6-9 242.

West Pender Elementary K-5 239

Pender High 10-12 775

Burga'w Elementary K-6 586

Burgaw Junior .658

Penderlea Junior 4-9 426

Willard Elementary K-3 149

Maple Hill Elementary K-6 136

Total enrollment 4,409

aPender County Board of Education.

1-60

-7,6

Libraries

The Pender County Library, begun in 1937, is located in Burgaw.

In 1972 the library held 8,152 adult nonfiction titles, a large collection

of unrecorded paperbacks, anda special collection of North Caroli na publi-

cations and do cuments (Cape Fear Council of Governments 1972). The library

on occasion borrows books.from New Hanover County, and from the N. C. State

Library; the library subscribes to 54 periodicals, has audio-visual aids,

and special childrents film programs, reading programs, and a bookmobile

holding 1,600 volumes. Library personnel include a full-time librarian and

three part-time assistants.

North Carolina Library Standards call for approximately one-half

sq ft per person for the population served by the library system, with the

smallest branch containing a minimum of 1,500 sq ft; the Pender County

Library contains 4,560 sq ft, with the Standards indicating a need for

9,024 sq ft for the existing population (Cape Fear Council of Governments

1972). The library staff states a need for more science books and for a'new

children's room; additional space for a museum and a reference center are

also desired.

@Rescue Squads

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

was formed in 1961. The rescue.squad serves the whole of Pender County ex-

cept Surf City and Topsail Beach, each of which has its own Squad; the.com-

munity of Sloop Point is presently organizing a rescue squad as well.

Emergency calls from around the county come to the County Squad central,

dispatcher in Burgaw who sends out trucks as needed. The rescue squad

offers free courses and instructions in rescue work, and furnishes trans-

1-61

portation in an emergency; its memb ers are pledg ed to duty at-a moment's

notice. The squad operates according to A duty roster published each

month, with men and equipment on call 24 hours a day. The squad is main-

tained financially by annual appropriations from the town of Burgaw and

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

Fire Protection

Fire protection in Pender County is provided by municipal and com-

munity volunteer fire departments located in Atkinson, Burgaw, Hampstead,

Long Creek, Maple Hill, Penderlea, Shiloh, Surf City, and Topsail Beach.

The activities of the separate volunteer departments are coordinated by a

emergency dispatch office in Burgaw; calls from throughout the county go

into a central number in Burgaw where the alarm button is pushed to alert that

fire department in the county closest to the area in danger. Each department

has a limited service area, but there are mutual aid agreements between most

of them calling for assistance when needed.

The most serious problem in the county's fire protection service

is the need for adequate financing (Hardman and Mack 1973). Most of the

departments receive revenue from special Fire District tax levies; however,

most of the budget is raised by the firemen through time-consuming special

fund raising activities which detract from the amount of.time that could be

spent in training to improve fire fighting abilities and in teaching fire

prevention techniques. Lack of funding also increases the amount of

response time for fire alarms because-most volunteer units cannot afford

to keep a man at the fire house full-time.
Volunteer fire department equipment is designed to flight structural

fires only, and not brush or forest fires. Pender County is withinthe

Whitevillp State Forest District which maintains four fire-towers in Pender

1-62

County (near Edgecombe, Rocky Point, Ward's Corner, and Players); three

additional towers are located immediately outside the county in Brunswick,

Sampson, and Onslow Counties.

The N. C. Forest Service has designated three classifications of

forest land in the county according to its fire condition and needs. High

Risk areas are characterized by large fuel accumulation, wetness and/or a

lack of roads; they tend to burn readily, or are virtually inaccessible to

fire-fighting equipment. High Value areas are those that are growing the

best marketable crops of trees or contain sites of other than forest value

such as Moore's Creek Park; these are areas whose financial loss to fire

would be greatest. The third category of forestland is High Risk and High

value with a combination of the above conditions. The Forest Service main-

tains in Pender County two crawler tractors in good condition and three pu mps

and tanks mounted on pickups.

Fire fighting services provided by the volunteer departments and

the N. C. Forest Service function independently of each other, yet

cooperatively when both structures and forest are endangered. In addition,

most forest industries maintain fire fighting equipment and personnel and

can readily be called upon to assist where needed elsewhere in the county.

The present status of fire protection in the county is summarized

in Tables 1.5 and 1.6.

Solid Waste Disposal

There are at present three solid waste collection and disposal

systems in operation in Pender County. The Topsail Township Landfill opened.

on July 7, 1975 to provide a waste disposal site for the beach areas of the
county. Garbage collection in Surf City and Topsail Beach is-operated by

-7

Table 1-7. Pender County Volunteer Fire Departments, 1973. a

Department Area Served Number of members Source of Funds

Atkinson 3 mile run 31 Town of.Atkinson-Budget
Donations from County
($1,800 per year), Contri-
butions, Fund Raising
Campaigns, Fire Tax District.

Burgaw 4 mile fire district 42 Public Funds, Donations,
from town of Burgaw Contributions, County $2,500.

Hampstead no answer 21 In process of becoming Tax
District, Fund Raising
'Projects.

Long Creek 3 miles of all weather 21 Local Fire'Tax of 10(@/$100,
roads from station County Donations, Contri-
butions, Fund Raising,
County $1,800.

Maple Hill approximately 4 31 Public CountyFunds, Donations
miles Contributions and Fund Raising
County $1,800.

Penderlea 3 miles 27 Local Fire Tax of 10@/$100,
Donations, Fund Raising,
County $1,800.

Shiloh newly organized newly Newly organized.
organized

Surf City town limits 125 County $1,800,.Fund Raising
Projects

Topsail Beach town limits 24 Appropriated Public Funds,
County $1,800.

aSource: Hardman and Mack, 1973. Region "0" Fire Protection Inventory,
Cape Fear Council of Governments, Wilmington, N. C.

1-64

Table 1-8. Pender County Fire Departments,@Type and Condition of Equipment. a

Department Type Condition

Atkinson 1970 Ford Howe Triple Combination No answer
750 G.P.M. Pumper; 1958 Chevrolet
Tanker 1,000 gal., 350 G.P.M. Pump;
1946 Ford Sonford Triple Combination
500 G.P.M. Pumper; 1973 Van for
carrying breathing apparatus and other
small equipment.

Burgaw 1968 Ford 750 gallon Pumper; 1959 Ford No answer
American LaFrance 750 gallon Pumper;:.
1968 Chevrolet 1,250 gallons water
carrier; 1966 Chevrolet Equip. Truck;
all equipment radio equipped.

Hampstead One Pump Truck 1,000 gallon capacity No answer
One Pump Truck 450 gallon capacity
ordered new uniforms, have recently
purchased panel truck for carrying
equipment,.2 Scott air packs (for
entering smoke filled rooms).

Long Creek 1937 Mack Jr., 750 G.P.M. Pump; Good
1946 Ford 300 G.P.M. Pumper; Fair
1954 International Tanker, 1,000 gal. Fair
tank

Maple Hill 1967 Chevrolet 6 cylinder-mid-shipmount Excellent
pump, 500 G.P.M., 936 gallon water
supply.
1954 international 6 cylinder front Fair
mounted pump 750 G.P.M., 1,200 gallon
water supply

Penderlea One Pumper-tanker combination, 1,700 No answer
gallons; One 1,500 gallon tanker, and
one 500 gallon pumper.

Shiloh Newly organized.

Surf City one pumper truck, 500 G.P.M.'y One pump No answer
truck, 750 G.P.M.

Topsail Beach Howe 750 G.P.M. Pumper, 1972. No answer

aSource: Region 'loll Fire Protection Inventory, Ju'ne 1973..

1-65

each of the two municipalities, but the landfill is operated by the county..

Garbage is collected three times each week in the beach towns. In the

winter months, when the population is low, few trips to the site west of

the Surf City Bridge on N. C. 50 are needed each collection day. In'summer,

however, with the greatly increased tourist population, facilities and.man-

power are required to work long hours in order to keep up with the. increased

loads.

The Town of Burgaw operates a solid waste collection system. Com-

pactor trucks collect waste materials and transport them to the county

operated land-fill.

The whole unincorporated area of Pender County is provided with
garbage pickup and disposal by a,county system begun in February 1973,. a There'.

is one landfill for the area, located on S. R. 1640 four miles west of Burgaw.

Residents of the county bring garbage to established collection boxes

located in all communities and at several major crossroads; the collection

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

followed by deliveries to the landfill. The heavily populated Hampstead

area, however, usually requires a third collection day each week on Saturday.

The existing solid waste collection and disposal system provides

adequate service for existing needs in Pender County; where containers are

overloaded, new ones are added. Presently, efforts are being made to obtain

an additional collection truck. In the future, additional landfills located

in various parts of the county could reduce the distance travelled between

collection containers and the landfill, thereby reducing operating costs.

a
The Town of Atkinson provides regular house-to-house waste collection.
Municipal crews deposit the material in county recepticals located on the
outskirts of the town.

1-66

Water and Sewer

As of June 1974 there were a total of nine public water systems in

operation in Pender County; three of these systems were municipally owned,

the remaining six served mobile home parks (Wiggins-Rimer.and Assoc. 1973).

of the three municipal systems, only two, in Burgaw and Surf City, actually

have wells; the third, Topsail Beach, buys its water from Surf City, but

operate s its own distribution system.

The Surf City Water System was established in May 1968 with the

financial assistance of the Federal Housing Administration. The well system

is located just west of the AIWW on N. C. 50, with an existing capacity of

516,000 gallons per day and a design capacity of 2.5 million gallons per day

(mgd). There are approximately 500 connections to the system in each of the

two towns, with a combined average summer water use of about 375,000 gallons

per day.. Water consumption in the towns var ies with the seasonal changes

in population, being lowest in off-season winter months.

The Town of Surf City is experiencing some problems.with sedimen-

tation and scaling in its distribution system due to the hardness of the

ground water used for water supply.

The Tow n of Burgaw operates three wells, each 350 ft deep, with

a combined maximum capacity of 1 mgd; the peak load spstained through

January 31, 1975 was 0.35 mgd, leaving 0.65 mgd available over peak load

(Burgaw Community Audit 1975). The town has an overhead storage of 175

.thousand-gallons-of water, The Burgaw water system presently serves the,

whole town, but plans for extending the system to serve the area within a

one-mile radius of the town are being considered.

1-67

The only public wastewater disposal. facility in Pender County is

located in the Town of Burgaw where wastewater is given secondary treatment

before discharge into Osgood Branch. The plant has a capacity of 0.3 mgd

and presently serves approximately 1,750 people; the peak flow sustained as

of Jaunary 1975 was 0.28 mgd leaving a surplus capacity above peak of 0.02

mgd (Burgaw Community Audit 1975). There are presently areas in and around

the Burgaw town.limits which are not connected.to the municipal system; be-.

cause of the high water table and poor soil conditions, these areas are prone

to flood the surface with sewage, causing niiisance conditions. The town Is

applying for funds to extend the sewerage system to serve all of the town

and many of the surrounding areas that are experiencing problems.

In 1973 approximately 93 percent of the population of Pender County

was served by private wastewater disposal systems, most of which serve in-

dividual single-family residences and rely on subsurface disposal methods

(Wiggins-Rimer and Assoc. 1973). The problems with wastewater disposal IS

the county are widespread, and relate to the following three characteristics

of the county: a high water table, poor soil conditions in some areas, and

a population density which cannot support public wastewater collection and

disposal systems@

in the Topsail Beach-Surf City area, the development of small lots

has created overcrowded conditions for the septic tanks in use. The two

towns are presently studying the feasibility of a regional wastewater dis-

posal facility.to cover the whole of Topsail Island.

of 1-68

SECTION II

ISSUES, OBJECTIVES AND STANDARDS

MAJOR ISSUES AND GENERAL ALTERNATIVES

East West Population Characteristics

In 1876 the North Carolina General Assembly established Pender County

as a political jurisdiction separate from New Hanover County. At this time

the Cape Fear and Black Rivers, and the lower part of the Northeast Cape Fear

River functioned as natural barriers to overland transportation in the area

and were adopted as the principal political boundaries between Pender and

adjacent New Hanover, Brunswick, Bladen, and Columbus Counties. Governmental

functions could efficiently be extended in the counties as far as the land

surface permitted the construction of roads and communication networks to

link outlying areas with the county seat. The rivers served as transportation

and communication corridors between the separate jurisdictions. The Northeast

Cape Fear River still functions as a barrier to east-west transportation in

most of Pender County., but is no longer used for commercial navigation. The

river, together with the Holly Shelter wetlands, effectively divides the

county into eastern and western sections linked only by N.C. 210 in the

south and N. C. 53 in the north.

For as long as agriculture was the principal economic activitiy in

the county, the east and west sections developed in much the same fashion

and were characterized by a rural-farm atmosphere, single family, detached

dwellings on large lots, and higher densities and commercial.activities

centered in towns and major crossroads. The increase in outdoor recreational

activity on the coast and industrial activity in New,Hanover County combined

with the overall decrease in agricultural activity in Pender County have

resulted in a divergence of development patterns in the two sections in

the last 10 to 20 years. In both sections, current development is heaviest

along transportation corridors& But the western-secti6n of the county maintains

much of its rural-farm atmosphere even with a shift to non-farm employment);.

the population of existing communities has not increased significantly, there

is little influx of new (non-Pender County) population, and there are few new

communities or neighborhoods being developed. The eastern section, partiCU-

larly between U.S. 17 and the AIWW, is experienc ing an increase of new planned

subdivisions accommodating new populations of both permanent and seasonal

residents. New development in this section is generally recreation rather

than farm oriented and is accompanied by an increase in tourist shopping

facilities along U. S..17.

The isolation of the eastern part of the county from the west, and

from Burgaw makes the delivery of county:services.to the east inefficient.

The eastern section has already begun planning for a medical facility to

serve its residents, a separate landfill for the area has been established,

and the two Topsail Island municipalities operate their own rescue squads.

The eastern section property owners pay the same tax rate as the rest of

the county, on property having a generally higher market value per acre than
in the west; the y contribute substantially to the County General Fund,a but

feel they do not receive a proportional amount of county service. The

differences in lifestyle of the two sections of the county create differences

in the kinds of services desired as well as ability to pay for those

services.

aIn FY 1973-1974 property owners in Topsail Beach and Surf City together
paid $125,156 to the County General Fund; comparable figures for the
unincorporated parts of the eastern section are not availablb.

11-2

Provision of Service Facilities

According to the U. S. Census of Population, in 1970 approximately*

40 percent of the Pender County labor force commuted to work outside the

county. More.recent Census employment figures are not available, but the

increase in homebuilding along U. S. 17, without a significant increase in

job opportunities in the county, would indicate a strong likelihood that

presently at least 40 percent of the labor.-force commutes, The empkoyment.in

-the county,only 60'peicent of the labor force implies on_the@[email protected] that

a significant number of people find residence in the county attractive

enough to outweigh the disadvantages of the required long drives to work.

The rural atmosphere, uncrowded living conditions, and friendliness of the
people are reasons often given for choosing to live in Pender Cou'nty. But

there are several disadvantages to both the public and private sector in

having the county ser.ve.as a bedroom community,,- not the least of which is

Pender's lack of a substantial tax base from which to draw revenue required

for the operation of modern service facilities. Industrial land use produces

a substantially higher property tax base than residential, agricultural, or'

forest land use. Most of the revenue required for the operation of community

service facilities-including schools, solid waste disposal, libraries, and

hospitals is drawn from property taxes. To a certain extent, a population

can choose to do without services, to accept the lack of services as an

acceptable price to pay for a rural lifestyle; but when public health is

involved, and health risks have to be borne by transient or outside popu-

lations as well as residents, the right to choose becomes more limited.

