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property of CSC Library U. S. DEPARTMENT OF COMMERCE NOAA COASTAL SERVICES CENTER 2234 SOUTH HOBSON AVENUE Feb 23 1998 CHARLES TON SC 29405-29405-2413 LAND USE PLAN CoAsTAL AREA managemenT AcT OF 1974 BURGAW, NORTH CAROLINA MAY 4, 1976 HD 211 N8 COASTAL ZONE L4 1976 INFORMATION CENTER HD211.N8L4 1976 Prepared For . . . . . . . . . . . . . . . . . . TOWN OF BURGAW W. E. George, Mayor Town Commissioners E. Robert Casey, III Gordon Futch Lloyd T. Bellamy Tommy R. Lee Everette L. Durham Mrs. Ethel L. Wells Town Clerk Prepared.By . . . . . . . . . . . . . . . . . . Town Planning Board William J. Morris, Chairman Clive Dosher Dr. Stanley Farrior Fred Johnson J. D. Mills Mrs. E. C. Pippin Troy Rivenbark Abstract: Land Use Plan Prepared in Accordance with,CAMA of 1974. Technical Assistance Provided By . . . . . . . . N.C. Department of Natural and Economic Resources George W. Little-, Secretary Division of Community Assistance. Robert W. Ewing, Director Local Planning and Management Services Section William R. Hall, Chief Southeastern Field Office Wilmington John J. Hooton, Chief Planner Thomas M. Cassell, Planner . in charge Melba Thompson, Draftsperson LAND USE PLAN Table of Contents Page Article I Introduction -Article II - Present Conditions 3 Section 1: Population and Economy 3 Section 2: Existing Land Use Section 3: Current Plans, Policies, and Regulations 22 Article III - Public Participation Activities 23 Section 1:, Public Participation Process 23 Section 2: Major Issues 27 Section 3: Development Alternatives 33 Section 4: Objectives and Policies for Dealing with Issues 34 Article IV - Constraints 37 Section 1: Land Potential 37 a. Physical Limitations 37 b. Fragile Areas 44 c. Areas with Resource Potential 44 Section 2: Capacity of Community Facilities 46 Article V Estimated Demand 52 Section 1: Population and Economy 52. Section 2: Future Land Use Needs 56 Section 3: Community Facilities Demand 59 Article V1- Plan Implementation 60 Section 1: Intergovernmental Coordination 60 section 2: Land Classification System 67 Section 3: Areas of Environmental Concern 69 Section 4: Location and Development Standards 69 Article VII - Conclusion 71 Article VIII - Appendix 72 Article I Introduction Why have a land use plan for Burgaw? In future years, the Burgaw area will be subjected to increasing pressures which are the result of the often conflicting needs of a society expanding in industrial development, in population, and in the recreational aspirations of its citizens. Unless these pressures are controlled by coordinated management, the very features of the area which make it economically, esthetically, and ecologically rich will be destroyed. The Coastal Area Management Act of 1974 (CAMA) is a state law that asks local govern- ments in 20 counties in coastal North Carolina to prepare a blueprint for their future growth and development. It is a cooperative program--local government. has the initiative for planning; state government establishes Areas of Environmental Concern. With regard to planning, state government shall act,primarily in a supportive standard-setting and review capacity. Enforcement shallbe a concurrent state-local responsibility. Throughout the preparation of the Burgaw Land Use Plan, every effort has been made to secure public participation. The vehicles utilized to inform the public and to solicit their involvement include: public meetings held by the Planning Board and Town Council; weekly newspaper coverage of meetings and appearances before local civic groups; and informal meetings and discussions of the results of a survey mailed to 550 citizens. On November 13, 1975, the.preliminary draft ofthe Burgaw Land Use Plan was pre- sented to the Planning Board for their review., Also, a copy was forwarded to the Coastal Resources Commission (CRC) as required by state guidelines. By January, the Town of Burgaw had received review comments on the preliminary draft conducted by some two dozen state and federal agencies along with the Coastal Resources commission. Appropriate revisions have been made and public meetings were held by the Town of Burgaw on May 4 and 10, 1976. The Land Use Plan was adopted by the Town Council on May 18, 1976, for submission to the CRC. Elements of the Land Use Plan include a statejT'-e'ht of local land use objectives, policies and standards, a summary of data collection and analysis, an existing land use map, a land classification map, and detailed description of proposed Areas of-Environmental Concern. The Table of Contents of the Land Use Plan suggests the scope of this document which is influenced by the outlined of required and optional data in the "State Guidelines for Locz-1 Planning. as adopted by the Coastal Resources Commission on January 27, 1975, and amended on October 15, 1975. ARTICLE II PRESENT CONDITIONS Section 1. Population and Economy' The population of Burgaw has remained stable over the last few decades. The Town actually experienced a net decline in total population from 1960 to 1970, when it decreased from 1750 persons to 1744 (down 0.3%). The same trend held true for the county with a slight increase occurring during the 1950's followed by a turn downward in.the next decade (1960 population 18,508, 1970 = 18,149). Cities and towns in Southeastern North Carolina which surround Burgaw exhibited sizeable gains in populations during the last United States Bureau of the Census enumeration --on the other hand, Burgaw held relatively constant. Wilmington, the largest city in. the region grew by almost 5%; Southport, a smaller town which has recently acquired several large indus- tries increased by about 9% and is still growing; Jacksonville,-the site of a large military complex gained about 19%, and Wallace, which annexed terri- tory grew by nearly 27%. In contrast, the Town.of-Burgaw witnessed very little expansion of industries or i.n.stitutions. The lack of economic opportunity in Burgaw has probably deterred any sort of significant migration of people to the Town from outlying areas. Mi- gration rates, calculated for the period 1,960 to'1970, compare a specific age group in 1960 with the same group ten years later in order to measure the number of people-who have either come or gone. These statistics reveal that Burgaw is losing population