11-3

The soils throughout Pender county have moderate to sever limi-

tations for proper septic tank operation; the surficial sands that cover@

the area recharge water table aquifers and some underlying deeper aquifers

as well. Except in those soils that are perennially wet, properly con-

structed septic tanks with sufficiently large filter fields can operate

efficiently in most any soil in the county. Where water table wells are

located sufficiently far from septic tank filter fields and other sources of

,contamination, drinking water of acceptable quality may be obtained near the

surface. But the determination of "sufficiency" in size of filter.fields

and location of wells is at best difficult to make and may change overtime

as the ground becomes more saturated with wastes. The use of deeper aqui-

fers for water supply can reduce the lot size required for septic tanks,

and well fields can be protected from contamination by being isolated from

sources of contaminants. But even where the risk of contamination of water

supplies is reduced, contamination of surface waters may occur.

Throughout Pender County, the limiting factor for the use of septic

tanks is population density; it must be sufficiently low. Throughout the.

county as elsewhere, the limiting factor for the cost-effective installation

and operation of a public sewage treatment facility is the revenue base;

it must be sufficiently high. Thepopulation of many areas of the county,

particularly the established communities,i.s approaching the point where density

is too high for continued use of septic tanks, but the revenue base remains

too low to support,public sewerage facilities.

Heretofore sewage disposal and water supply in Pender County has

been largely the responsibility of private property owners. Existing regu-

11-4

lations governing the installation of privies and septic tanks make it the

property owner's responsibility to demonstrate that his facilities will not

endanger his own health, the health of his neighbors, or the productivity

of the, surrounding environment. Developers selling residential lots are

under no obligation to make lot sizes sufficiently large to accomnodate

private sewage disposal or water supply facilities, or to warn buyers of

thedifficulties that could be encountered in trying to accommodate those

facilities on his lot. Longtime residents of Pender County are generally

aware of the limitations imposed by existing soil conditions and water

tables; people new to the area, especially those accustomed to publicly

supplied facilities, need in some way to be warned of the pending problem.

The public sector in the county, either on a county or municipal',

level, is responsible for the general health and well being of-its citizens

and the tourist populations it invites to enjoy its recreation resources.

The responsibility it must assume is if not the financial one of creating

public facilitieg,..then at least-the legal one of assuring that new

development inthe area will not be detrimental to the well being of its

residents or its natural resources.

Employment opportunities

Pender County's function as a bedroom community creates additional

problems for the private sector, particularly as the price of gasoline con-

tinues to rise. The financial burden of commuting may soon force even

long-time residents of the county to leave the area and locate closer to

their place of employment. Conunuting populations often do their shopping

near their place of employment, particularly if larger choices and lower

11-5

prices are available there; thus, money earned in neighboring counties is

of ten spent in neighboring counties, depriving local businessmen of

revenue badly needed for the expansion of local commercial facilities.

Sincelts initial settlement, Pender County's economy has been

based on its natural resources, particularly its agricultural and forest

resources. Changes in agricultural activities have reduced the manpower re-

quired for existing farming operations; past lumbering practices have reduced

the quality of current forest production. There are virtually no valuable

mineral resources in the county. Increased leisure time and access have

raised the value of Pender's coastal recreational resources and the ability

of tourist related-activities to function as a source of employment for

county residents. While forming barriers to highly developed transportation

networks and urban land use, Pender County's wetlands have yet undeveloped

outdoor recreation potential for hunting, fishing, sightseeing, and boating.

The county's natural resources, including its human resources,

remain its most valuable commadi@ies; the future prosperity of the county

will depend on the care and imagination exercised in promoting the continued

expanded use of its resources as the base of its economy.

industry

on October 25, 1975, the residents of Pender County voted to

authorize the County Commissioners to establish an Industrial Commission
which will employ a professional Industrial.Developer to attractindustry

to the county. Economic realities necessitate an expansion of industry

within the political jurisdiction. A professional industrial developer

working with local officials and businessmen can provide the county with

11-6

an opportunity to assess its potential-for industrial location, establish

criteria for the kind of industry that would best fit the stated desires

of the people, and then conduct a full-time search for the desired firms.

Pender County's potential for attracting new industry is limited

initially by the factors that limit industrial location in the region as

a whole. The Lower Cape Fear area is characterized by a shortage of

craftsmen and professional personnel, inadequate community leadership, de-

ficient transportation facilities, limited services such as water and sewer,

and inadequate cultural amenities. More importantly, the region retains an

image of being slow, unproductive and not really interested in economic pro-

gress. An industry seeking a new location must first be induce4 to locate

in the southern Coastal Plain of North Carolina, then in Ponder County in

particular.

Proximity to markets, available labor supply, and appeal of climate

are factors involved in an industry's choice of a region; the individual

county industrial developer can have little of f ect on regional level decisions

(Kiser 1975). Within the region, however, Ponder County can attempt to com-

pete with neighboring counties by providing necessary service facilities to

industrial site.s and by improving its primary and secondary roads, health

Caro facilities, the skills of its labor supply and the overall liveability

of its communities.

An alternative to locating new industry in the county is the ex-

pansion of exist ing industries and,markets. Improvement in facilities

servicing existing businesses, advanced training in skills presently being

utilized, and improvements in transportation networks between raw materials,

manufacturing*sites, and markets can encourage the expansion of businesses

11-7

owned and operated by residents of the county. Investment.capital generated

the county can be retained and used to finance further expansion.

County government's promotion of its native businesses can provide evi-

dence to outside investors of a healthy attitude toward economic growth.

Any promotion of industrial growth in.the county must be viewed

as a means to an end, not as an end in itself. A labor intensive industry

hiring local labor at acceptable wages can help raise the per capita income

of a large segment of the population. A capital intensive industry, utilizing

local physical resources only, provides little or no employment base to local

residents. County services.extending to industries hiring.only outside

labor can result in a net loss in benefits to the county in spite of an

increased tax base. Tax abatements, low interest loans, and the insurance

of capital investments can encourage the location of capital intensive in-

dustries by making capital less costly than labor. Any inducements or

direct public investments should be directed towards attracting those firms

which will help accomplish those growth objectives established by the

people of the county.

Agricultural Markets

Agriculture in Pender County has become increasingly mechanized

over the years, with a reduction in the total number of farms and increase

in the average.farm size. Production per acre has increased, as have the

cash per acre receipts. Marketing facilities for most farm commodities

produced, however, have not responded to increased yields, and most of the

county's production continues to be sent to wholesale markets outside of

the county. Grains, such as corn and soybeans, go mainly to Norfolk,

Virginia, and Fayetteville; tobacco is sent to warehouses in Wallace,

Clinton, Kinston and Whiteville, 4nd poultry,ibroilersl are grown on contract

and sent to Rosehill or Raleigh. There are markets in the county for only

two commodities.; blueberries are packaged and sold retail from Burgaw;

locally grown eggs, together with those bought wholesale from farmers

farther south, are graded and packaged in Burgaw.

Some facilities exist locally for temporary storage and loading of

grains to be shipped out of the county; the reliable outside markets assure

farmers of buyers for the grain they produce. There has been some increase

in grain storage on individual farms, but most farmers must sell their grain

wholesale at harvest time, then later in the year buy grain retail in order

to feed their livestock. The Petersburg, Virginia, market for locally grown

grapes in 1975 was inadequate to handle all of the grapes produced; a

secondary outlet in Georgia helped to move out all of the fruit harvested,

but did not help to increase the price of the product.

According to Pender County Agricultural Extension Agent, Bill

Walker, lack of volume is the main barrier to the establishment of local

markets for local produce. A sufficient amount of a given wholesale product

must be available to justify the costs of processing, packaging, and shipping
to consumers. In many areas of the countryrequired volume is achieved by

farmers' establishing co-ops and working together to buy and sell.wholesale.

The Pender County tendency is to buy retail and sell wholesale, forsaking

the revenue that would be produced by an additional turnover of cash.

Because of the trend in agriculture towards less labor/more

capital intensive production of commodities, agriculture in@the future can

11-9

be expected to offer less and less employment opportunity. The establish-

ment of processing, packaging and retail markets for farm products, on the

other hand, is a potential source of increased employment and should be.

actively.encouraged in the county. One commodity with local market po-.

tential is grapes; a winery in the county could.offer both a reliable

market for the product and an employment base for non-farm labor.

While adequate volume for grain marketing is probably not avail-

able in the county, increased local storage facilities could reduce the

revenue currently lost by farmers having to sell their grain wholesale

only to buy grain later retail.

Forest Resources

The current quality of forest resources in Pender County is limited

partly by the physical condition of the land and.partly by past timbering

and agricultural practices. Approximately 80 percent of the county is in

forest, 99 percent of which is on land with a low (Site Class 4 or 5) in-

herent capacity to grow crops of'industrial wood. The occurrence of the

water table at or near the surface limits the growth potential of many tree

species by limiting the amount of available oxygen. The high acidity of

swamp waters limits the kinds of nutrients,available for some species,often

resulting in dwarfed and stunted trees. According to Derryl Walden, N. C.

Forest Service District Forester, improved drainage would raise much of

the county's forestland to Site Class 2 or 3. Along riverine floodplains

where native cypress and other swamp species occur, yields of high, quality

lumber can usually be found; but in many cases, the steepness of adjacent

slopes, the low bearing capacity of muck soils and the density of surrounding.

vegetation discourage the removal of timber from these areas.

II-10

P ltural soi
rime agricu ls are also prime soils for forestry.. His-

torically, these.soils have been the first to be cleared of timber and put

into agricultural productioni For many years, farming practices did not

include soil conservation measures, and soil nutrient depletion and

erosion often resulted. When soils were no longer able to produce suffi-

ciently high agricultural yields, they were abandoned and allowed to return

to forest. But the second and third growths of trees, on depleted soils,

are rarely of as high a quality as were initially present on the site.

Forest operations in the county have traditionally been charac-

terized by the removal of the highest quality timber with poorer quality

trees left to regenerate future growth. Successive cuttings continued

to remove those trees with potential for high quality seed production,

resulting in residual stands of timber with successively poorer growth

potential. In many cases, careless timber removal practices resulted in

further degradation of a site and a higher susceptibility to fire.

Approximately 25 percent of the commercial forestland in Pender

County is owned by forest industries who have initiated maximum production

and sustained yield management practices. Well over half of the forest-

land is in Private individual ownership, some in large parcels, some. in

small woodlots,. but little.intensively managed. Stand efficiency on

most of these holdings could be improved by more effective replanting and
reseeding, protection from fire and disease, and more efficient ut-iii-

zation of all forest products.

The N.-C. Forest Service offers assistance to small wood-lot

owners in establishing and managing good quality timber stands especially

on land that has previously been cut over or neglected. The N. C. Forest

Service encourages proper site preparation and stand regeneration techniques,

and timber removal practices. Some of the larger industrial wood product

companies, such as Weyerhaeuser and Federal Paperboard, unable to supply

all of their timber needs from their own forest lands, assist. individual

land owners in forest management, and assure markets for trees grown.

The major markets for Pender County forest products are located

outside the County. Most sawtimber'is bought by Acme Wood and Georgia-

Pacific in Columbus County, Godwin's Sons in Duplin County, and Corbett

Lumber in New Hanover County; most dimension. timber is bought by Acme Woods

and Georgia-Pacific; and pulpwood is bought by Weyerhaeuser in Duplin and

a
Federal Paperboard in Columbus County. There area few sawmills.in Pender

County such as Pender Lumber and Burgaw Lumber in Burgaw, and Atlantic

Timber in Hampstead; but only a small percentage of the timber grown in

the county is processed in the county.

The establishment of more local markets for forest products, as for

agricultural products, could increase the revenue received by the county by

increasing retail sales and local employment opportunities. Much of the

timber harvested in the county is sold as pulpwood for paper production,

and pulp and paper mills require both large capital investments and large

volume. Sawmills and veneer mills,on the other hand, producing more

specialized woodproducts,, can vary more in size of both capital investment

and volume of production and-can more easily be established as new industries.

aDerryl Walden, Whiteville District Forester, N. C..Forest Service,
Personal Communication.

11-12

C/ -7

Drainage

The primary limitations on land utilization for any purpose in

Pender County are imposed by the drainage system. Approximately 40 percent

of the county is classified Wetland, and extensive additional areas are

susceptible to flooding and ponding during periods of heavy rain. Wetness

has influenced the location of highways and urban.development, and places

serious constraints on the logical pattern of urban expansion. It is the

degree of wetness of most soils rather than their fertility that determi
ines

their value for agricultural and forestry purposes; costs of production are

seriously influenced by the cost involved in maintaining a low water table.

Most industrial forest lands must be drained at least temporarily to ensure

that seeds and seedlings survive the first few years after planting. Wetness

causes difficulty in fire fighting and the removal of timber from some forest

lands because of the tendency of heavy equipment to sink in the soggy soils.

The outdoor recreation value of many undeveloped parts of the countyis

restricted because of the high costs involved in access road construction.

In urban areas of the county, drainage ditch systems have been

designed to.reduce ponding by facilitating runoff. Ditches from urbanareas,

farmland, and road easements empty into nearby creeks and rivers causing

large flows to occur quickly after the beginning of storms. Because the

immediate flood plains of most major watercourses in the county are vir-.

tually undeveloped, flooding causes little direct damage.

Many smaller watercourses, however, naturally-winding with slow

moving wa.ter have become clogged with silt and debris and,choked with over-
hanging brush. Until paving became common, tremendous amounts of silt

11-13

were eroded from roadways, carried by ditches, and deposited in nearby

streambeds. Logging activities for many years left tree tops'and branches

discarded on stream banks; high waters washed the debris into the streams,

where it collected in narrow channels creating virtual dams. It is becoming

a common agricultural practice in the county to plant without cultivation

in order to reduce the loss of topsoil.and its deposition downstream; but

topsoil deposited years ago continues to clog waterways, and with.debris

dams, causes.increased flooding. The recreation value of many streams has

been reduced as waterways, once navigable, have become impassible.

Conscientious efforts are being made throughout the county to reduce

siltation and debris collection in streams. But the flooding problems that

already exist cannot be relieved unless the existing snags are cleaned out.

According to SCS Conservation Technician, A. H. Pridgen, Long Creek, which

drains large amounts of farmland, is the most severely clogged stream in

the county, causing floodwaters to back up in local drainage ditches.

Shelter Creek drains the Maple Hill area to the Northeast Cape Fear River.

Flooding problems in the area have forced some farmers to give up acreage

that had long been in production.

According to Pridgen, any efforts to clear out streams-must be

done with public funds on a watershed basis, beginning at the outlet and

proceeding upstream. The scale of such undertakings is beyond the financial

resources of riparian landowners, and the benefits derived from such proj-

ects would affect other property owners'as well.

There are legitimate fears in many areas about potential adverse

environmental effects resulting-from stream clearing, snagging,, and,

11-14

especially, straightening projects. Silt and debris cleaned from A s tream

bed must be deposited nearby, and even when-seeded to prevent re-entry into

the stream, spoil piles are usually,unsightly. Temporary alteration of

fish and some wildlife habitat is unavoidable, and the required road access

through the project area alters adjacent vegetation patterns. In order to

reduce the cost of cleaning miles of winding streambeds, straight channels

can be cut across a floodplain and stream flow diverted to the new channel.

Benefits gained by the channelizing approach, however, have not yet been

adequately demonstrated to outweigh the damage done to the stream.-system.

The benefits of any extensive draining operations in the county

must be weighed against the adverse impacts that can be expected to result.

The value of flood prevention must be weighed Against the value of fish

and wildlife in an area, and the land use to be protected weighed against

alternative land uses.

11-15

led

trioiities for Public Service

The provision of public services in Pender County is now and

will continue to be limited by three major factors. In terms of,

acreage, the county is extremely large, in terms of population it is

extremely small, and in terms of tax revenues it is poor. Its pro-

perty tax revenues in FY 1973-1974 amounted to less than one-quarter

the revenues of Brunswick County (chosen for comparison because of

its similar size, physical characteristics and location). Pender's

per capita income is so low that increased taxes to pay for in-

creased services would probably impose more of a burden than the

new services would relieve.