in all but.two age groupings. The age brackets which showed increases were the very young and the middle aged, while young adults showed the largest decreases. Age characteristics for the Town do not differ greatly from thoseof the State as a@whole * The percentage of the population aged under 18 as well as that segment over 65 compares closely with State figures. Burgaw's median age, or that point at which half of the population is older and half are younger, is 31.1 years; the North,Carolina median age is 26.5. Burgaw's sta- tistic indicates that a large proportion of its people are concentrated in the 1North Carolina Department of Natural and Economic Resources Division of Community Assistance, Southeastern Field Office Prepared by David Long February 1975 older and middle aged groupings. It is interesting to note one significant aspect of Burgaw's demography which is included in a special publication by the U.S. Census known as "Social Indicators." By definition, child population expansion is the ratio of the number of children aged 5-9 to the number of children aged 10-14. This is a measure of the growth of the population through expansion of the number of children. The ratio should be near 1.000 for a population which is replac- ing itself and below LOOO for a declining population. Interestingly enough, Burgaw's ratio is exactly 1.000, meaning that'it is,just barely replacing itself through births. Coupled with a slight out-migration this could result, in a net reduction in overall population. POPULATION: Population Change 1930 1970 Pender Burga@w Twp.. Burgaw 1930, 15685 2,192 1209 1940 17710 (+12.9%) 3517 (+10.2%) 1476 (+22.1%) 1950 18423 (+4.0%) 4068 (+15.7%) 1613 (+9.3%) 1960 185.08 (+0.5%) 41-35 (+1.6%). 1750 (+8.5%) 1970 18149 (-1.9%) 4422 (+6.9%) 1744 (-0.3%) Source: US Census 1970 Surrounding Cities: Population Change 1960 1970 1960 1970 Percent Change Burgaw 1750 1744 Southport 2034 2220 +9.1 Wilmington 44013 .46169 44.9 Jacksonville 13491 16021 +18.8 Wallace 2285 2905 +27.1 Source: US Census 1970 Population Characteristics: 1970 Total Male Female White Black Under 18 Over 65 Median A Pender 18149 49% 51% 56% 44% 36.9% 10.0%, 27.4% Burgaw Twp 4422. 49 51 60 39 10.9 30.0 33.9, Burgaw 1744 49 51 56 44 33.0 10.7 31.1 @N.C. 5,082,059 49 51 77 22 34.6 8.1 .26.5 Source: US Census 1970 .Migration Rates: Burgaw 1960 1970 Under 5 5-14 15-24 25-34 35-44 45-54 Ages groups in 1960 160 353 247 211 251 218 Same group 1970 170 285 183 216 217 178. Percent remaining 1960,- 1970 106% 81% 74% 102% 86% 82% Source: US Census 1960 1970 The economy of a commilnity.(and even those of entire nations) is a delicate system which is 'controlled by a multitude of complex forces. The present ('75) national economy is convincing evidence of just what.can happen when a state of imbalance comes into being unemployment, inflation, recession, etc. Statistics relating to the economic situation,in a community should not be re- garded as final, rather, they are flexible and ever-changing. The 1970 US Census is obviously outdated in this respect, nevertheless, several components which are essential to a study of Burgaw's economic structure deserve attention and will be examined in this.section. A good indicator of a local economy is found in its occupational listing. Some communities contain large proportions of workers in some categories and this information can be used.in predicting the.direction in which a local ,economy will tend to move. Perhaps the key feature of Burgaw's occupational breakdown is that segment of-the population engaged in manufacturing. Approximately thirty-five percent of all workers in the state were employed in manufacturing as of 1969 while Burgaw employed only 21.5% in this grouping. Pender County is a predominantly agricultural area, and the difference in manufacturing employment is probably accounted for by a large proportion of agriculture-related workers. The Town is itself less oriented toward agriculture and contains aJarge number of persons engaged in wholesale - retail and professional services. From this analysis, it would appear that there is a favorable potential for attracting Industry to Burgaw, which would provide jobs for individuals and also add sub- stantially to the Town's tax base. Unemployment figures issued by the North Carolina Employment Security Commission for six counties in Southeastern North Carolina show that Pender County consistently had a higher rate of unemployment than its neighbors. During the period July November, 1974, Pender averaged 8.6 percent Jobless while Carteret County averaged only about 4.0%, or less than half of Pender's rate. Recent ejtimates place state 'unemployment at 1Q.4% and Pender at 14.5%. Personal income characteristics extracted from the 1970 US Census also reflect the stagnant nature of Pender's economy. Median family'income was $5,390 as opposed to the State's $7,774., Per capita income, that is, the total income of au area divided by each man, woman and. child was $1,713,versus $2,492 for North Carolina, a deficiency of more than 32%. Pender County's incidence of poverty is considerably@higher than that of the state . . . about one,and one-half to two times as high. This problem should merit the close attention of local officials and efforts should, be made to close this gap as soon as possible. Economic projections compiled by the N. C., Department.of 'Administration for Planning Region 0 (Brunswick, Columbus, Pender and New Hanover),,@altbough being ..very general, hint that the discrepancytbetween national income and.,that of the region will begin to even out over the next few decades. During thenext.fif -ty years, the regionts income should rise from a a present level of 71% of the national average to about 85% by the year 2020. ECONOMY: Occupation By Industry of Employed kersons (1969) Pender Burgaw N. C. Urban N.C. Construction 604 (9.5%) 49 (6.8%) 6.7Z 5.4% Manufacturing 1?73 (27.9) 155 (21.5)35.4 30.8 Transportation, Communications,' 2@7 (4.2) 42 (5.8) 5.6 6.1 Utilities, & Sanitation Wholesale and Retail 1027 (16.2) 164 (22.8)17.6 20.3 Financial, Insurance, Business 233 (.3.7) 19 (2.6) .5.6 7.0 and Repair ,Health, Education, Welfare, Legal 758 (12.6) 197 (27.4 14.2 17.7 and Misc. Professional Services Public Administration 365 (5.7) 30 (4.2) 3.5 4.0 Other Industries (Agriculture, ForestryJ28'7 (20-3) 64 (8.9) 11.4 8.2 Fisheries, Mines Personal,Services) 6354 720 100% 100% Source:, US Census 1970 Personal Income Characteristics (1969) Pender Co. N. C. Total Black Total Black Median Family Income $5390 $4162 $7774 $4803 Mean Family Income 6345 4477 8872 .5682 Per Capita Income .1713 991 2492 1342 Persons Below Poverty Level 36% 57% 20% 45Z Families below Poverty Level 29% 50% 16% 39Z Source: U. S. Census 1970 (1969) Distribution of Income for Families Pender Burgaw N. C.' Less than $1600 243 (5.5% 8(2.OZ 3.4% 1000 - 1999 - 407 (9.2 22 (5.5 5.4 2000 - 2999 373 (8.5 0(0.0 5.7 3000 - 3999 432' (9.8 52 (13.1 6.5 4000 - 4999 557 (12.6 p 36 (9.0 7.2 5000 - 5999 492 (11.2 36 (9.0 8.0 6000 - 6999 285 (6.5 .28 (7.0 7.8 7000 - 7999 322 (7.3 24 (6,0 7.7 8000 - 8999 291 (6.6 18 (4.5 7.6 9000 - 9999 186 (4.2 (4.8 6.9 10000- 11999 324 (7.4 25 (6.3 11.7 12000- 14999 304 (6.9 71 (17.8 10.6 15,000 - 24,999 163 (3.7 47 (11.8 9.0 25,000 - 49,999 13 (0.3 .7 (1-8 2.0 Over 50,000 16 (0.4 5 (1.3 0.5 4,408 (lOOZ) 398 (100%F 100% Source: U.S. Census 1970 Unemployment: July November, 1974 Pender New Hanover Onslow Columbus Brunswick Cartere"", July 7.62 4.2Z 6.9Z 7.0% 7.3% .3.2Z August 9.1 3.8 5.9 6.9 6.6' 2.7 September 9.3 4.2 4.8 .7.2 7.4 3..4 October 7.4 4.1 4.9 8.1 7.2 November 9.7 5.8 8.1 9.5 10.1 6.1 Presently 14.5 7.0 8.7 11.1 @2.1 10.0 Source: North Carolina Employment Security Commission Average AnnualLabor Force Estimates 1970-73 Pender Counq 1973 i972 1971 Civilian Labor Force 7,210 7,040 @_,790 -6.900 Unemployment, Total 390 310 460 420 Rate of Unemployment 5.4 4.4 6.8- 6.1 Employment, Total: 6,8@20 6,730 '6,3@O 6'480 Agricultural Employment, 10070 1,080 1,040 1;140 Nonag. Wage & Salary Emply. 5,350 @5,240 4,900 4,940 All Other Nonag. Employment 460 410 390 Industry Employment by Place of Work Manufacturing .580 610 530 580 Food @70 70 70 60 Lumber & Wood 90 '90 90 120 Other Manufacturing 420" 450 370 406 Non-Manufacturing .2,070, 2,000 1,920 1 Construction 170, 130 80 60' Trns., Comm..' P. Util. 90 110 90 90 660 610 Trade .550 540 Fin., Ins., & Real Estate 50 40 40 30 Service 200 190 27V 250 Government 870 880 850 900 Other Nonmanufacturing, 30 40 40 40 Source: North Carolina Employment Security Commission Commuting Patterns. Since commuting is a way of life for many rural residents, commuting patterns play an important role in the economy of a small town. As with much of the preceding economic information, however, commuting patterns are available only on a county basis. Table, ,-provides a comparison of 1960 and 1970 commuting patterns for Pender County.' Between 1960 and 1970 out-commuting in the county has almost doubled. One implication of this infor- mation could be that the county does not have enough jobs to meet employment needs, thus forcing.residents to seek employment across county lines. In some instances there may be adequate employment opportunities, but higher salaries make commuting economically attractive. Thus., until Pender County provides enough employment opportunities with more attractive salaries, it might be assumed that county residentswill continue to out-commute and towns such as Burgaw will be pre- dominantly bedroom communities as res.idents will travel some distance for em- ployment. Table COMMUTING PATTERNS FOR PENDER COUNTY 1960 1970 Out- In- Out- In- County Commuting Commuting Commu.ting Commuting Bladen* 20 52 33 Brunswick 12 9 88 9 Columbus 8 9 .0 craven 0 0 .8 Cumberland 4 0 Duplin 395 43 505 128 Jones 0 0 .0 8 Lenoir 4 0 01 New Hanove Ir 613 129. 1,692 168 (Wi ImingIton City) (1,173) Onslow 464 23 .412 117 Robeson 0 0 0 8 Sampson 30 21 20 51 Wayne 0 0 7 Elsewhere 31 .41, 94 73 TOTAL @1,581 318 2,868 611 Live & Work in Pender County 4,180 4,180 3,385 3,385 Employed Residents 5,761 xxx 6,253 xxx Persons Working in Pender County xxx 4,498 xxx 3,996 Net Commuting-Gain or Loss -1,263 -2,2.57 Source: Employment Security Commission of North Carolina, North Carolina Commuting, Patterns, 1960 and 1970, Raleigh, (March, L970). Section 11. Existing Land Use The existing land use of the Burgaw planning area is illustrated on the next page. The accompanying Table I states the acreage and'percentage of each land use category. The classification of land use was made for the most part in accordance with the U.S. Department of Interior's , "A Land-Use Classification System for Use with Remote-Sensor Data." The following is a brief description of the various uses with particular attention..given to: --significant land use compatibility problems; .--major problems which have resulted from unplanned development and which have implications for future use; --an identification of areas experiencing or likely to experience major change.in prdominate land uses; --areas of environmental concern. Residential Land Use This categor.y accounts for 12.3 and 1.4 percent of the land use in the City limits and extraterritorial area, respectively. Residents are' almost exclusively single family dwelling units. The first problem regarding resi- dential land use is strip development occurring along the major thoroughfares, particularly in the'extraterritorial area. This threatens to "land lock" quantities of desirable land located behind the roads, and increases the possibility of future blight.of houses presently being built along these roads. Another consequence of strip development is the connecting driveways along major thoroughfares. Numerous individual driveways greatly decrease the util-.. ity of the road and increase the danger to residents and motoring public. ~0 Ex~qiSTING LAM USE MAP Tabl 6 Burgaw Land Use Within Corpora Ite Limits Extraterritorial Jurisdiction Approximate Approximate .Category Acreage Percent Acreage Percent 1. Residential 163.1. 12.3 77.4 1.4 2. Commercial 2.1 9.6 0.1 3*@ Industrial 1.0 15.1 0.1 4. Transportation, Commuhications and Utilities 200.0 3.1 5.