There is a strong feeling of self-reliance in the county a

feeling of "if you want it done; do it yourself." Many services now

in operation were initiated, established and are operated primarily

by voluntary manpower and private contributions. State and Federal

grant monies are sometimes solicited, but heavy reliance on outside

financing is generally opposed.

Desires for economic growth in Pender County are.generally only

desires for economic survival. Parents want to see their children

able to remain in the county after high school graduation; young

people want to be able to work in the same county in which they live.

Most county residents are fully aware of the health and safety pro-

blems associated with inadequate private sewage disposal and water

supply facilities. They.realize the necessity of maintaining stan-

dards of health care and education comparable to standards set state-

wide. Most residents, though many reluctantly, see an expansion of

11-16

industry as the key to producing sufficient economic progress to allow

them to hold their ground against the rising costs of essential ser-

vices.

But as economic progress will probably be slow in coming, desires

for improved services must be tempered by financial feasibility. The

primary public service needs and levels of responsibility are summarized

as follows:

.@Roads

There are two principal problems with the internal road system

of the county: 1) The isolation of the eastern section from the west

is augmented by the limited road network connecting the two sections.

Between Hampstead and Burgaw, the two most densely populated communities,

NC 210 winds for miles adjacent to the Northeast Cape.Fear Rivek before

its junction with NC 117. 2) many roads in the western section of the

county, connecting forestry and agricultural resources with markets,.

have weight restrictions that s everely limit theloads that can be trans-

ported. County residents can be subjected to heavy fines for over use

of the only roads-available for transportation of their agricultural

and forest products.

Sewer"And Water

The establishment of a county-wide sewer and water system in

Pender County is not only far beyond the financial capability of the

county, but also exceeds its needs. Population densities requiring

sewer systems and public water supplies are generally limited to the

more populated communities. The responsibility for sewer and water

facility establishment where needed is generally considered a

11-17

municipal function. The county's role in providing for such facili-

ties can best be carried out by encouraging new development to occur

either within the reach of municipal facilities or in areas where no

public facilities will be required.

Schools, Health Care, Solid Waste Collection, and
Employment opportunities

Health care, education, and solid waste collection are

county@wide needs and accepted county responsibilities. Such ser-

vices can best be rendered by distributinq facilities as evenly as

possible to existing communities throughout the county. -Economic

development is likewise desired throughout the county and its distri-

bution, while ultimately dictated by the needs of industry, can be

encouraged to occur adjacent to population centers.

and Drainage

Adequate housing and drainage programs designed to upgrade

blighted urban areas and preveht. unnecessary flood damage are cur-

rently being undertaken by a community development committee. Federal

grant monies for such projects are available on a limited basis. Their

appropriation is based on the needs of the county, as evaluated-by

professionals and county officials, synthesized in specially scheduled

public hearings. Specific projects to be undertaken each year are to

be.determined by careful study of those areas of the county in greatest,

need of renewal.

Fire Protection and Rescue Service

Fite protection and rescue services in Pender County are

currently and will continue to be operated by chartered volunteer

organizations receiving annual appropriations from the county. The

11-18

volunteer groups from each community are encouraged to form mutual

aid packs, increase training of personnel, teach the publicIfire

prevention and safety practices, and make careful inspection of new,.

and old buildings in order to reduce the incidence of fire damage.

Where existing water supplies are inadequate for fire protection,

municipal governments are encouraged to cooperate with fire depart-

ments in determining the most adequate means of obtaining sufficient

quantities of water.

Recreation, Historic and Natural Resources

Pender County residents are proud of their heritage and in-

terested in seeing their historic resources protected, and as much as

possible, restored. Private citizens are encouraged to inventory

historic buildings and areas and to recommend to the county appropriate

ways of affording these resources protection.

Ar*eas with natural resource potential are being inventoried

by the N. C. State Parks Office. The value of these areas must be

assessed in order.for their management to be accomplished. County re-

sidents have listed the abundance of outdoor recreation activities as

one of the primary attractions of the county. A County Parks depart-

ment, established to study the historic and natural resources, could

help'to set priorities for recreational development of these areas

as parklands for both county r esidents and the increasing number of

tourists.now,vi.siting the area. Where lack of public access to such

areas is deemed the limiting factor to their utilization, the N. C.

Department of Transportation can be petitioned to include the upgradin .g

of access roads in future highway allocations.

11-19

Projected, Population Growth

In order to plan effectively for community service facilities,

the number of persons expected to be residents of the county and the

number of those expected to need different kinds of services in the

future must be estimated. Population projections for Pender County

have been developed by various State and Federal agencies charged

with forecasting population and economic trends. Numerous sophisticated

mathematical models have been developed for making such forecasts. But

the final analysis, including the choice of which forecasting method

to employ, depends largely on whether or not historic trends are ex-

pected to continue.

Between 1930 and 1960, Pender County's population increased. But

those increases occurred at successively decreasing rates and in 1970

the county's population showed its first actual decline.*, Historically,

therefore, the trend is decline and projections for the future based on

the 1960-1970 rate of decline show a population in the year 2000 as low

as 16,500. Other projections made for the county are based on a change

in trend. In particular, the outnigration which caused the 1960-1970

decline is predicted to end, replaced by eventual inmigration due to

suburban-spillover from increased industrialization in neighboring

counties. The "change in trend" projections predict populations as

high as 20,600 in 2000. Table 2-1 lists four kinds of projections

and the populations associated with them.

None of the four projection methods listed above takes into

account the people of Pender County and the role they can play in de-,

termining their own future. In order to assess what kind of growth

11-20

)0)

Table 2-1. Population Projections.

Source Method 1980 1985 1990 2000

U. S. Department Ober "E" .18,700 19,300 19,900 20,300
of Commerce, Bureau
of Economic Analysis

N. C. Department of Cohort 19,000 19,550 20,100 20,600
Administration, Survival
Office of State
Planning

N. C. Department 1973 Ad- .17,900 17,650 17,400 16,500
of Natural and justed.
Economic Resources, Trend
Division of
Community Assis-. Arith-
tance metic 18,012 17,944 17,875 17,738

11-21

and level of population the people of the county prefer, three alter-

native growth concepts were developed. The details.of the concepts,

population levels and descriptive land use sketch maps are shown as

parts of Exhibit A-1 in Appendix A. Briefly, concept "A" assumes.

active discouragement of industrial growth, with the county continuing

to function as a bedroom community; this, concept also assumes virtual

preservation of undeveloped agricultural, forest and barrier island

lands. The population projected to accompany such a "no growth" policy

in 1975 (derived principally from an average of the Ober "E" and cohort

survival projection methods) is 21,065. Concept 11BOU assumes manage-

ment of major natural resources areas, and moderate growth of resource

based industry, producing an in-county employment base for county re-

sidents. The population projected to accompany alternative"'B" coin-

cides with that populat ion projected by the Cape Fear Gouncil of

Governments (1973) of about 24,310 people in 1995. Concept "C"

assumes major industrial development, significant population increases

in the beach area, and protection of only tidal marshes and estuarine

waters. The:population projected for alternative "C" was taken from

the Coastal Plains Regional Commissionts "Deepwater Terminal Study"

(Nathan Associates and Coastal Zone Resources Corporation 1975) in

which, as a result of large scale industrializationt a population of

38,085 was predicted to occur in 1995.

In public meetings (see Appendix A) the people of the county voted

to work towards growth concept "B". The realization of such a choice

will require active involement of Pender County residents, as the

25,000 population exceeds projections based on either historic trends

11-22

J6 7

or growth merely from suburban spillover. The first step toward the

realization of that goal a self-sufficient, stable economy with

productive management of natural and recreational resources has

been taken; the residents of the county voted for establishmentof

an Industrial Commission. The next step involves the establishment

of policies, of specific objectives and standards, to-guide future

development in the county toward the achievement of its goals.

11-23

OBJECTIVES*AND STANDARDS FOR PENDER COUNTY

ADOPTED MARCH 10, 1976
The land use policy goal of Pender County government will be

to encourage employment.and other conditions to achieve and support a

population of 25,000 by 1995.

Objective: Pender County government will.encourage new popula-

tion growth in areas within or immediately adjacent

to existing communities in order to facilitate

improvement of services provided to County

residents at lowest unit,cost.

Standards: 1. The provision and maintenance of necessary public

water supplies, sewage disposal facilities.and

paved streets will be the responsibility of

municipalities. Allocations to municipalities

for other services will be in the form of

revenue sharing based on population needs.

2. Plans for the future distribution of.county-wide

service facilities for education, health care,

and police protection will be based primarily on

the needs of existing centers of population.

objective: Pender County government will encourage preservation

of prime agricultural land for agricultural pro-

duction, at the discretion of the owner.

Standards: 1. That land presently (in 1975) in agricultural

crop production will be considered the county's

prime agricultural land.

iI-24

2. Policies will be established for county property

valuation assessment to alleviate tax pressure

to change the use made of agricultural land.

3. County tax policy, to the degree authorized by

statute, will be designed to penalize the use

of agricultural land as a tax shelter by

speculators.

objective: Pender County government will.@:encourage:--the!expansion

of the county employment and property tax bases by

seeking those industries that will maximize employ-

ment of county residents and increase per capita

income without causing excessive public services

costs or degradation of the natural environment.

standards: 1. Principal emphasis will be placed on locating

or expanding industries that will utilize Pender

County natural and human resources.

2. The County may encourage the location of industry

by offering financial assistance for the develop-

ment of industrial sites.

3. Potential industrial or commercial installations

of 60,000 square feet or larger will require.an

environmental impact assessment at the same

level of detail specified for major state actions

by the North Carolina Environmental Policy Act.

11-25

Objectiv e: Pender County government will encourage the protectio n

of riverine swamp forests and attendant i
rivers,

creeks, and streams.

Standards: 1., Drainage programs in swamp forests will be permitted

only to the-minimum.degree necessary to maintain

stifficient drainage;to alleviate flood damage.

2. The county soil erosion control ordinance will be

strictly enforced to prevent further blocking of

drainage from accelerated siltation.,

3. Adherence to high standards for channel improve-

ment and.timber harvesting practices will be

encouraged to prevent damage to indigenous fish

and wildlife species.

41. Recreational use of the rivers, creeks, and

streams will be encouraged through county invest-

ment in access facilities.

Objective: Pender County government will minimize public cost

of extension of municipal services and harm to the

environment by requiring developers to provide initial

road and necessary water and sewer services to major

subdivisions.

Standards: 1. A major subdivision is one whose ultimate devel-

opment will be ten acres or larger and involve

40 or more dwelling units, whichever is smaller.

11-26

2. The necessity for public water supplies and sewage

disposal facilities will be determined by site

evaluation based on relevant North Carolina

Division of Environmental Management and Health

Services regulations and guidelines.

3. Construction will be governed by enforcement of

at least the minimum standards of the North

Carolina Building, Electrical, and Plumbing Codes.

4. Major subdivisions will be developed only after

submission and approval of plans for the subdivision.

Objective: Pender County government will petition the.North

Carolina Department of Transportation to upgrade the

internal road system of the county to facilitate access

from one part of the county to another and to provide

heavy duty road links for farm, forestry, and

industrial product movement.

Standard: Pender County government will make an assessment of

its internal transportation needs and recommend specific

projects necessary to meet the above objective.

Objective: Pender County government will encourage utilization of

estuaries and tidal marshes which will not alter the

natural function of such resources. Such utilization

will include but not be limited to the maintenance of

channels.

11-27

Standards: 1. Programs will be undertaken to maximize the circula-

tion of tidal waters in the channels of the

estuaries and within the marshes where such

circulation will result in increased contribution

of detritus.

2. Provision will be made to encourage the creation

of public access points and the maintenance of

navigable channels to these access points for the

use of the boating public.

objective: In areas designated Areas of Environmental Concern

or otherwise deemed hazardous or fragile, Pender

county government will permit only those kinds of

development appropriate for each area.

Standards: 1. Those kinds of development appropriate for Areas

of Environmental Concern are specified in

Section III of the Pender County Land Use Plan.

2. Development in USGS designated Flood Prone Areas

will follow the Federal Insurance Administration

Criteria for Land Management and Use.

Objective: Pender County government will encourage the develop-

ment of the undeveloped barrier islands for the

purpose of public recreation only.

Standards: 1. The use of public funds for creating access to

or promoting development of the undeveloped

barrier islands for private purposes will be

discouraged.

11"28

-113

2. Future development of any of the county's barrier'

islands will adhere to the standards for

development described in Section.III of the

Pender County Land Use Plan.

Objective: Pender County government will encourage the develop-

ment of its historic resources as historic recreation

areas for public use and enjoyment.

Objective: In order to promote more productive land use.in the

County and to maintain high yields of forest products

in the future, Pender County government will encourage

reforestation of land after timber harvesting when

that land has not been cleared for other purposes.

Standard: Land owners are encouraged to use the serviced

available in the County from the N. C. Forest Service

and private contractors.

11-29

SECTION III

AREAS OF ENVIRONMENTAL CONCERN

@INTRODUCTION

Section lof the Land Use Plan describes areas of Pender County in

which, because of the physical condition of theland or water, parti-.

cular kinds of development would be either especially costly or likely

to cause undesirable consequences. Some of these areas, such as

pocosins, steep slopes,*or excessivelydrained sterile sands, constrain

development primarily because of the high costs involved in.adapting

the land for use. In most such areas, intensive development, as for

urban, transportation or industrial use, would not necessarily endanger

the inherent value of the resource, but would require excessive public

@or private expenditures for construction, maintaining access,,de-

livering services, disposing of waste products, or assuring adequate.

drainage.

In other areas, however, the undesirable consequences that could

result from uncontrolled or inappropriate development are not limited

to monetary costs. In particularly valuable or fragile areas, mis-

use of the land or water can cause degradation of a site's biological,

visual, economic, or historic resource value. In particularly hazardous,

areas, poorly located, designed, or constructed development can in-

crease the risk of property loss or endanger the health and safety of

people usi ng it.

The Pender County objectives and Standards cite the land use poli-

cies which will be used to guide the location and quality of development

in the future in order to protect and manage the county's resources and

reduce service costs to county and municipal gove rnments. Private

citizens are encouraged to solicit the professional advice offered by

county, state, and federal land management agencies on methods of re-

ducing private costs of land use and achieving maximum long-term pro-

ductivity. But forthe particularly fragile and hazardous areas of the

county, stricter control of land use activities is necessaryin order to

assure that development proceeds in a manner consistent with the capa-

bility of the.land and water.to sustain it. In these areas, designated

Areas of Environmental Concern, the county is establishing specific

standards for use and development of each area category4

Ultimately, as required by the 1974 N. C. Coastal Area Management

Act, the N. C. Coastal Resources Commission (CRC) will designate, Areas

of Environmental Concern throughout the coastal counties and will de-.

signate a permit letting authority to regulate land use within these

areas. The following categories and standards are to serve both as
guidelines for county policy implementation and as recommendation's to

the CRC for consideration as State Areas of Environmental Concern.

The Estuarine System

The estuarine waters, marshes and mudflats, as defined by G. S.

113-229 and G. S. 113-230, extending the entire length of the county's

coast, are of primary importance to the county and the North Carolina

coastal area because of their economic, scenic and recreational resource

value. The tidal marshes cover less than 4 percent of the total county

land area; but with the surrounding estuarine waters, they constitute

the most biologically productive area of the county, serving as the

primary food source for numerous fish and shellfish species. As a

111-2

scenic resource, the county's marshes are unsurpassed, supporting a

diversity of waterfowl and subtle vegetation patterns, characteristic

of the coastal area. The waterways function as transportation corridors

for commercial and sport boating activities and provide for hunting and

fishing of a variety of wildlife.

The authority for.regulating the use and modification of the

estuarine resources has, for a number of years, rested with state and

federal permit letting agencies. But until recently, the degree of

regulation exercised was slight and the criteria for permit letting did

not include consideration of the ecological.balance of the estuarine

system. Approvals for marshland dredging and filling were often as not

a mere formality and sometimes granted after the fact. The increasing

awareness of the damage caused by these activities, however, has resulted

in much stricter review now of permit applications.