@ Government,& Institutional 76.8 5.8 17.3 0.1- @6 Cultural.,,Entertainment Recreational 1102 1.0 95@5 2,0 Agriculture- 210.0 15.7 3 44.1 80 Forestland, 136.8 10.3 22,80.5 41.0 Undeveloped 487.3 36.7 452.0 8.1 Total 1325.9 100 558 1 0.8 100 Source: Soil Conservation Service, aerial photo, 2/20/72, N. Co Department of Natural & Economic Resources, Division of. Community As-sistance Windshield Survey 8/75 The second problem relative to residential land use is the condition of homes as witnessed during the land use survey.conducted by the Division of Community Assistance personnel in August, 1975. The Bureau'of Census in 1970 reported that 14.1 of all housing units (584) in Burgaw lacked some or all plumbing facilities. While the Town of Burgaw is comparable to the State as a whole (14.3 percent of all housing units lacked some o all plumbing facilities) it is a significant amount of substantialbousing. The extraterritorial Jurisdictional area has experienced some changes in predominate land. 'Increased residential development causing urban sprawl. 'has occurred Along Pen.derlea Road, N.C. 53, and Bridgers Streete, Furthermore, land use in the Burgaw planning area, one finds9 is as tbe@ case.-throughout Worth Carolina; a growing number of mobile homes now'and in the future will house families for permanent and vacation housing, there- fore, the same considerations should be given the mobile home as is given to the conventional, residential dwelling. Commercial Land Use Two percent of the land in Burgaw is devoted to commercial uses. No doubt this nominal amo.unt.reflecto the retail marketing Influence of Wilmington. Quite a few businesseb.:,4bave located on. U.S. 117 Bypass which. serve. the motoring public. However, further.development along the Bypass threatens.the economic -,stability of the central-bus.iness district.. Industrial Land Use Manufacturing is one.of the leading Industries of employed persons in Burgaw. Table on the next page lists the manufacturing firms in Burgaw. U.S. Bureau of,Census,: C@nsus of-Housing, 19.709 General Housing Characteristics. Table-....- COMPARISON OF SELECTED HOU�196 CHARACTERISTICS BURGAW, PENDER COUNTY, STATE OF NORTH CAROLINA, 1970 Pender Burgaw County North Carolina Total Housing Units. 584 6,758 1,641,222 - % Owner Occupied 63.0 61.1 65.4 - % Renter Occupied 26.7 16.4 31.8 - % In One-Unit Structures 93.3 87.6 82.9 - % Lacking Some or All Plumbing Facilities 16.1 30.6 15.6 - % With 1.01 or more persons per room (Owner Occupied-Units) 7.9 10.7 10.2 Median Number of Rooms - Owner Occupied 5.6 5.2 5.4 - Renter Occupied 4.4 4.7 4.3 Median Value O@mer Occupied Units $11,200 $6,600 $12,800 Median Contract Rent Renter.Occupied Units $46 $36 $59 Source: United States Census of Housing, Detailed Housing Charactqristics, HC M- B 35, (Washington, 1970). United States Census of Housing, General Housing Chara'cteristics,,HC (1) A 35, (Washington, 1970). a Table Manufacturing Firms in Burgaw Listed Listed Year Employees Firm 1971 1972 1973 Established Products 1971-1972 .1973 American Foods, Inc. Yes Yes 1961 Packing 45 b 20-49 fruits, Batson Farmers Exchange. Yes Yes -1957b -Chicke 25b n 1-4 'hog feed BUigaw-lce Coal.Co. Yes, Yes @1946b Ice 1-4 Burgaw Lumber Co., Inc. Yes No @Furniture 0 stock Burgaw. Milling Co. YeIs No, Prepared feeds' 0 . b Burgaw Packing Co. Yes No 14 0 Slaughter, processf -Electronic Components packagi ing b Corp. of N.* C.@. @Yes Ye's 1966 Transformers 300 100-249 Filto Pipes,, Inc. 'Yes Yes 1962 smoking Pipes 5-9 5-9 Lewis Sausage Co. Yes Yes 1960 Sausage 10-19 10-19 products Murphy Brothers-Milling-po. Yes -'Yes 1957 Feed grain 1-4 .5-9 Myer s Craf t Mfg..,Co. Yes Yes .1958" Wood easels, -20-49 20-49- frames Listed - Listed Year Products Employee.-- Firm 1971 1972 Established .1971-1972 1973 Myers Printing Co. Yes Yes 1957 Commercial 1-4 1-4 Printing b Nunalee Lumber Co-.'. Yes No 1945 Trim, 5-9 0 mouldings, jambs Pender Lumber Co.' Yes Yes 1949 Lumber, pallets 10-19 10-19 Burgaw Mfg._- Co.c b c b -499 Yes Yes 1962 Dresses 135 250 Williams Lumber Co. Yes Yes 1946 Plywood_,t metal 12b 10-49 roof decking a Sources; N. C. Division of commerce and Industry. 1972. acturi@ Director of N. C.-,manuf Oq firms, :1972-1973 edit-ibhe Raleigh.- N. C. and'N..11C. Division of Commerce and Industry.:-,1974. Directory of 14. C. minufacturing-firms, 1974'1975 edition-i b Data not included-in.ibove sources but derived from:. Southeastern Economic Development commission...:197.1., An-.economic data'.-ma Inu6A.on'Pender County; Burgaw,'N. C. C N. C. Di@,ision C6mmek-ce.and Industry 'editions indicate Burgaw 'Man.uf acturing Co. 'was sold. from Top Mode Mfg. @Cd.@: --of P.,. I d Mechanicsburg, Pa. toVpiedmont Industries of Greenville, S. C'. WO uct lin'e was changed, f rom 'women 64reisses, to men's trousers.- Four firms listed in 1971-72 were no longer listed in 1973. Industrial land use occupies approximately an equal amount of land area in town as well as in the extraterritorial area. Percentage wise a very small amount of the total land area is devoted to industrial land use. Transportation, Communications and Utilites Transportation, communications, and utilities represent the third largest land use within the City Limits with approximately 15% of the total land. The bulk of this consists of street rights-of-way which are in most cases 60 feet wide. Burgaw, N.C. 1974 Average Daily Traffic Count* Location ADT U.S. 117 Bypass 4400 West Wilmigton Street 2200 Walker Street (U.S. 117 A) 1500 Bridgers Street at N.C. 53 East & U.S. 117 A) 2800 These throughfares are the most heavily traveled in the community but do not present any problems in terms of capacity. There are traffic circulation problems with a railroad barrier through the center of Town. Additional pro- blems encountered are: poor soils, drainage, and unpaved streets, particularly west of the railroad tracks. Future subdivisions and thoroughfares need to be better coordianted. Other uses within this category are sewage treatment plants; public utilities such as electric, gas, and telephone companies' property and radio stations. Government and Institutional Land Use This category occupies approximately six percent of land use within the _______________ * N.C. DOT, Division oh Highways, Raleigh, 1974. 19 corporate limits. Some of the occupants are: Pender County Hospital; Courthouse; State, Federal, City, and County offices; prison camps; schools; churches and cemetaries. Schools in Burgaw are operated by one administrative unit; Pender County School System. 20 Cultural, Entertainment, and Recreational Land Use The only land use within this category in town is the ball park on Smith Street (S.R. 1400). There are additional recreational facilities owned by the Pender County School System, but are not at this time commonly used by the general public. A recent survey and the public meetings have identified a tremendous need for recreational opportunities in the Town of Burgaw. In the extraterritorial area, this category represents the private golf course on East Wilmington Street. Agriculture and Forestland These two categories represent 26 percent of the land use within the cor- porate limits and approximately 85 percent in the extraterritorial area. The amount of acreage was determined by using five soil Conservation Service's serial photography, (2/20/72). Every effort was made to correctly identify Agriculture and Frestland however, owning to the date of the photography, there are most probably some differences with present use. Should any significant economic development occur in the future, this category is most likely to experience the greatest transformation. Land that is owned by individual property owners but not forest product companies is more susceptible to this pressure. Thus, it is most important that Agricultural and Frestland conversion to urban land be given careful review so that new uses will be compatible and will not significantly erode and agricultural base. Undeveloped Land Undeveloped land is within an urban and built-up super category. It represents vacant, unimproved land without agricultural or forest use. This category represents 36.7 percent of the land in Burgaw--a very significant fact. This is an important resource for prudent development in the future. Town officials should encourage and promote the utilization of this land in order to achieve "economy of scale" in terms of municipal services. 21 Section III. Current Plans, Policies, and Regulations Just prior to the enactment of the Coastal-Area Management Act, the Town of Burgaw initiated steps to establish a "planning program... Among the steps taken.w.ere: 1. execution of a planning services contract to assist the community; 2. adopted an ordinance to-establish a Planning Board on July 30, 1973; and, 3. adopted an ordinance establishing extraterritorial jurisdiction on April 2, 1974. During 1973-74 fiscal year, the contractor provided technical assistance which resulted in the preparation of: Base Mapping, Land Development Plan, and Initial Housing Element.@ The following plans have been prepared by Bu'rgaw with technical assistance from the Division of Community Assistance and have significant implications for land use: Plan 'Date Published- Initial Housing Element June, 1974 Land Devel.6pment Plan October, 1974 Community Profile February, 1975 The following land utecontrol regulations have, been adopted by the Town of Burgaw: Regulation, Pate Adopted N C. State Building Code i (including heating, plumbing,'.etcJ Zoning Ordinance May, 1959 Subdivision Regulations November 11, 1975 The Town of Burgaw,has been handicapped in enforcing these regulations because of the lack of a town manager and a qualified building inspector. 22- ARTICLE III Public Participation-Activities Section 1: Public Participation Process Burgaw is a small rural community situated in the center of Pender County and relatively removed from coastal shorelines. Because.of this it was decided.that we use a. combination of public meetings, appearances before local civic groups and a survey in order to involve the public. A survey was conducted by mailing 550,questionnaires to persons who receive water and sewer service. The results of the survey of which 20 percent responded are below. Public participation also involved meetings, with elected and appointed boards and civic groups with local news media coverage. The median age of the,respondent is 54 years of age --generally of an age-group who has more, time to complete a questionnaire, but certainly not to be considered a cross section of the community. In 1970'the median age of Burgaw's population was 31years of age. Of those responding, ninety-six percent live in a single family dwelling,, A sample questionnaire appears in the appendix. Community Growth The fourth question deals with the amount oV@community growth desired. Fifty-five percent want a slight increase in popu ati.on; thi-rty-five percent want a great increase; while eight percent want t"- population to.remain the same. Development Preferences The.,fifth question asked which type of development would you like to see more or less of in Burgaw! 'The following types of development,are re- quested most often in order of priority: @single-family housing, recreational, industrial,.commercial and apartments. The least.requested type of develop- ment are: mobile homes and condominiums. 23 A survey was conducted by mailing 550 questionnaires to persons who receivet water and sewer service. The results of the survey of which 26 percent responded are below. Citizens' participation also involved meetings with elected and 4ppointed boards and civic groups with news media coverage. The median age of the respondent i.s.54. years of age generally of an age group who has more time to complete a questionnaire,, but certainly not to be considered a cross section of the community. (In 1970 the median..age.of Burgaw's population was 31 years of age.) Of those responding, ninety-six percent live in a single family dwelling. Community Growth The fourth question deals with the amount of community growth desired. Fifty-five percent want a slight increase in population; thirty-five percent want a great increase; while eight percent want the population to remain the same. Development Preferences The fifth question asked which type of development would you like to see more or less of in Burgaw? The following types of development are requested most often in order of priority: single-'family housing, recreational, induserial,@ commercial and apartments. The least requested type of developments are: mobile homes and condominiums. Reasons for Locating The sixth question deals with the reasons for locating in Burgaw. In most cases, several reasons were indicated thus, of 176 Felections: thirty-five percent chose the community because it was clore to family and friends; twenty-nine percent because i,t was close to work; and twenty-three percent. said because of the pleasant surroundings. Not a surpriFing response.in view of the median age of the respondee and the of the community. Public Expenditures Theseventh question