The people of Pender County recognize the importance of the estu-

arine system and accept the regulation of its use and development as

a necessity. many in the immediate coastal area, however, are now

being denied permits to maintain existing access channels. Siltation

in both natural and artificial channels has severely limited access

from the mainland out into the AIWW, and as a result, limits the use

of the recreational resources most people moved to the area to enjoy.

For this reason, the county will work with state and federal authorities

in managing and, where necessary, preserving the natural state of the

estuarine system, but will seek to have established and maintained

sufficient navigational channels to allow reasonable use and enjoy-.,'

ment of its water resources, with a minimum of damage to the estuarine

system.
111-3

The only kinds of new development that can be justified in the

estuary are those that require water access a:nd cannot function any-

where else. Piers, docks and marinas, for,instance, connecting water-

6riented with upland activities, may be considered appropriate if their

need in the area can be demonstrated and.their specific location and

design can be shown to be the most suitable alternative. The county

recognizes, however, that while a pier or dock itself does not

.necessarily cause degradation of the productivity of theestuary, the

activities involved in constructing it may. For that reason, the

highest reasonable standards of constructionwill.be required for any

construction in the area.

Within the estuarine area in the county are islands of various sizes

and origins which, though not marshland or estuarine waters in the strict

sense, area valuable part:of the estuarine system. The islands contri-

bute particularly to the scenic value of the estuary by adding topographic

relief and plant diversity which provide habitat for a variety of wild-

life species. Some of them are sufficiently large and stable to accommodate

some degree of development without endangering the surrounding estuarine

resources. But the islands are properly a part of the estuarine system,

included within the.areas mapped as coastal wetlands; they are, therefore,

designated as,Areas of Environmental Concern, and the development of any

of them will be reviewed on a case-by-case basis.

The. Beach-Foredune System

The Atlantic shoreline of the Pender County outer banks is charac-

terized by wide and sandy beaches, backed by a moderately high foredune'.

The beaches are the primary attraction of the outer banks for the

111-4

residents and thousands of vacationers who visit in the summer. The

foredunes are a valuable scenic attraction and a buffer to the erosive

effects of storm induced wind and.waves. The dynamic nature of the

beach-foredune complex, however, precludes safe.-structural'development

on it since that development, and the construction activities in-

volved, endanger both the.scenic and protective value of the resource

and the roads and buildings situated inland.

Because, however, of the recreational use of the beaches and

the necessity for adequate access to them, allowances will be made

for the provision of structural accessways.across the-dune provided

that upmost care is exercised in their location and construction so

as to prevent damage to the dune and the vegetation growing, oh it.

Allowances will also be made for the erection of safety facilities,.

such as lifeguard chairs, and for necessarily water-oriented re-

creational structures such as fishing piers.

Outer Banks-Hazard Areas

The estuarine system, ocean beaches and sand dunes, though in-

separable from the rest of the outer banks, have been addressed

separately because of their particularly fragile nature and high re-

source value. But the outer banks as a whole is an area of environ-

mental concern because of the importance of protecting the health,

safety and rights of the people who live, visit and own property there.

The North Carolina outer banks, as a marketable pieceof real

estate, is the 'most valuable area of the coast, sought-after for second

homes, residences and vacation sites and for business enterprises to

support these uses. But the outer banks as a geologic feature is

a dynamic, perhaps transient, land form. The same forces of wind,

111-5

water and time-which caused the creation of the banks' various features

constantly modify-these features both in.location and extent. Problems

are encountered when the man-made structures developed to accommodate

their use and enjoyment are built to be static.and permanent despite

their location in an ever changing environment.

Inlet Lands and.Excessive Erosion Areas

The only realistic compromise between expensive, fruitless combat

with the forces of nature and complete surrender to their.supremacy is

development of only the more stable parts of-the whole in a manner

which those parts can.accommodate. For that reason, any new development

in the particularly hazardous areas.of the outer banks will be strongly

discouraged and, unless demonstrated to be directly in the public

interest, will not be supported by public funds. In particular, coastal

inlet lands and oceanf ront,property with a high probability of incurring

excessive erosion are unsuitable locations for the placement of
structure's used for housing, institutional purposes, transportation or
commerce,' and are considered of too high a risk to warrant public invest-

ments into toads, sewer and water lines and other such facilities..

it will be a-municipal responsibility to make adequate provision to

warn prospective buyers of property in hazard areas located within

municipal jurisdictions of the risks involved and of the municipal policy

of service provision@ In unincorporated parts of the County, the

County will exercise its responsibility by requiring written acknowledgment

from developers before the approval of subdivisionsand from individuals

before registering deeds, of the location of property within a hazard

111-6

area and of the County policy of public expenditures in such areas. All

construction in these hazard areas will be required to meet at least the

minimum standards of the North Carolina Building Code and conform to the

standards of the Federal InsuranceAdministration for coastal high

hazard areas.

Coastal Flood Plains

Virtually all of the county'souter banks and some of the adjacent

mainland are within-a U.S.G.S.. designated Flood Prone Area, susceptible

to inundation during severe,storms. In order to reduce both flood

damage and the cost of flood insurance, all construction in coastal

flood prone areas must be required to meet the Federal Insurance

Administration standards for-.coastal high hazard areas.

Historic and Natural Resource Areas

Those places in Pender County of a historic nature that have been/may

be inventoried by the County are/will be areas of environmental concern be-

cause their value to the county.and state is non-renewable and damage to

them could be irreversible. Swamp forests in the County are included-as

Areas of Environmental Concern because their scenic and natural resource

value renders them high quality hardwood timberland and a potential major

recreation resource. The county encourages protection and management of

these resources and will seek in the future to incorporate some swamp

forest and historic areas into a county park and recreation program.

Public Trust Areas

Pender County supports the traditional public rights of access to

and use of lands and waters designated Public Trust Areas for purposes

including navigation, fishing and recreation. The county both

111-7

support s and encourages the development of commmercial recreation

facilities in the county, especially those that promote the use and

enjoyment of the waterways. But to the degree authorized by statute,

the county will prchibit any development which unduly restricts public

access to or use of Public Trust Areas.

It is obvious from the outset that protection of specific Areas

of Environmental Concern in thecounty cannot be accomplished without

some consideration of land uses in areas immediately adjacent. An

historic building itself, for instance, can be restored and protected;

but if an industrial complex is situated immediately aroun5l it with

no effective bufferi the esthetic value Ofthe building can suffer. A,

swamp forest stream can be cleaned and managed as a recreatiohal water-

way; but if land use activities upstream result in accelerated erosion,

siltation in boating channels can hinder their recreational use. The

estuarine system along the Pender County coast is only part of the

system extending northward into Onslow County and southward into New

Hanover County. Pender County's regulatory authority to prevent

pollutionand siltation can be extended only throughout its political

jurisdiction. Circulation patterns in the water that transports silt

and pollution, however, function without regard to political boundaries.,

In order to facilitate better protection and management of Areas

of ]Environmental Concern and other county resources, land use regu-

lations and policies established in the fut ure will take into account

the impact of land use on adjacent valuable or fragile areas. Further-

more, to whatever extent possible, the county will require compliance

with county policies not only from all private individuals, but also

from state and federal agencies involved in land modification acti-

vities in the*county.

111-8
;1_3

Plate 2 delineates the approximate location of various categories
of county designated Areas of Environmental Concern.a It must be

emphasized, however, that these delineations are not sufficient for

most regulatory purposes because of the necessarily small map scale

and because, in most cases, on-site evaluation will be necessary in

order to determine the precise boundary of a particular category of land

or water. But the County encourages anyone involved in or contemplating

a change in land use in the county to use this map as a guideline for

interpreting the possible effect of county and state policy on particular

Parcels of land.

Several other categories have been proposed for consideration by the CRC
but because of insufficient data have not been discussed at this time.

111-9

SECTION IV

FUTURE LAND USE

125

THE DEMAND FOR LAND

The 1975 Pender County population is estimated to be 18,200. The

growth goalfor the future calls.for a population of 25,000 by 1995, an in-

crease of 6,800 people or 37 percent. If the population were to increase

at constant rate over the 20-year period, it could be expected to reach

21,600 in 1985. Since, however, the increase depends heavily on social and

economic programs only recently initiated, a higher rate of growth is ex-

pected between 1985 and 1995 than between 1975-an.d 1985. The population

projected for 1985 is 20,800.

Historically in Pender County, the population has been widely

distributed, with less than 15 percent of County residents living in

incorporated towns, the remainder in unincorporated communities or in

entirely rural areas.. More recent development has. resulted in some new.

areas of population concentration, particularly along U. S. 117 near Rocky

Point and east of U. S. 17 near Hampstead. Development in both of these

locations is far removed from Pender County municipalities, radiating rather

from built-up areas in New Hanover County.

Factors Influencing Growth

If current patterns were taken to be the only indicators of the

future, almost all new development would be expected to occur in the southern

and eastern parts of the county. But residential development often radiates.

from employment bases, and Pender County is now working to increase in-county

employment. The amount of residential growth and commercial support facili-

ties that will occur in other parts of the county will depend to a great

extent on the amount of industry and other sources of employment that'will

be located there.

IV-1

There are two areas of the county that would seem at this point

best suited to larger scale industry. A complete evaluation of the areas

has not.yet been made either from an economic or environmental standpoint.

But because of their proximity to highway networks, railroads, population

centers, and possible barge facilities on the Northeast Cape Fear River,.

and their location onsoils generally suited to industrial needs, the

following two areas are currently-considered primary target areas for invest-

ment into industrial.'location: 1) the belt along U. S. 421 in the vicinity

of Richards, and 2) the area immediately northeast of the junction of U. S.

117 and the Northeast Cape Fear River.

The area currently most suitable for the location of commerce and

smaller scale industry is in and around Burgaw.;. highways, the railroad,

municipal services, and institutional facilities that can serve commercial

needs are already established and ample residential land is available in

Burgaw to accommodate future growth.

The outdoor recreational amenities along the coast and the

availability of residential lots in subdivisions will continue to attract

new population to-the outer banks and the area between U. S. 17 and the

AIWW. On the developed outer banks, municipal services, such as sewer and

water and paved streets, are being planned to accommodate the higher popula-

tion density now located there and expected to occur in the future.* The

lack of a municipality to provide public services between U. S. 17 and the

AIWW will restrict population density there to that which can be safely

accommodated with on-site water supplies and private sewage disposal systems.

Residents of the area may in the future need to incorporate in ord6r to

allow for higher population densities and provide for increased municipal

service needs.
IV-2

Population Distribution

Approximately 66 percent of the projected increase in population

by 1985 can be expected to locate in three of the county's townships

Burgaw, Topsail and Rocky Point. Burgaw Township in 1970 housed 24 percent

of the county's population (Cape Fear Council of Goverrunents 1973) and is

expected to receive about 22 percent of the increase in the next decade.

Topsail Township accounted for only 16 percent of county residents in 1970;

but because of the growth in the area between 1970 and 1975, and stated

desires for continued moderate growth, the Township is expected to receive

32 percent of the predicted increase. Rocky Point Township, with no

municipalities or associated services, accounted for only 9 percent of the

county's 1970 population. But.because of more recent growth trends and the

possibility of industrial location in its vicinity, the Township is ex-

pected to receive 12 percent of the population increase.

The remaining 33 percent of the projected population increase is

expected to be distributed rather-evenly in the county with highest

concentrations in Union, Long Creek and Grady Townships.

in order to facilitate improvement of services provided to county

residents at lowest unit cost, Pender County service provision, property

tax and land use policies will be designed to encourage new population growth

in areas within or immediately adjacent to existing communities. In order to

promote protection and management of the county's economic, natural, scenic

and historic resources, development in valuable resource areas will be

carefully reviewed before receiving county approval or support.

Land Classification System

The North Carolina Land Policy Council has established a land

cla.ssification system for localities to use to identify the most appropriate
IV-3

general uses of.various kinds of land. The Land Classification Map (LCM)

produced from the classification system allows a local government to make

a statement to-state and federal authorities, as well as local residents,

on where and to what density growth is desired. The county LCM will serve

as a.tool for informing the public of basic county policies and of areas

for which further land use regulations will soon be established.

The land classification system was established for state-wide,

use and, as such, its categories are perhaps more applicable to places more

urbanized than Pender County. The population density needed to warrant

the nDeveloped" or "Transitional" categories, for instance, exceeds the,

highest densities found in Pender County. Strict application of the

defined criteria for each category, therefore, is impossible; but the

system, when adapted to Pender's needs, can be used for its intended

V purpose.

The land classification system 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.

The Town of Burgaw is the only Developed place in the County. The

Town has municipal water and sewer systems which are being upgraded and ex-

a
panded to serve-the whole jurisdiction. The Town has established a policy

of promoting moderate growth within the jurisdiction; municipal service

extension outside the Town limits is not anticipated in the near future.

a
The water system is currently operating at only 46 percent of its capacity;
the sewer system, however, is at 100 percent capacity.

iv-4

2. Transitional Lands where localgovernment 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.

There are two places in Pender County-in the Transitional Class

the Towns of Topsail Beach and Surf City. Each of these towns"ie, experi-

encing moderate to high growth of year-round population, as well as rapid.

growth of seasonal (summer vacation) population. The two municipalities

currently have public water systems; the adequacy of the public water supply,

for projected future needs is currently being studied with the intention of

upgrading the systems if necessary. The Towns together with Onslow County

are attempting to establish an island-wide sewer system.

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 which will not require

extensive public services now or in the future.

There are 9 places in Pender County designated Community Rocky

Point, Watha, Willard, Penderlea, Long Creek, Currie, Atkinson, Maple Hill,

IV-5

and Hampstead. Atkinson and Watha are incorporated towns,but do not plan

to establish municipal water or sewer facilities in the future'. Develop-

ment in any of these communities should remain at low enough densities that

noladditional municipal services will be needed.

.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 recog-

nized.

The bulk of Pender County is in agricultural or forest production

and is classified Rural. Land currently (1975). in agricultural crop production

(as delineated on the Existing Land Use Map)-is designat ed the County's prime

agricultural land for tax evaluation purposes. Land development or modifica-

tion in any rural areas should be aimed at the better management and

production of.natural resources. The subdivision of rural land into non-

resource oriented uses will be generally discouraged and subject to subdivision

regulations in the future.

S. Conservation Fragile, hazardous, and other lands necessary

to maintain a healthy natural environment and necessary to

provide for the public health, safety, and welfare.

The-Conservation Class includes among others those areas the County

has designated Areas of Environmental Concern. The Conservation land should

IV-6

be maintained essentially in its natural state.

Growth Distribution to Land Classes

Approximately 13 percent of the projected population increase is

allocated to Developed land, in short, to the Town of Burgaw. Twenty

percent of the increase is allocated to the Transitional Class, 51 percent

to Community, and 16 percent to Rural. Table 4-1 gives.a further breakdown
of expected population distribution in 1985. a The figures in Table 4-1 were

derived by 1),comparihg current population.distributions with factors likely

to influence future growth, 2) assuming that county land use and economic

policies will be effective in promoting growth goals, and 3) evaluating,

b
where available, the growth goals of individual localities. Allocating

certain portions of the population increase to specific areas does not imply

a policy determination that a specific amount of growth should take place

in each location. Rather, the estimations of population growth in specific

areas serve as a tool for predicting future housing, transportation, educa-

tional, health service needs and the like, and the demand for commercial

facilities to support land use in each location.

Residential Land

Each of the Developed and Transitional areas contains enough sub-

divisions only partially filled up, small by-passed tracts of land and single

apopulation figures here for Surf City and Topsail Beach as,f6r the rest
of the county'reflect the growt .h of year-round population only. Seasonal
population growth in the beachareas and the accommodation of that growth
are addressed.,in each municipal plan.

b
Local population projections for Atkinson and Burgaw, were based on historic
trends and are,somewhat lower than these projections based on growth goals.

IV-7

Table 4-1. Population Increase Distribution to Land Classes by Place 1985.

Total Number
Class Persons Location Number Persons

Developed 335 (13%) Town of Burgaw 335

Transitional 525 (20%) 1. surf City 296

2. Topsail Beach 229

Community 1334 (51%) 1. Atkinson 85

2. Currie 164

3. Hampstead 266

4. Long Creek 164

5. Maple Hill 47

6. Penderlea 109

7. Rocky Point 281

8. Watha, 109

9. Willard 109

Rural 406 (16%) Townships

1. Burgaw 226

2. Caswell 35

3. Grady 18

4. Holly 5

5. Long Creek 18

6. Rocky Point 31

7. Topsail 36

8. Union 37

IV-8

vacant lots to accommodate exp ected population increa ses within existing

jurisdictions.. Residential land needs in each of the. municipalities are
described as follows- a

Burgaw.

335 people @3.1 persons per unit 108 new units

108 units @3.6 units per acre 30 acres. There are 845
undeveloped acres in the town.

'Surf city

people @3.71persons per unit.= 80 units

80 units,@5.7 units per acre 14 acres. There are 125
undeveloped residential acres in the town.

Topsail Beach

229 people @3.1 persons per unit 74 units

'74 units @5 units per acre 15 acres. There are 171
undeveloped residential acres in the Town.

Each municipality has stated a desire to accommodate population increases

within jurisdictional boundaries and in each municipal plan the ability.to

accommodate future populations has been demonstrated. In most cases,

annexation of additional land or extension of services beyond municipal

boundaries would burden existing service facilities. The Town of Surf City,

however, is considering the feasibility of annexing additional land for

commercial purposes'

The criteria for the community class call for a gross population

density of I person per acre. Hence, about,1330 acres of land would be

needed to accommodate the projected increase of 1334 persons. But the

unincorporated communities in the county have neither defined boundaries

nor population estimates. For that reason it is impossible to determine

a0ccupancy rates (persons per unit) and dwelling unit density (units per
acre) are derived from the Land Use Plan of each jurisdiction.

IV-9

current occupancy rates or an average dwelling unit density from which to

derive residential land heeds. It can be assumed, however, that in the

communities, as in the municipalities, there is a sufficient amount of land

available within existing built-up areas-to,accommodate future populations

without extensive'.1and subdivision or encroachment on valuable resource

areas. It must be recognized, however, that many of the communities in.

inland Pender County are located on what has been defined as the county's

prime agricultural land. The county will encourage careful consideration

of the productive potential of land even in areas designated for resi-

dential,commercial and institutional purposes.

Commercial and Institutional Land

The Land Classification system refers specifically t6 the location

and density of future population.. It follows, however, that commercial

facilities such as shopping, entertainment and professional services and

public institutions, such as schools, town halls, health clinics and fire

stations, be centered in close proximity to the populations that they serve,

and that their distribution be proportional to the populations in various

parts of the county. For that reason, County regulations governing land

subdivision anddevelopment will,be designed to promote appropriate location

and construction of commercial and public facilities as wellas iesidential

land use. In particular, land use regulations will encourage the revitiliza-

tion of business,districts in larger communities and concentrated rather,than

strip development throughout the county.

Industrial Land-,

According to the Cape Fear Council-of Governments (1973) Pender

a
County will need.approximately 125 acres of,industrial land in 1985.

a Industrial land.needs were estimated to be 35 acres for the period 1970-1980
and 125 acres.'f6r 1980-1990.
IV__lO

Industrial land needs were based on projected increases in manufacturing

employment, the average number of manufacturing employees per gross acre?'

and current industrial land utilization in the region. But 125 acres is

an estimate of only the amount of land needed for purposes directly related

to industrial production; the amount of land different industries would

require for water supply, investment or other purposes varies.

The Pender County Board of Commissioners recently appointed an

Economic Development Commission to promote economic development, including

industrial location, in the county. Furthermore, in February 1975,,the

N. C. bNER designated Pender a Selected Target Area of Economic Opportunity.

This designation is part of a statewide economic development planning process

to coordinate.state and local efforts in promoting industrial location.' The

goals of this coordinated planning process include demonstrating that local

interests, when armed with sufficient data and information regarding their

economic, social, environmental and political constraints and potentials,

can set.realistic objectives for attracting industrial prospects into.their

area.

As previously noted, two areas of the county are considered at

this time primary target areas for investment into industrial location. But

because the economic development planning process has just been initiated,

neither the size of these two sites nor the amount of public funds desired

by the people to be invested into these or other sites has,been determined.

For this reason, no industrial sites have been delineated on the I/--M at"this

time. The Economic Development Commission's designating industrial sites in

the Rural land class (which by definition includes lands for future needs

not currently recognized) in the future should not be considered a violation

Iv@ll

of county policy, nor should the omission of these sites on the LCM now

be construed as a policy determination that there be no industrial land

use in the county.

Recreational Land

The N. C. State Comprehensive Outdoor Recreation Program (SCORP)

was developed as a management tool to aid local governments in assessing

recreational land needs for the purpose of determining.public investment

alternatives. SCORP recommends considering 10 acres of publicly owned

recreational landper 1000 people as a standard for determining needs. Out-

door recreation in Pender County is strongly resource oriented. The extensive

forestlands and miles of beaches and waterways provide ample acreage for

recreational activity in the countyl in particular for hunting'and fishing-

But the large publicly owned outdoor recreation areas such as Angola Bay

and Holly Shelter are located only in inland areas of the county, and serve*

primarily only hunting and fishing enthusiasts at this time. The principal

recreation needs in inland Pender County are for better access, facilities

and supervision in existing public or private land used for recreation,

rather than for additional recreational land.

Along the county's coast, however, there are no publicly owned

or operated recreational lands. And, because of the increased intensity
of private residential land use in this part'of the county, public use of

the coastal land and water is becoming more restricted. For instance, the

only place on the mainlandaidjacent to the AIWW still available to the

public for boat launching is at Watts Landing. What is more, despite the

almost universal appeal of beaches, there are no publicly owned beach areas

in the countyj either in incorporated or unincorporated areas.

IV-12

The county has initiated planning for a county recreationprogram;

a Recreation Committee has'been appointed to inventory specific areas of the

county with the highest potential for more intensive recreational development.

In particular, the county is investigating at this time thefeasibility of

promoting the use of its waterways, both inland and estuarine, by increasing

the number of boat launching ramps and improving navigability of channels.

The feasibility of public recreational development of a now undeveloped

barrier island in the county,is*also.being assessed.

IV!43

OUTSIDE PRESSURE FOR CHANGE

The.kind of economic development sought in Pender County will not

only result in an increase in population, but should also support that popula-

tion in terms of employment and public service provision. The kinds of

industry sought will not merely increase the county's property tax base or

its prestige in the eyes of neighboring counties, but will, more importantly,

increase the income of Pender County residents. It is neither economic

progress for the sake'of growth nor growth for the sake of progress that is

encouraged. On thecontrary, the county is promoting gradual economic ex-

pansion so as to accommodate resultant growth within the existing soci.Al.and

institutional framework.

But sometimes'the forces which initiate change within a county are

applied from the outside. The alignment of-major transportation corridors,

for instance, can have a tremendous impact on land use patterns in an area

and influence the location of commercial, industrial and residential growth.

But decisions on the location or relocation of a major highway are usually

made by state or federal governments. Likewise, the location of major

industry in an area is a decision traditionally made by the private

investment sector working with the state. The people most strongly im-

pacted by such decisions local officials, property owners, businessmen

and taxpayers have often been'the last to know what has been. decided

on their behalf.

An important part of this land use planning process is the

opportunity given county residents to become involved and make their

opinions known to County officials. An equally important part of the

process is the opportunity the County must take in making its policies

IV-14

and goals known to and actively taken into consideration by state and

federal agencies involved in land use activities in Pender County.

The County has initiated coordination of its land:use planning

activities with representatives of state agencies, in particular the

Departments of Transportation and Natural and Economic Resources, by request-

ing careful consideration of its land use plan and policies in decisions that

will impact the people and resources of Pender County. Granted,the County.

Plan*and, its policies must be compatible with regional and statewide plans.

if specific provisions should be found to be in conflict withregional or

statewide interests,, some compromises may be required. But theintention of

the 1974 Coastal Area Management Act was to allow local governments to plan

their own futures. In order for the planning process to.a6hieve.its legis-

lative goals, it must be utilized both within and. outside the planning

jurisdiction.

IV-15

SECTION V

PLAN ADOPTION AND INPLEMENTATION

141

PLAN ADOPTION

As authorized by the Board of County Commissioners, the Pender County

Land Use Plan was prepared by the County Planning Board with technical

-a
assistance provided by Coastal Zone Resources Corporation nd the.Cape

Fear Council of Governments.- Current economic, social and environmental

conditions in the County were assessed; the majorland use issues were

addressed; and alternative policy measures which could be used to deter

potential problems while achieving goals were studied.

Throughout the CAMA planning process, public opinion.was solicited,

obtained and evaluated and used as a primary determinant of future objectives,

standards and policies., In addition, representatives of major land manage-

ment agencies in the County, such as the N. C. Forest Service,' the

Agricultural Extension.Service and the Soil Conservation Service, gave

valuable assistance in evaluating current land management problems and

offering alternative policy measures for the future. The Rural Development

Panel, representing various professions and locations of the county, served

as advisors to the Planning Board, allowing for coordination of the county's

CAMA and Community Development "Block Grant" planning activities.

Concurrently with the County planning program, four municipalities in

the County -- Atkinson, Burgaw, Topsail Beach, and Surf City -- each

prepared &Land'Use Plan for its jurisdiction. The preparation of individual

municipal plans allowed for an in--tdepth study of conditions and problems

specific to each jurisdiction to complement the more general application of

the County Plan to conditions and problems of a county-wide nature. Since

the five jurisdictions represent five virtually separate political authorities,

the objectives, standards and policies of each were established within the

proper statuatory bounds of the respective authorities.

V-1

In order to ensure mutual compatibility among the municipal and

county plans, activities of the respective planning groups were closely

coordinated. A regular part of.the agenda for planning meetings included

reports of,planning progress in other jurisdictions. On May 20, 1975,

a meeting of elected officials and Planning Board members from each plan-

jurisdiction was held in Burgaw to discuss mutual problems encountered.

On October.30, 1975, a joint county-municipal Planning Board meeting was

held in Burgaw in orderfor each jurisdiction to present to the others

planning progress to date. In addition, regular meetings of the planners

involved with each plan and representatives of the Cape Fear Council of

Governments were,held.

On February 1, 1976, the Planning Board 'submitted its proposed

Objectives and Standards to the Board of County Commissioners for review.

In th is, and subsequent meetings (March Iand March 10, 1976), the Planning

Board and elected officials discussed at length the issues involved and

their implications for the future'of. the County. From these review sessions

and resultant further studies of alternatives, the proposed Plan and

policies for future economic and land development in the County were developed.

In order that the essential,elements of the Plan, including its land

use policies, objectives and standards, be readily available to all in-

terested persons, a Synopsis of the Plan is being prepared. The Synopsis

will include the Land Classification Map and examples of the Existing Land

Use and Areas of Environmental Concern delineations, with an explanation of

how additional information can be obtained upon request.

The sequence of events yet to come, before final adoption and implementa-

tion of the plan., includes:

V-2

1,42

1. Joint City/County Public Hearing on may 10, 1976, a public

hearing,.in which the Pender County and all municipal plans will

be presented and comments on them received, will be held in

a
Burgaw. Comments and suggestions made in the public hearing

will be carefully reviewed; necessary changes in the Plans and

Synopses will be made before their final adoption.

2. Transmission to the Coastal Resources Commission By May 21,

1976, a certified copy of the adopted Plan will be sent to the

Coastal Resources Commission for its review and approval.

At least 30 days before the joint public hearing, a copy of the com-

pleted Plan will be placed in the County Courthouse for public review and

inspection. Notice of the public hearing and of the availability of the

Plan for review will be made in newspapers distributed locally,

Following adoption of the Plan and its approval by the Coastal Resources

Commission, copies of the full Plan will be available for study in the.

County Courthouse and in Town Halls. Copies of the Plan will be sent to the.

major land management agencies in-the dounty and can be obtained by civic

groups and other interested parties, at cost, upon written request. The

Synopsis will be mailed to all postal boxholders in the county; copies of

the Synopsis will be.made available to non-resident property owners free of

charge upon written request.

aBefore the joint hearing, individual hearings will have been held on each
the Burgaw, Topsail Beach and Surf City Plans.

v-3

PLAN IMPLEMENTATION

The second phase -of the CAmA planning process involves implementation

of the Land Use Plan. The Countylt adoption of its Plan constituteq a

formal declaration of land use policies; but many of the
standards proposed

for meeting objectives-require the enactment of new ordinances in order

to become effective. Related planning activities, as for a parks and

recreation program or housing rehabilitation, are also involved in plan

implementation.

Themajor elements of the implementation phase of the Land Use Planning,

process in Pender County are summarized as follows:

Enactment of Ordinances

In order to carryout the County's.policy objectives, subdivision regu-

lations will soon be.enacted. In particulari provisions will be made in

the subdivision regulations fora) protection of Areas of Environmental

Concern and management of natural resources, b) adherence to development goals,

as described in the Land Classification system, c) requiring proper considera-

tion of the carrying capacity of land and water resources as relate to

sewage disposal and ground water supplies and d) advising,property owners

of County policy.on service provision in hazard areas.

In order to ensure reasonable standards of construction, the County

will adopt building electrical and plumbing codes. These codes will be

designed, as well, to meet Federal Insurance Administration standards for

hazard areas in order to reduce flood and storm damage and.the cost of

floor insurance premiums.

In order to secure reasonable evaluation of the potential impacts of

large commercial or industrial activity, the.County will establish necessary

V-4

requirements for Environmental. Impact Statements.

Coordination of Permit-Letting Authorities

The 1974 Coastal Area Management Act provides for local permit-

a
letting agencies to be established for minor development permits required

in Areas of Environmental Concern (AEC9s). in order to qualify for AEC

permit-letting authority; a local jurisdiction.must first declare its

intent, then preparea Local Management Plan acceptable to the Coastal

Resources Commission (CRC). The CRC is currently establishing criteria

for local implementation and enforcement programs including elements that

will be required for approval of a@ Local Management Plan.

The CRC emphasizes the value of coordinating the activities of various

local regulatory authorities, such as building and septic tani inspections,

subdivision plat approvals, and sedimentation and erosion control program

approvals, with the AEC minor development permit-letting authority. Co-

ordination of as many of these activities as possible will be essential for

implementation.-of the Land Use Plan,.as the salary and operating costs for

separate permit-letting authorities in the county would put an excessive

burden on county financial resources. Such coordination could also simplify

the permit-letting process for both the County and the applicant involved.

The CRC criteria-being developed will also allow for City-County coordinated

permit-lettinq-.-authorities.

a
The term "Minor Development" means any development other than a major,.
development. The statutory definition of Major Development is "any develop-
ment which requires permission, licensing, approval, certification or:
authorization in any form from the Environmental Management Commission,* the
Health Services Commission, the State Departments of Natural and Economic
Resources.or Conservation and Development, the State Department of Administra-
tion, the North Carolina Mining Commission, the North Carolina Pesticides
Board, or the,North Carolina Sedimentation Control Commission; or which
occupies a land or water area in excess of 20 acres; or which contemplates
drilling for or.excavating natural resources on land or under water; or
which occupies on a single parcel a structure or structures in excess of a
ground area o]1E .60,000 square feet."
V-5

I Le

Therefore, part of the imp lementation phase of planning in Pender

County will involve development of the aforementioned Local Management

Plan.

-Related Planning Activities

Future CAMA planning will involve coordination with related activi-

..ties of the Community-Development Committee and the Economic Development.

Commission (EDC)...