probed which areas do you feel mote or less public funds'should be spent? The categories receiving the highest number of.votes in order were: industrial development, parks and recreational facilities and programs, water and sewer service, fire and police protection, and storm draina,ge. The categories receiving the fewest number of votes in order were: roads., (it should be pointed out that while this category was number one for less expenditures, it-was still less total votes than the category receiving the fewest votes for more expenditures), environmental protection, and garbage collection. Likes and Dislikes' The eighth question is what do you like most about Burga4?, The reEponseF occurring most often were the peopl e, small size and relative safety of the community and its institutions. The ninth question asked ust the,opposite. Items me ntioned most frequently'were: lack of retail trade and services particularly restaurants,, -nonexistent recreation facilities,, little or no job opportunity, unavailable sewer service, poor drainage, substandard housing, unsightly and unkept yards, lots and rights-of-way and roaming dogs. Areas for Preservation Question number eleven asked for any specific.1opations which one feels should be preserved or protected in its natural'state. The most frequently mentioned areas are: Pender County Courthouse square, hospital, cemetery and old homes. Additional comments repeated in most cases the dislikes mentioned, above and the following: The need of doctors, paved streets, street lights and,the need to enforce health and land use control ordinances in.a less arbitrary manner. Section H. Major Issues In order to formulate a.series of goals and objectives which.can in turn be molded into policies for future development, we must identify the.major land use issues facing the Burgaw planning area. The following is a.discussion of Issues under five broad.headings. These issues are current issues,and should be considered-a refinement of those issues already identified in the Land Development Plan. An issue is defined as,, a point of debate or controversy, and only through a discussion of all the issues can. we hope to begin to achieve the optimum accommodation of spatial growth.. Impact of Population and Economic Trends As described on pageil of the ConmxmiU Profile, the Burgaw plannifag area.has remained static. While the community has experienced little or no economic .development within the last decade and thus, does not have a growth crisis, nevertheless, it does have problems which need to be addressed. Unless these 27 problems are reversed, the community faces deterioration of its attractiveness. Growth which has occurred over previous decades was not unmanageable because of its slow rate. However, the growth characteristics are somewhat similar to other communities in North Carolina. Foremost among the growth characteristics which have occured in Burgaw is "low density sprawl". Low density sprawl is defined as the entire community consisting of single family homes, 75 percent sited in a traditional grid pattern and the rest clustered. Neighborhoods are cited in a leapfrog pattern with little contiguity. While this pattern is not very distinct, in all probability it would be more pronounced should the community experience significant economic development. Unfortunately, the cost analysis of this pattern of development as compared with "combination mix" and "high density planned" reveals that in every factor such as" operating and maintenance cost, water consumption, water pollution generation, energy consumption, land utilization, and capital cost; the overall cost to the neighborhood or community is significantly more.* This is particularly noticeable in the extraterritorial jurisdiction where residential development has occured as opposed to the development of available residentially zoned land located within the city limits. The aging solution to this trend--annexation--only perpetuates the problem. Furthermore, residential development is not the only land use affected by urban sprawl. Strip commercial development which is sanctioned by an outdated Zoning Ordinance along U.S. Highway 117 Bypass threatens a very attractive and viable central business district. The most important impact of recent population and economic growth has been the decline in population, particularly the young age group, coupled with out- migration of young adults leaves Burgaw in a most unfavorable situation ______________ *Real Estate Reserach Corp., The Cost of Sprawl, Executive Summary, April 1974, p. 2-8. 28 Another impact is speculation. Much of the.haphazard and unplanned growth occurring around Burgaw can be traced toland speculation. Strip developments as previously mentioned form athin ven4er-of intensive land use that hides much larger areas of undeveloped vacant land. Most of these interior lands are being held with the hope that they will eventually command a higher price.. Other land use issues are: lose of open space, use of the best agricultural land for development, and premature land dev6lopment. Housing and Other Services The primary housing and housing related controversies in the Burgaw planning are: public concern over subsidiz ed housing; local responsibility for increasing housing opportunity; absence of vacant standard units; non-available variety of housing; quantity of substandard units; high percentage of substandard. units.which are rental property; scattered-trash and:abandoned vehicles throughout the community; absence of paved streets, water, and. sewer service within the city limits which coincide with substandard housing Areas. These'problems are further compounded by the lack of employment opportunities-which prevent many families from owning a X_ standard house. The major substandard homes are west of the Seaboard Coastline Railroad, on Wright Street, east of Wallace Street, and an area southwest of the intersection of U.S. 117.Business and U.S. 117 Bypass. Good housing is imperative forindustrial growth. Recreation programs and facilities are completely lacking in Burgaw. Conservation of Productive Natural Resources While the Burgaw planning area is without applicable Areas of Environmental Concern there are other productive natural resources. Soils, surface waterf groundwater, and air,quality are productive