The Communitybevelopment Committee directs itself to assessing

the need for upgrading blighted areas of the county under the U. S.

Department,of Housing and Urban Development (HUD) Community Development

Block Grant Program, This program can provide.funds for housing

rehabilitation, flood prevention, recreation and the like. The county's

FY 1976-1977 pre-application to HUD requests funds for various projects.

including storm drainage and street paving and widening in the Burgaw

and Maple Hill areas, and boat launching' facilities near Hampstead.
Planning Board related'activities will include further assessing parks'

and recreation needs, establishing a process for inventorying historic

sites, and evaluating internal-transportation needs to recommend to the

N. C. Department of Transportation for action.

The EDC directs itself toward promoting economic development in the

county, including locating the kinds of industries that would be of

.value to the County. The EDC has begun studying the policies established

in the Land Use Plan, particularly those that relate to the selection

and location of industry and-the control of resultant residential and

commercial growth. As authorized by the Board of County Commissioners,

the EDC will be asked to submit to the Planning Board recommended suitable

V-6

locations in the county for designation as industrial areas; upon such

selection, efforts will be made through zoning or other means to have

these areas reserved for industrial location.

Section 208 of the Federal Water.Pollution Control Act Amendments

of 1972 (PL 92-500),, as well as other sections of this law, is

designed to-achieve water quality which "provides for the protection and

propagation of fish, shellfish, and wildlife and provides@ for recreation

in and on the water" by July 1, 1983. Section 208, more.specifically, is

designed to plan ways to reduce all types of pollution in specially

designated areas to.the 1983 level.and to set up a management agency to

guarantee achievement and maintenance of the 1983 water quality level.

Areas-in North Carolina having complex water quality control problems

have been designated by the Governor as priority 208 Planning Areas.

Several parts of Pender County, including thecoast where some

serious-water quality problems have been encountered, were included in

the Governor's designations. Inclusion in the 208 Planning program

could allow the county in particular the beach municipalities a

means for studying the coastal water quality situation should construction

of the Topsail Island sewer system (201 Plan) not be feasible.

'Periodic Review and Revision of the Plan,

In order-to make land use planning in Pender County an on-going,

effeptive.process, the County has hired a Planning Director to work with

the Planning Board. The Board'.will continue to meet monthly and will, on

a quarterly basis, consider any upgrading or revision of the Plan deemed

necessary.: Annually, the Planning Director will make a report of Planning

Board recommendations to the Board of County Commissioners.

v-7

SECTION VI

REFERENCES CITED

Barick, Frank B., And T. Stuart Critcher. 1975. Wildlife and land use
'planning with particular reference to coastal counties. N. C.
Wildlife Resources Commission.. Raleigh, N..C. 167 pp.

Bellamy, James D., Sidney Lanier and Clyde Elliott. 1974. Resource
conservation and development project. Cape Fear Region. 24 pp.

Boyce, Stephen G. 1953. The salt spray community. (Unpublished Ph'.D.
Thesis). N.-C. State University. Raleigh, N. C.

Burgaw (Town of) Community Audit. 1975. (N. C. DNER, Division of
@Commerce and Industry file material prepared by. Town of Burgaw,
N. C.) NCDNER Southeastern Field Office. Wilmington, N. C.

Cape Fear Council of Governments.- 1972. Regional library system feasi-
bility study. Cape Fear Council of-Governments. Wilmington, N. C.
75 pp.

Cape Fear Council of Governments. 1973. Cape.Fear region population and
economy inventory and analysis-key issues. Cape Fear Council of
Governments. Wilmington, N. C. 69 pp.

Coastal Resources Commission. 1975. State@guidelines for local planning
in the coastal area under the coastal area management act of 1974.
N. C. Coastal Resources Commission. Raleigh, N. C. 72 pp.

Cost, Noel D. 1973. Forest statistics for the southern coastal plain
of North Carolina. U. S. D. A. Forest Service Resource Bulletin
SE-26. Southeastern Forest Experiment-Station. Asheville, N. C..
34 pp.

Hardman, Clair-J., and Rose Ann Mack. 1913. Region "0" fire protection
inventory@ Cape Fear Council of Governments. Wilmington, N. C. 55 pp.

Kiser, Jeffrey S. 1975. A systematic approach to industrial development
-- case study: N. C. coastal plains (Unpublished MLA Thesis). N. C.
State University. Raleigh, N. C. 72 pp.

Knowles, C.-E., Jay Langfelder and Richard McDonald. 1973. A preliminary
study of storm-induced beach erosion for North Carolina. Center for
Marine and.Coastal Studies report no. 73-5. North Carolina State
University.. Raleigh, N. C. 14 pp.

Laymon, Leland L. 1965. Ground water exploration at Surf City, North
Carolina.., North Carolina Department of Water Resources Ground-Water
Circular No. 7. Raleigh, N. C. 14 pp_

LeGrand, Harry E. 1960. Geology and ground-water resourc es of Wilmington-
New Bern area. N. C. Dept.,Water Resources Division of Ground-water
Bulletin No. 1. Raleigh, N. C. 80 pp..

VI-1

Nathan, Robert R. Associates and Coastal Zone Resources Corporation. 1975.
The coastal plains deepwater terminal study.. Coastal Plains Regional
Commission. Washington, D. C. 325 pp.

Natural, Scenic,and Recreational Rivers Committee.. 1971. Report and
recommendations of the natural, scenic and recreational rivers
committee. N. C. Dept. of,Administration*. Raleigh, N. C.

North Carolina Department of Revenue. 1974.. Statistics of taxation.
Biennial Report of Tax Research Division of N. C. Dept. of Revenue.
Raleigh, N. C. 313 pp.

ospina, Enrique and-Leon Danielson. 1973., North Carolina land use data.
N. C. Agricultural Extension Service-Miscellaneous Extension
Publication No. 102. Raleigh, N. C.. 35 pp.

Pender County Agricultural Extension Service. 1973.. Overview Pender
County. -Burgaw, N. C. 10 pp.

Real Estate Research Corporation. 1974. The costs of sprawl. U. S.
Governmen.tPrinting Office. Washington,.D. C. 15 pp.

Stone, Paul S. 1974. The North Carolina economy changes@in agriculture
and nonfarm sectors, 1958 to 1970. North Carolina Agricultural
Extension Service Circular.578. Raleigh, N. C. 83 pp.

U. S. Department of Commerce. 1972. Census of agriciilture 1969 North.
Carolina. U'. S. Government Printing Of f ice. Washington, D. C.

U.. S. Department of Commerce. 1973. U. S. census of population 1970
characteristics of the population -- North Carolina. U. S. Govern-.
ment Printing office. Washington, D.:C.

U. S. Soil Conservation Service. 1972. General soil.map and interpreta-
tion s'-for.-Pender County, North Carolina. Lower Cape Fear Soil and
Water Conservation District.. Burgaw, N. C.

U. S. Soil Conservation Service. 1973. An appraisal of potentials for
outdoor recreational development-Pender'County, North Carolina.
Lower Cape,Fear Soil and Water Conservation District. Burgaw, N. C.
29 PP.

Von Oesen and Associates. 1972. Comprehensive water and sewer plan.
Cape Fear-Council of Governments. Wilmington, N. C.

Wiggins-Rimer and Associates. 1973. Inventory of facilities regional
water supply and wastewater disposal study. Cape Fear Council of
Governments. Wilmington, N. C.

VI-2

APPENDIX

APPENDIX A. PUBLIC PARTICIPATION PROGRAM

The Pender County Planning Board, with the concurrence and

support of the Board of County Commissioners, actively sought and

utilized public views in preparing the land use plan. The planning

process was open to all persons with an interest in Pender County;

the Public Participation Program consisted of the following acti-

vities:

.1) Appointing a Planning Board representing various interests,

and areas of the county. The Planning Board members are:

DeLeor%,Fennell, Chairman Rocky Point Farmer

Sidney Williams, Vice-Chairman Surf City Realtor,

Harold Aitken, Secretary Atkinson Retired

Leslie Batson'. Hampstead Auctioneer

Clive Dosher Burgaw Businessman

Bennie Herring Burgaw Farmer

Maxie Lanier Burgaw Forester

Joe McGlohon Willard Postman

Arthur Wooten Maple Hill Farmer-Developer

2) Conducting public information meetings

Inlan effort to obtain the widest possible input from all

Pender County'residents, the Planning Board arranged township public

information meetings beginning April 10, 1975 in Penderlea for Union

and Columbus Townships. The purpose of the meetings was twofold

to explain the CAMA and planning process to county residents and to

assess local views on the major land use issues and alternative means

A-1

of solving problems,. The meetings were held.at night in order to

be convenient; notices of the meetings were published in the news-

paperso, posted in local stores and businesses, and distributed by

the Planning Board members responsible for each meeting. Despite

conscientious efforts by the Planning Board, attendanceat the

meetings was very low and the.Township meeting approach was abandoned.

The Planning Board continued to hold its regularly scheduled

monthly meetings open to the public. The Board continually addressed

the major issues confronting the county and studied alternative means

of obtaining public input. It was realized early that much of the

lack of.response to calls for widespread input was due to a lack of

understanding of the planning process and its effect on all countyre-

sidents. In order to solve this problem, a 5-part packet (shown as

Exhibit A-1) was developed and mailed to all Pender County postal box-

holders. -The packet included:- 1) a letter to county residents from

Gordon Jones, Chairman of the Board of County Commissioners and DeLeon

Fennell, Chairman of the Planning Board, explaining the importance of

land use(-planninq and the role of county residents in formulating the

splan; 2) an explanation of the CAMA and the role of the Planning

Board, and a review of the work accomplished to date and needed to be

done in the-future; 3) alternative county sketch maps, with accom-

panying explanations, designed to help county residents visualize the

consequences of some of the choices to be made - particularly choices

of population growth; 4) a questionnaire to gain opinions about the

future of the county; and 5) an invitation to public meetings to

eat supper and -discuss the Pender County plan.

A-2

Four meetings were held to serve the four major sections

of the county. At each meeting a Planning Board 'member was in charge,

and representatives of the County Board of comissioners,,.the,Cape

Fear Council of Governments, and Coastal Zone Resources Corporation

were in attendance, available to answer questions and explain the

planning process. 'The three alternative sketch.maps were on display

and the principle assumptions on which each was based were explained.

At the end of each meeting, a vote was taken to determine a concensus

of which general level of growth was desired. The votes were as

follows:

No. Co. Residents Alternative Number
Place Date in Attendence Concept of Votes

Long Creek Oct. 18 28 A 2
B 14
C 2

Penderlea Nov. 1 50 A
B 31
C 4

Atkinson Nov. 8 35 A_% 0
B 16
C 1

Hampstead Nov. 15 153 A 12
B 77
C 7

In addition to their distribution to all county postal box-

holders and their display at the.four meetings, the alternative sketch

maps were displayed at the Pender County Fair held from September 22

to September 27. A special information booth was constructed for ex-

p.lanation of the planning process and was manned by members of the

Pender County Rescue Squad to answer questions.

A-3

3) Formulation and.distribution of questionnaires and tabulation

of responses.

Early in the planning process, the Planning Board formulated

questionnaires designed to determine the nature of the major land use

issues,in the county. The Citizens Questionnaire (See Exhibit A-2)

asked for an assessment of the major problems andadvantages of the county,

general growth goals for the future, and desired means of accomplishing

chosen.g9als.. The questionnaire was distributed at the Township meetings.

The volume of response to this questionnaire.was poor, but the.candid

answers of those responding were enlightening. (Tabulations of the

Citizens Questionnaire are shown as Exhibit A-3). While the ninber of

responses was too small to be construed as a concensus of county opinion,,

the information gained from them allowed the Planning Board to.direct

itself to more specific issues in its next attempt.

In September 1975, the Planning Board formulated a new ques-

tionnaire asking opinions on those issues which had surfaced as the

major issues confronting the county. (The second questionnaire is shown

as part of Exhibit A-1). In order to assure,its wide distribution, the

new questionnaire was included in the information packet mailed to all

postal boxholders.@ A total of 225 questionnaires were returned. The

responses were tabulated by Ms Pat Jasper of the Burgaw Civil Defense

Office; the tabulations are shown as Exhibit A-4.

4) Utilization of local news medi-a

The recognition of the importance of widespread awareness of

planning activities prompted the Planning'Board to utilize extensively

the local news media. Throughout the planning process, the two county

A-4

newspapers, the Pender Post and the Pender Chronicle were given news

releases concerning the Board's activities. With the beginning of

the second phase of public participation the formulation of the alter-

native sketch maps and series of four public meetings the involve-.

ment of news media increased. Coverage by the Pender Post and Pender'.

Chronicle was excellent and included detailed front page announcements

of each forthcoming meeting, followed by a summary of events, with

pictures, after each meeting was held, Radio stations in turgaw (WVBS)

and Wallace (WLSE) carried public service announcements of each meeting,,

as did two Wilmington stations, WWIL.and WMFD- Wilmington television

station WECT carried the public service announcements and teleldsed an

interview of DeLeon Pennell of the Planning Board and kimi Cunningham

of the Cape Fear Council of Governments.

A-5

EXHIBIT

A-1

158

Venbtr Guntg
GORDON JONES. CHAIRMAN OFFICE OF COUNTY COMMISSIONERS HOWARD HOLLY
CECIL EAKINS. V CC CHAIRMAN BOX 4 COUNw FINANCE
ICER A D CLERK
Y A. LANIER TO BOAPON.101
SIDNE OFF
JOHN W. JAMES. JR. Puraniv, North Marolins 28425 COMMIS610WERS
0 B SHACKELFORD
PHONE 259-2630
September 16, 1975

A Letter to Pender County Residents:

We all regularly see news reports of severe problems, such as congestion and
pollution, in other parts of the country brought on by alleged failure of local gov-
ernments to think ahead. It has been popular to think North Carolinians have breath-
ing time to-prepare to meet their needs while avoiding mistakes made elsewhere; "We
can wait for tomorrow" has been the prevailing attitude.

But forces beyond the county's and the state's control are causing noticeable
changes now and the*potential exists for even more rapid change in our lives. The
energy crisis has made a deep water port-oil refinery complex a possibility here;
the people in the Piedmont urban complex look to our beaches for recreation opp@or-
tunities; the Wilmington urban area is rapidly spreading into Pender,County along
U.S. 17 and U.S. 117.

Planning is something all of us do. The N. C. General Assembly has pro-
vided money to plan for the future of Pender County. The Board of County Com-
missioners created a Planning Board to direct the work and appropriated county
funds to support the board's activity. A land use plan will be completed by the
Planning Board in January; the County Commissioners will hold a public-h6aring on
the recommended'plan-before acting upon it.

If your Commissioners and Planning Board are to act in a way that reflects
your desires, it is very important that you fully and candidly tell us what you.,want.

The brochures enclosed describe what all North Carolinians are trying to
accomplish in the coastal area of our state and the work the Planning Board iss
doing right here. We strongly urge you to think seriously about the questions
asked, complete the questionnaire, and mail it to us. Please give us the benefit
of your thoughts and experience.
A series of public meetings for voting age residents will be held in 0 ,ciober
.and November (see enclosed invitation). The three alternative land use plans,'dev-
eloped by the Planning Board (enc1osed), will be explained and you will be askjed to
give an opinion as to@which one you prefer.

Thank you ve.ry,much..

De LeomFennell, Chairman Gordon Jones, Chairman
Pender County Plan6ing Board Board of County Commissioners

Enclosures

INVITATION

TO PUBLIC MEETINGS
TO
EAT SUPPER AND DISCUSS PLANS
FOR
THE FUTURE OF PENDER COUNTY

The Pender County Planning Board has scheduled four public meetings so you can.have
your questions answered and express your opinions on the future of Pender County. You
are invited to attend the meetings for your township.

Free bar-b-que chicken dinners will be served to those voting age Pender County
residents who attend.