natural resources which deserve the utmost consideration in the management of these limited natural.resources. A thorough examination of these factors begins under the section entitled, "Constraints.." Protection of Important Natural Environments. Probably the most important natural environment in the Burgaw planning area are the good soils suitable for general agricultural purposes and the excellent natural environment for small and big game wildlife.' While this environment provides Department of Natural and Economic Resources,.Division of Community Assistance,Initial Housing Element, Burgaw, North Carolina, June, 1 974- Another impact is speculation. Much of the haphazard and u.nplanned.growth occurring around Burgaw can be traced to land speculation. ..Strip developments as previously mentione d form a thin veneer of intensive land use that hides much larger areas of undeveloped vacant land. Most of these interior lands are being held with.the hope that they will eventually command a higher price. Other land use issues are: loss of open space, use of the bestagricultural land,for developmentv and premature land development. Housing and Other Services The primary housing and housing related controversies in the Burgaw planning are: public.concern over subsidized housing; local responsibility for,increasing, housing opportunity; absence of vacant standard units; non-available variety of housing, quantity of substandard units; high percentage of substandard-units which are rental property; scattered trash and abandoned vehicles throughout the community; absence of paved streets, water, and sewer service within the city limits which coincide with substandard housing areas. These problems are further compounded by the lack of employment oppqrtuni ties which prevent many families from owning a stan- dard house. The major substandard homes are west of the Seaboard Coastline Railroad, on Wright Street, east of Wallace Street, And an area southwest of the intersection of U.S. 117 Business and U.S. 117 Bypass. Good housing and recreational opportunity are imperative for industrial growth. Conservation of Productive Natural Resources While the Burgaw Planning Area is without applicable Areas ofEnvironmental Concern, there are other productive natural resources. Soils, surface water, groundwater; and air quality are productive natural resources which deserve the Department of Natural and Economic Resources, DCA Initial Housing Element, Burgaw, North Carolina, June 1974. -recreation for some and a livelihood for others, it is largely responsible for the settlement of the Burgaw community. The community will seek to expand its. economic base thus, there will be added "pressure for developing these natural environments for a multiple of uses. This environment directly affects a high percentage of the residents in the planning area, therefore it warrants a great deal of protection so that a maxiumnumber of Ipeople will continue to benefit from its use. Protection of Cultural and Historic Resources There are certain unique features which represent the character of an area. In Burgaw, those features are the Courthouse Square and attractiveshade trees lining its streets., Pender County was formed in 1875 from New Hanover County and Burgaw was chartered in 1870. While the county has a cultural heritage dating back to the revolutionary time (when it was a part of New Hanover County) the Town of Burgaw is a relatively young community.. Nevertheless, there are community historic sites in addition to the Courthouse (1936) such as the Burgaw Presbyterian Baptist Churches organized in 1879 and 1886 respectively. utmost.consideration in the management of these limited natural resources. A thorough examination of these factors begins under the section entitled,"Coustraints. .Protection of imortant Natural Environments Probably the most important natural environment in the Burgaw planning area are the good soils suitable for general agricultural purposes and the excellent natural environment for small and big game wildlife. While this environment provides recreation for some anda livelihood for others, it is largely responsible for the settlement of the Burgaw community. The pommu,Aity will.siek-to expand@"its.economic. base thus,there will be added "pressure" for developing these natural environments for a multiple of uses. This environment directly affects A high percentage of the residents in the planning area, therefore it warrants a great deal of protection so that a maximum number of people will continue to benefit from its use. Protection of Cultural and Historic Reeources There are certain unique features which represent the character of.an area. In Burgaw, those features are the Courthouse Square and attractive shade trees lining its streets.. Pender County was formed in 1875 from New Hanover County and Burgaw was chartered in 1879. While the county.has a cultural heritage dating back to the revolutionary time (when it was apart of New Hanover County) the Town of.Burgaw is a relatively young community. Nevertheless, there are community historic sites in addition to the Courthouse (1936) such as the Burgaw Presbyterian and Baptist Churches organized in 1879 and 1886 respectively. 32. Section III. Development Alternatives Due to past economic trends and the distance from ocean shorelines, Burgaw has not had to deal with a growth crisis that many areas have had in the t.wenty@ coastal counties. However, the community is in an excellent position to examine the present development trends and possibly capitalize on its resources. Basicly there are two alternatives for Burgaw. The first alternative, for the lack of a better term is referred to as "low density sprawl". -This repre'.-'' seuts practically no change from the present development pattern. Development@..