After the meal, a program will be presented describing the three alternative land
use plans developed by the Planning Board. Your comments and opinions will be needed to
assist the Planning Board in its selection of a plan for Pender's future.

Board Members
Meeting Date Place Townships In Charge

October 18 Long Creek. Long Creek De 'Leon Fennell
Long Creek-Grady School Burgaw Rt. 1, Box 386
5:00 p.m. dinner Rocky Point Rocky Point, N. C.
6:00 p.m. meeting 259-4393

November 1 Penderlea Columbia Joe McGlohon
Penderlea School Cafeteria Union Rt. 2, Box 453
5:00 p.m. dinner. Willard, N. C.
6:00 p.m. meeting 285-3547

November 8 Atkinson Caswell Harold Aitken
Atkinson School Canetuck Atkinson, N.@ C.
5:00 p.m. meeting Grady 283-7162
6:00 p.m. dinner

November 15 Hampstead Topsail Leslie Batson
Topsail Middle School (old school) Holly Rt. 1, Box1lR
6:00 p.m. dinner Hampstead/ N. C.
7:00 p.m. meeting 686-0293'

Please call upon Bo ard Members for further information. The other members f the
Board are:

Maxie J. Lanier, Rt, 2, Box 444, Burgaw, N. C. 259-4867
Bennie Herring, Rt.,2, Box 315, Burgaw, N. C. 283-7178
Arthur Wooton, P. 0. Box 89, Maple Hill, N. C. 259-4765
Sidney Williams, P. 0. Box 566, Surf City, N. C. 328-2511
Clive Dos,her, P. 0.. Box 741, Burgaw, N. C. 259-2954

Note: Food will be served during the first hour only. But please come early as the
program will start promptly at the end of the first hour. Display maps will
also be on hand for your examination during the first two hours.

PLANNING FOR THE FUTURE

PENDER COUNTY, NORTH CAROLINA

The North Carolina Coastal Area Management Act

Enactment of the Coastal Area Management Act of 1974 /Chapter 1284,
1973 Session (G. S. Chapter 113A)/ (CAMA) by the General Assembly capped
a period of intense activity in North Carolina and in the Nation.

In May, 1968, the Estuarine Study Committee, appointed by the N. C.
Interagency Council on Natural Resources, recommended that North Carolina
initiate a comprehensive estuarine management program. The 1969 General Assembly,
acting upon this recommendation, enacted Chapter 1101 of the Session Laws of
1969, directing the Commissioner of the Division of Commercial and Sports
Fisheries to make a comprehensive study of the coastal zone of North Carolina;
and G. S. 113-229 requiring a permit fromthe Department of Conservation and
Development before any excavation or filling project may be conducted in estu-
arine waters, tidelands, marshlands, and State-owned lakes.

The 1969'General Assembly also enacted legislation prohibiting littering
of navigable waters or erection of signs or other structures in such waters with-
out a permit. In addition, it appropriated $500,000 for estuarine land acquisition,
$80,000 for additional staffing, and almost $100,000 for long-range studies and
planning.

At the National level the Marine Resources and Engineering Development
Act of 1966 authorized two concurrent studies of the Nation's posture with
respect to the sea; one of the provisions of the Clean Water Restoration Act of
1966 directed the Secretary of the Interior to study the extent of water pollu-
tion on the Nation!s estuaries; and the Estuary Protection Act of 1968 directed
the Secretary of the Interior to study estuary conditions and recommend ways to
afford protection to,particularly significant areas.

After six years of study and discussion, the Congress enacted the
Coastal Zone Management Act of 1972 (PL 92-583)-.

The Act authorizes the Secretary of Commerce to make up to four
annual grants to any.coastal state for the purpose of assisting in the develop-
ment. of a management'.program for...its coastal zone." The State coastal zone
programs must be reviewed by involved Federal agencies and approved by the''
Secretary of Commerce. Once approved, annual grants to pay 2/3 of the costs-of
administering the program may be made,

The North Carolina CAMA is designed to produce a management program
that complies with the Federal requirements. North Carolina has received two
.grants to support program development in the coastal area.

Specifically, the CAMA:

Defines "coastal area" as "...the counties that are adjacent to,
adjoining, intersected by or bounded by the Atlantic Ocean or any
coastal sound. The Governor is granted final and conclusive
authority to designate those counties that constitute.the coastal
area.

Charges the Coastal Resources Commission (CRC) with responsibility
for establishing guidelines for plan preparation.

Provides that "...each county within the coastal area shall submit
to the (Coastal Resources) Commission a written statement of its
intent to develop a land use plan..." and directs.the CRC to pre-
pare and adopt a land use plan for any county that fails to do so.

Authorizes annual grants to local governmental units to assist
them in preparing local plans and management programs.

Pender County Commissioners Take opportunity to Plan

Local governments across the country are being challenged to become
more efficient. The challenges are directly attributable to drastic changes in
the way we live. Pender County is no exception!@

For example, sub-divisions spring up and the new residents demand
services; the county's major source of employment is New Hanover County so new
commuting patterns impose new loads upon the road,network; population densities
are raising questions about water, sewer, and solid waste services; and coastal
and river flood plains are being used indiscriminantly. In each of these
examples, there are opportunities for the county to grow and prosper, but there
are costs attached to them as well.

Individuals and successful corporations know they must choose among
alternatives: for example, purchase a vehicle this year or defer a year; build
a new factory or expand the old facility. The decisions are based upon'facts
that are gathered about existing conditions (cash flow, price, cost of money)
and some speculation about the future (higher or lower prices and costs). When
individuals and corporations make these choices they are looking to the future:
they are planning-

The request by CRC for a letter of intent to have a locally directed
land use plan prepared came at a fortunate time.,

The Pender County Commissioners recognized that a very large number of
land use problems had been coming to them for resolution and that the number and
complexity of the problems will increase in the future. They also knew that
other organizations such as the Cape Fear Conservation District'did land use
planning but the work should be coordinated and related to the County government.

The County Commissioners responded emphatically that Pender County
would prepare its own plan for the future.

Planning Board Appointed

The County Commissioners took steps to create a planning function.
The first step was selecting a County Planning Board.

Planning boards are recognized in law as a body that studies problems
and holds public meetings to ascertain facts and makes recommendations to the
County Commissioners. The Commissioners, of course, as the executive/legislative
branch of county government, will act independently to accept or reject Planning
Board recommendations. Occasionally, the County Commissioners may sit in a
quasi-judicial capacity and rule upon.differences between the Planning Board
and other citizens.

It was very important that a superior group of interested citizens be
selected as the first Planning Board in Pender County history. Members were
appointed, met, elected officers, and Adopted by-laws. The Board Members were
appointed under a staggered, over-lapping term arrangement designed,tolachieve
continuity in spite of political change. The Board is composed of:

Name Residence Terms (yrs)

a
Samuel Cox, Chairman Burgaw
DeLeon Fennel, Vice Chairman b Rocky Mount 2

Harold Aitken, Secretary Atkinson

Bennie Herring Burgaw 3

Sidney Williams Surf City

Clive Dosher Burgaw 2.

Arthur Wooten Maple Hill 2

Maxie J. Lanier Burgaw 1

Joe McGlohon Penderlea 1

Leslie Batson c Hampstead 3

The Board has met at least monthly since it wasorganized. meetings are open to
the public.

aResigned due to transfer, February, 1975.
bSucceeded to Chairman, March, 1975

c
Appointed to fill vacancy, June, 1975.
3

The County Commissioners received a grant of $20,000 from the State
to aid in preparing a land use plan as defined by CAMA and the Guidelines*
adopted by CRC on January 27, 1975. The Cape Fear Council of Governments
contracted with the County to provide the technical.services necessary for
completion of the land use plan.

Incorporated Towns Plan for Themselves

The CAMA was written to encourage full participation by all municipali-
ties in the coastal area. Letters of intent to plan were submitted by the Towns
of Atkinson, Burgaw, Surf City, and topsail Beach. The letters of intent were
accepted by CRC and grants made to aid in paying for the work.

Each of these jurisdictions must perform exactly the same work as is
done for the entire county. Thus, RESIDENTS OF THE TOWNS WILL RECEIVE TWO
QUESTIONNAIRES AND BE ASKED TO PARTICIPATE IN TWO SETS OF PUBLIC MEETINGS AND
HEARINGS. One seeks to involve them as citizens of the town; the other.seeks to
involve them as residents of the county since town residents are at the same
time residents of Pender County.

The towns will also adopt and send certified copies of their plans to
CRC. The only difference is the County must take account of the goals and plans
of the towns in formulating an over-all plan for the county.

Work Accomplished

An aerial photograph base map of the County at a scale of 1"=2000' has'
been prepared. The photographs were interpreted and built-up, agricultural,
forest and wetland areas and open water were marked. The lines were inspected
by Planning Board members, corrected on the basis of their knowledge of their
townships, and drawn for reproduction. The result is a large scale map of
existing landuse in the county.

Population (drawn from U. S. Census, school enrollment, motor vehicle
.registrations, and other sources), county economy, and natural resource infor-
mation has been collected. Much has been drawn from the work of other planning
groups such as the Resource Conservation and Development District Committee.

This information, together with the existing land use maps, have,
enabled the Planning Board to record the location of important soil associations,
swamps, marshes, aquifers, and other resources.

Locating these resources leads to a key part of the land use plan
anticipated by CRC: Areas of Environmental Concern (AEC).

The CAMA vests in CRC the sole responsibility for officially designating
those key resource areas Judged to be important to all residents of the State.,
Major developments (larger than 20 acres in size, drilling for or excavating
natural resources, or:structures larger than 60,000 square feet) proposed within

the Areas of Envirom ental Concern must have a permit from CRC. No State per-
mits not now required by law will affect the large majority of the land
designated as AECs.

The Planning Board, at the request of the CRC, is delineating what
they consider to be the extent of the areas of environmental concern in Pender
County and will recommend to CRC those areas and the uses that may be permitted.

Public Participation

One of the unique features of the CAMA, totally within the traditions'
of North Carolina, is insistence that the public YOU AND YOUR NEIGHBOR'-
set the goals and objectives for the management of the land in your county.
In short, the public must take some choices about their desires and aspirations
for the county and make them known to the Planning Board and County Commissioners.

The Planning Board organized,and conducted four public information
meetings in April and May. The CAMA,was described, a slide program introduced
the planning process, and very general questions were asked about county problems
and solutions. The returned questionnaires were tabulated.

News items have been written and printed in the county newspapers.

Public response has enabled your Planning Board to be more precise in
defining the questions only you can answer. They appear on the questionnaire
enclosed in this packet. Please take the time to carefully answer the questions
and return the questionnaires. The Planning Board will publish the results.

The Planning Board is planning four more public meetings in the county.
The dates, times, and places are listed in the materials sent to you. If you have
questions (including the meaning of the questionnaire), opinions, and/or sugges-
tions, come to the meeting nearest to you.

The Alternate County Sketch Mas

Question #6 is special. It asks you to record which of the three land
use schemes - A, B, or C - most nearly represents what you would like in Pender
County in 1995.

These maps are not finished plans. They are sketches prepared to help
you visualize the conseq.uences of some of the choices you make - particularly
population growth. Selection of one sketch by a majority of residents does not
in any way imply.that the changes will occur in exactly the places shown. And
only some consequences are shown: highways, water, and sewer. Other conse-
quences will include.school sites, public parks, waste disposal sites, water
treatment plants, secondary roads and collector streets, and drainage.

5
&0,

Map A illustrates the likely use of Pender County land in 1995 if:

Prime agricultural land is protected from development

Industry is actively discouraged

Widely spaced housing for primarily out-of-county c ommuters con-
tinues to spread along the major highways

Recreation housing expands along the US 17-Waterway corridor

There is little increase in permanent population on Topsail Island

Water and sewer facilities are available only in the incorporated
towns

Major forest land owners do not change their management

Swamps, stream channels, marshes, and the low barrier islands between
Topsail Inlet and Rich's Inlet are kept free of development

Map B illustrates the likely use of Pender County land in'lb95 if:

Development of prime agricultural land is discouraged

Swamps, stream channels, marshes, and the low barrier islands between
Topsail Inlet and Rich's Inlet are kept free of development'

Modezatc. local industry, in large part based upon crop and wood
processing, is located in the County

New employment will generate new resident housing demand along the
US 17-Waterway corridor and on Topsail Island and require central
water and sewer services

New population is not confined to the existing incorporated towns
and only;limited central water and sewer facilities are built.

/@he distribution of land uses and the resulting permanent population portrayed
agrees generally with the land use plan and the population and economic
projections published by the Cape Fear Council of Governments./

Map C illustrates the likely use of Pender County land in 1995 if:

Major industrial development occurs. (The location of the industry
and the.number of construction and operating phase employees are
taken from the study published by the Coastal Plains Regional
commission of an oil refinery complex.)

Prime agricultural land will not enjoy more than moderate protection

Only tidal marsh and estuarine water will be protected

New employment, which will spill over into Onslow County, will
generate housing demand in the US 17-Waterway corridor that, when
coupled with seasonal demand (from two to three times resident popu-
lation) will result in a continuous urban belt. Recreation pressure
on the beaches will be enormous.

Any one of the schemes,is possible depending upon the interplay of
what you want and the forces of the market place.

All of the assumptions and the implications of the new highway network
will be discussed at the public meetings.

PLAN NOW TO ATTEND.

A QUESTIONNAIRE TO GAIN OPINIONS FROM
PENDER COUNTY CITIZENS ABOUT
THE FUTURE OF PENDER COUNTY

Please complete this questionnaire to assist the Pender County Planning Board
develop a plan for Pender's future.

1. What are the four most important reasons you are a resident of Pender
County? (Indicate importance by numbering 1, 2, 3, and 4).
Uncrowded living conditions Ability to get a job in the
Reasonable quality housing at county
modest cost Good public schools
A community wherequality is Low cost of living
maintained by deed covenants Easy access to high quality
Low taxes hunting and fishing
Rural setting with few en- other (list in a word or two)
vironmental problems

Access to ocean beaches and
boating water

2. What do you think are the four major problems in Pender County today?
Lack of adequate housing Reliance on septic tanks
Lack of employment Quantity and quality of
opportunities drinking water
Poor roads or transporta- Solid waste pickup and disposal
tion services (bus, Loss of agricultural land
airports)
Lack of markets for Pender
Lack of good shopping areas County products
Inadequate educational Flooding and/or drainage
opportunities
Dominance of big landowners
Lack of recreation
facilities and programs High taxes

other (list in a word or two)

3. What is the one most important specific corrective action that should be taken
by County Government?

4. What would you like Pender County to be ten or more years from now?

The same as it is now (little or no change in number and location
of population)
Moderate increase in population

Generally in the places now populated

Evenly distributed in the County
Large -increase in population
IGenerally limited to the places now populated

Evenly distributed in the CountY

In new communities

5. Should Pender County

Encourage any industry we can get
Encourage only small, clean industry
only encourage industry related to our agricultural and tourism base
Discourage new industry

6. Which of the enclosed land use sketches best illustrates your desires for
Pender County? A, B, C.

7. Mark the statement in each set with which you most agree.
a. The pro duction of food and fiber should be encouraged by
keeping our prime agricultural land in agriculture.
Prime agricultural land should be treated the same as any
other land.

Conversion of agricultural land to other uses, such as
housing and industry, should be encouraged.
b. When population density in a local area becomes suf f iciently high
to warrant public services, such as water supply, sewer, garbage
collection, street lights, and similar services, should the
facilities and service(s) be built and operated by
Pender County
Present or future incorporated towns
Special purpose districts
c. Constructing water supply, waste treatment, streets, and other
community facilities serving large (10 or more dwelling units)
subdivisions should be the responsibility of the

Developer
Government (including special purpose districts)

Lot owners

other

d. Much of Pender County is characterized by swamps associated with
rivers, creeks, and streams. Should these swamps

Be modified by snagqing or minor channeling only to the
extent necessary to maintain "normal" water levelp..
Be absolutely.preserved as they are for fish and wildlife
habitat.

Be subject to exten!,,ive channeling and draining bF@@cause
they cause flooding@

e. There are three major barrier islands protecting the Pender County
coastline. one is developed (Topsail Island). The County should
Acquire some beach land to assure county residents; will be
able to get to the ocean
Participate financially with the two towns (Surf Qity and
Topsail Beach) in a%suring public access to the beach.

Set standards for boach access that must be met by the towns.
Let the towns do whatever they want to do.

Two are developed between New Topsail and Rich Inlets.
The County should
Buy the islands and deed them to the state for maintenance
Keep the islands undeveloped by buildin g code enforcement
and tax policy.
Tightly control the amount and type of development.
Encourage the immediate development of the islands.

f. Location of industry within the County should be

Determined entirely by the industry. :
Limited to specific parts of the County.
Permitted anywhere in the County as long as agricultural land,
swamps, and similar areas are not used.

Prohibited.
9- If the County adopts a policy of encouraging industry, should the
County
Use revenue bonds to finance land acquisition and plant
construction.

Offer tax abatements as inducements.

Use both investment and tax relief.

Use neither.

h. Highly developed recreation facilities such as lighted play fields,
tennis and basketball courts, and the like are in short supply in
the County. Should the County

Establish a park and recreation program to build and
operate such facilities.

Adopt a policy that makes it the responsibility of the
school board.

Leave.things as they are.
8. Population increases will probably mean increases in housing development,
shopping centers, manufacturing plants, and other facilities. Do you
think the County should control this growth? _ YES NO.
If yes, how?

County-wide zoning?

Regulating subdivisions?
Restricting industries, shopping centers, and large-scale
housing developments to specific locations?

Providing general guidance for growth?

Other?

9. How would you characterize yourself?
a. Head of Household; Member of family but not head of

household; single
b. Income level: 0 - $3000; $3000 $5000; _$5000 $7000;
_$7000 - $10!000; -$10,000-$15,000; --$15,000-$25,000;
more than $25,000.

c. Occupation:, Farmer; Business man; Professional;

Skilled labor; Unskilled labor; Retired;
____ynemployed.
d. Place of residence in Pender County (nearest town or community):

10. Please make,any additional comments or suggestions which would help us to
plan for the future of Pender County.

When you have completed the questionnaire, fold it so the mailing address on
the reverse side is visible; secure the open side with a staple or tape;
affix postage; and deposit it in the U. S. Mail.

Thank'you.

DeLeon Fennell, chairman
Pender'County Planning Board

EXHIBIT A-2

CITIZENS-QUESTIONNAIRE

PENDER COUNTY CITIZENS QUESTIONNAIRE

Exhibit A-2.

The Pender County Planning Board and the County Commissioners are pre

paring the Coastal Area Management Plan for Pender County. Your Planning

Board and Commissioners are vitally interested in the comments and suggestions

you and other citizens have and are inviting you to become involved in pre-

paring the plan. Your help will aid in making a plan for Pender County's

future which is based on your own goals and interests.

This questionnaire is the first step in the continuing process of getting

the citizens involved. Youwill be kept informed of the progress we are

making and will be invited to other meetings as they are scheduled.

Please take the time to fill out this brief questionnaire and hand it in

at the end of the Township Meeting or mail it to:

Mr. Deleon Fennell, Chairman
Pender County Planning Board
Route 1, Box 386
Rocky Point, N.IC. 28457

1. What do you think are the four-major problems in Pender County today?
(Indicate priority by numbering 1, 2, 3, and 4.).

-lack of adequate housing problems with septic tanks

lack of employment opportunities poor quality'of drinking water

poor roads or transportation problems with solid waste (dumps)
services (bus, airports)
decline in population
lack of good shopping areas
increase in population
inadequate educational opportunities
problems with flooding..or
lack of recreational or open spade drainage
areas

other (explain)

2. What do you think are the. four major advantages of livinc
jin pender County
today? (Indicate priority by numbering 1, 2, 3, and 4.)

good supply of quality housing closeness to beaches

low taxes
attractiveness of Minting and
fishing areas
few environmental problems.
good schools
good employment opportunities
low cost of living
lack of crowded living conditions
rural nature of county

other (explain)

3. In the next 5 to 10 years, would you prefer to see the population of the
County? (Mark'one)

increase rapidly slightly decline

increase slowly
decline significantly

remain the same

4.. In the population of the County does increase,.would you prefer the
increase to be? (mark one)

inside existing towns (incorporated)

around existing communities (unincorporated)

around new communities or subdivisions outside existing towns and
communities

S. If the population of the County does increase, there will be an increase
in houses, manufacturing plants, shopping areas, and industries. Do you
think the County should control this growh by? (mark one)

County-wide zoning

regulations for subdivisions

restrict where manufacturing, industrial, and shopping areas should
be located

provide general guidance for growth

provide no control or guidance at all

other (explain)

6. What would you-like Pender County to be like next year, 5 years from-now,
or 10 years from now?.

7. Please indicate your place of residence in Pender County.
(town or community)

8. Please make any additional comments or suggestions which would help us
to plan for the future of Pender County.,

Thank you,

Chairman
Pender County Planning Board

EXHIBITiA-3

TABULATION-CITIZENS QUESTIONNAIRE

Exhibit A-3. Tabulation-Pender County Citizens Questionnaire.

Question 1. Four Major Problems

Choices First Second Third Fourth Total Four
a b
No. Wt. NO. wt. No.. Wt. No. Wt. Wt. Problems

Lack of housing 2 6 1 2 1 1 9

Lack of employment 10 40 1 3 2 4 1 1 48

Poor roads 2 8 2 6 14

Lack of shopping 6 18 3 6 2 2 26 2

Inadequate education 2 8 1 3 1 2 2 2 15 4

Lack of recreation 1 3 3 6 5 5 14

Septic tanks 1 4 2 4 1 1 9

Quality drinking
water 1 2 1 1 3

Solid waste 1 2 3 3 5

Population decline 0

Population increase 01

Flooding or drainage 4 3 9 2 4 17 .3

Other: Law enforce-
.-pent., 1 4 4

a
No. indicates number of times listed.

b
wt. indicates weight, i. e., number of times listed multiplied by 4for first, 3 for second, 2 for third,
or 1 for fourth choices.

Exhibit A-3. (Continued)

Question 2. Four Major Advantages

Choices First Second Third Fourth Total Four
No.a Wt.b No. Wt. NO*. Wt. No. Wt. Wt. Problems

Supply of housing 0

Low taxes 1 4 1 3 1 2 3 3- 12

Few environmental 2 1 3 2 4 15 .4

Good employment 0

Lack of crowded
conditions 5 20 4 12 1 2 34 2

Closeness to beaches 4 8 2 2 10

Hunting & fishing 5 15 3 6 3 3 241- 3

Good schools 2 6 1 1 7

Low cost of living 3 6 3 3 9

Rural nature 7 28 2 6 1 2 2 2 38 1

other: Friendliness 1

aNo. indicates number of. times listed.

b
wt. indicates weight, i.e., number of times listed multiplied by 4 for first, 3 for second, 2 for third,
or 1 for fourth choices.

Exhibit A-3. (Continued)

Question 3. County Population

increase rapidly 1,

increase slowly 13

Remain the same 4

slightly decline 0

Decline significantly 0

Question 4. Increase Location

Inside existing towns 2

Around existing communities 10

Around new communities or subdivisions 5

Question 5. Growth Control

County-wide zoning 3

Subdivision regulations 2..

Location restriction 7

General guidance 4

No control or guidance 0

Question_6. Pe@der County in future
-(sample of responses)

As it is now 2

Clean industrial growth for employment 8

More shopping, recreation, employment 4

Lower taxes & cost of living 2

Progressive controlled growth
improved education 3
improved environmental controls 3
Balanced industry, education & recreation 1

Money remain in County

Exhibit A-3. (Continued)

Question 7. Place of Residence

Burgaw Penderlea (2)

Willard. Piney Road

Columbia Township (2) Rook's Corner

Hampstead (2) Wardos Corner (2)

Topsail Township Ivanhoe

St. Helena Watha

,Question 8. Comments and Suggestions
(sample of responses)

We do not want industry or anything that would mar the County's,beauty.

A self-supporting progressive but controlled growth program.

Solicitation of clean industry is needed.

Improve law enforcement.

Keep hospital and medical f acilities at a level of cost citizens can afford.

Involve young people in the planning process.

Any changes should be gradual.

We have more than enough government controls as it is.

EXHIBIT A-4

TABULATION

PENDER. COUNTY (2nd) QUESTIONNAIRE

Exhibit A-4. Tabulation Pender County (2nd) Questionnaire

Question 1. Reason for Residency

Choices First Second Third Fourth Total Four
No.a Wt.b No. Wt. No. Wt. No. Wt. Wt. Reasons

Uncrowded living 63 252 65 .105 24 48 6 6 501 1
Reasonable housing .7 28 17 51 15 30 6 6 115

Quality controls 5 20 12 36 11 22 3 3 81

Low taxes 7 28 24 72 27 54 17. 17 45

Rural setting 21-. 84 57 171 46 92 .19 19 366 2

Access beaches 16, 64 36 108 39 78 12 12 262 3
and water

Job opportunities 9 36 6, 18 4 8 41 4 66
Good schools 5 20 12 36 21 42 7 7 105
Low-cost living 2 8 7 21 12 24 17 17 70

Access hunting and 5 20 9 27 25 50 25 25 122 4
fishing

a
No. indicates number of times listed
bWt. indicates weight, i.e., number of times listed multiplied by 4 for.first, 3 for second, 2 for third,
or 11 for fourthchoice.

Exhibit A-4 (Continued)

Question 2. Four Major Problems

Choices First Second Third Fourth Total Four
No. wt. No.. Wt. No. Wt. No. Wt. Wt. Problems

Lack of housing 5 20 22 66 5 10 7 7 103 4
Lack of.employment 44 176 34 102 12 24 9 9 311
Poor roads 11 44 11 33 11 22 9 9 97

Lack shopping 3 12 36 108 30 60 4 4 184 2
Inadequate education 6 24 13 39 11 22 3 3 88

Lack recreation 2 8 is 54 25 50 5 5 117 3

Reliance on septic 5 20 4 12 8 16, 3 3 51
tanks

NJ Quality drinking 1 4 3 9 9 18 2 2 33
water
cll@
Solid waste 1 4 4 12 .3 6 1 1 23

Loss agricultural 2 .8 6 @18 7 14 1 1 41
land

Lack of markets 0 0 .11 33 14 28 11 11 72

Flooding and/or 7 24 13 39 13 26 3 3 92
drainage
Dominance landowners 2 8 -4 12 16 32 10 10 62
High taxes 1 4 4 12 2 .8 4 4 .28

Exhibit A-4 (Continued)

Question 4. County in Future

Same 29

Moderate Increase 79

in populatedareas 31
Evenly distributed 37

Large Increase 37

in populated areas 6.
Evenly distributed 18

In new communities 10

Question S. Industry

Encourage any 46

Small, clean only 69
t Agricultural and tourist based 21
Discourage any 8

question 6. Sketch Maps

A. 36

B. 46

C. 51

Question 7.
A. Agricultural Land
protected 74

treated same as others 16

encourage conversion to other uses 23

B. Service Provision

Pender County 35
,,Towns. 53
Specia1purpose districts 24

Tc/

Exhibit A-4 (continued)

Question 7. (Continued)

C. Subdivision services

Developers 81

Government 20

Lot owners 8

D. Swam s
p
Modified where necessary 44

Preserved 42-

Channelized and drained 26
E. Topsail Island
Acquired.land 23
Require access 47

Standards for access 30

Town responsibility 14

Undeveloped Islands

Buy and deed to State 11

Keep undeveloped 21

Control development 53

Encourage development 16

F. Location of Industry
Leave up to industry 16

Located specifically 58
Located selectively 34

Prohibited 9

G. Industrial Development
Revenue bonds-land acquisition and construction 20

Tax abatements 18

Investment and tax relief 18

Neither 56

H. Recreational Facilities

Park and recreation program 94
Make responsibility of.School Board 25

Leave as is 24.

Exhibit A-4 (Continued)

Question 8. Growth Control

Yes 85

No 27

County-wide zoning 48
Subdivision regulations 6

Locational restrictions

General guidance .@36

2uestion 9. Respondants

Headof household 125

Family member 12

Single 10

Income

.0-3000 17 7000-10,000 20

3000-5000 7 10,000-15,000 42

5000-7000 9 15,000-25,000 24

more than 25,000 15

Farmer 13 Skilled labor 28

Businessman 23 Unskilled labor 3

Profession 39 Retired 30
Unemployed 9

1, Howard Holly, do hereby certify that this is a

true and complete copy of the Pender County Land Use Plan

prepared pursuant to the North Carolina Coastal Area Manage-

ment Act (Go S. 113-A-100-123) adopted by resolution by the

Pender County Board of Commissioners May.17, 1976. Proceedings

of said adoption are recorded in minute book number of
the Minutes of said Board, beginning at page -32A and ending
at page IX

Witness my hand and the Seal of Pender County this the

17th day of May, 1976.

SIGNED:
Pender County Finar#e officer

A L

Index to Table of Contents (based on Standard Format),
Pender County Land Use Plan

Subject Section Pages

Introduction 1-6

Description of Present Conditions 1-68

A. Population and Economy 1 1-9

B. Existing Land Use 10-21

1. Map attached

2e Analysis 16, 171, 21

,C.. Current Plans, Policies and
Regulations 22-30

1. Plans and Policies 22-27

2.. Local Regulations 28-30

3. Federal and State Regulations N/A

Public Participation Activities Appendix A.

A. Identification and Analysis of
-23
major land use issues 1@

1. The impact of population
and*economic trends 1-12

2. The provision of adequate
housing and other services 11 3, 16-19

3. The conservation of productive
natural resources 4-6

4. The protection of important
Natural environments 14,15

5. The protection of cultural and
historic resources, 11 19

B. Alternatives considered in the develop-
ment of the objectives, policies and Appendix A
standards Exhibit A@l

C. Land use objectives, policies and
standards for dealing with each
identifi.ed major issue 11 @24-19

Subject Section Pages

D. A brief description of the process
used to determine objectives,
policies and standards, empha-
sizing public participation, 11 22

E. -A detailed,statement-outlining the
methods employed in securing public
participation, and the degree of.
participation achieved and the
reaults obtained. Appendix A

IV. Constraints 31-68

A.* Land Potential 31-56

1. Physical Limitations 31-.39

2. Fragile, Areas 40-52

3. Areas with Resource Potential 1 53-56.

B.- Capacity of Community Facilities 57-68

1. Identification of existing
water and sewer service areas 67-68

2. Design capacity of existing
water treatment plant, sewerage
treatment plant, schools, and
primary roads 1 57-68

3. The percent utilization of water
and sewer plants, schools and
pri mary roads 57-68

V. Estimated Demand

A. Population and Economy

1. Population, 11 20-23

2. Economy IV 1, 2, 14, 15

B. Future Land Needs IV 1-15

C. Community Facilities Demand 16-19

1. Ten-year population projection
used to determine facilities demand 11 21, 22

Sub)ect Section Pages,

2. Consideration of the type
and cost of services needed
to accommodate projected
populations 11 16-19

3. Consideration of the.ability of
the local economy to -finance
service expansion 3-5.

V1. Plan Description

A. Description of the Land Classification
System IV 3-6

B. Projected population growth allocated
to Land classes based on local
objectives TV 7

C.. Gross population densities used to
allocate,Transition and Community
Classifications TV 7-110

D., Land Classification Map attached

VII. Summary

A. Discussion of the manner of data Introduction;
assembly, analysi.s, and a statement following each
of major conclusions subsection.

B. Discussion of the application of
the data-to.the plan's formulation V 1-2

VIII. City-County Plan Relationship Defined V 2

:. 1, @ :- , 6
4 A
@i
1 3 6668 14101 2478 7