@ as previously experienced would occur without the coordination and timing of community facilities and services. It would locate practically anywhere without regard to land use conflicts and distance to existing water, sewer, solid waste disposal and other services available. Development would continue to occur be- yond the city limits with the need for municipal services while large tracts within the city remain undeveloped. Decisions having community wide impact would con- tinue to be made by following the path of least resistance. .The other alternative is one of managed growth. This alternative would re- quire the professional services of a town manager in order to implement policies of the Town Council -and insuring maximum return of town resources. This alter- native would enable the town to implement objectives enumerated under Section IV., Objectives and Policies for Dealing with Issues, which follows. Section IV. Objectives and Policies for Dealing with Issues Burgaw has experienced a very slow rate of growth., The community has not,had to deal with a growth crisis to say the least. In fact, very*recent trends@,Andi- cate a loss of population and potential economic decline. Fortunately, thii, economic stall provides the community an opportunity to make critical decisions about its.future. If a community is to remain attractive, then it must expand its.. economic base so at the bare minimum at least, its young adults may find employment opportunity upon finishing school. The amount and type of, change tolerated de- pends upon the citizens of the community. From all available information (surveys,, interviews, public meetings), people.in,the Burgaw planning area want a viable community, yet they do not want it at the expense of the community's attraetiveness. The County conducted a referendum in a special election on October 25, 1975, and a majority of the people voted by a slim margin to establish an Industrial bevelop- ment Commission. Thus, it is imperative that the Town's elected and appointed officials and citizens vigorously support the goals and objectives enumerated below. Only when these goals and objectives are adopted and adhered to as theTown's policies for land development and future growth, will the community maintain the pleasant characteristics it enjoys today. In order to avoid any misunderstanding, the frequently used terms of goal, objective and policy are defined as follows: goal - a desired future condition; objective - a task or course of action to be performed; and policy - a commitment to action to reach a goal In the broadest sense, the goal of Burgaw planning area is to improve the social, economic, and physical.environment of the community'as economically AS possi- ble. Within this broadly stated goal., several specific goals and objectives relating to the physical development of the area can be stated. Goal: Provide a management system capable of preserving and m.anaging the natural resources in the B,urgaw planning area.. Objectives: employ a qualified town manager in order to implement plans and programs employ a qualified.building inspectorto enforce the N.C. State Building Code, Zoning Ordinance and future Subdivision Regulations Obtain involvement of Burgaw citizens in the planning and implementation processes through actively encourag- ing participation in'the democratic proceedings asso- ciated with the Town Board, as well as through civic organizations and volunteer groups support the findings of fact and recommendation of appointed boards,commissions, and professional staff prevent developemnt in any future Area of Environmental Concern which would result in a contravention or violation of any rules, regulations, or laws of the State of North Carolina or of the Town of Burgaw and its extraterritorial jurisdiction in which development takes place Goal: Develop adequate and efficient public utilities and community facilities Objectives: . encourage development within the existing corporate limits and avoid 'furban sprawl" . provide equal services and facilities to all. areas of Burgaw before annexing new areas encourage the use of the county sanitary landfill program by residents within the extraterritorial jurisdiction Goal:, Provide safe, decent, and, a variety of housing for all.citizens Objectives: Aid property owners in the demolition of dwelling units for human habitation seek, encourage and support the development of publicly assisted housing projects available from Federal agencies ..such as the Farmer's Home Administration 502 Program establish a zoning district which would permit a mobile .home on an individual lot in a specified area support the County Economic Development Commission establish a bona fide industrial park Goal: Promote accessibility and safety in area transportation Objectives: . emphasize safety and continuous street improvement and construction program . mutually adopt a thoroughfare plan with the N.C. Department of Transportation, Division of Highways . adopt subdivision regulations Goal: Preserve the pleasant characteristics of Burgaw establish an appearance commission to preserve the community's aesthetic quality with power to review architectural plans in accordance with G.S. 160A-451. support the continuance of the county historic society protect agricultural lan,d,for agricultural production Goal: Provide parks and recreational facilities and programs to meet the recreational needs of all sectors of the Town's.population. Objectives: Establish an adequate park and recreation system by encourag- ing park dedication and public purchase.of lands in the plan- ning area that are suitable for recreational purposes. Based on the standard.of .10 acres for 1000 population BuFgaw needs. of park and recreational land encourage close coordination between shcool programs and use of school facilities and the recreational pro- grams of the Town investigate the possibility of.establishing limited recreational opportunities such as hike and bike trails and picnicking along Osgood Canal. encourage close cooperation between Town and County recreational programs and facilities Robert D. Buechner, ed., National Park, Recreation and Open Space Standards'. National Recreation and Park AssociAtion, Washington, D.C'., page 21. ARTICLE IV S ection I. Land Potential A. Physical Limitations While there are not any known hazard areas, there areas,.with soil. limita-@- tions. The soils of an area will greatly.determine the.extent of present de- velopment and the suitability for future growth. Unless,an area has proper soils,,urban development that occurs wi 11 be costly and may pose a health hazard. Soils occurring together in.a characteristic and repeating pattern constitute a.general soil area.or soil association. An association consists of two or more principal soils and at least one minor soil which may be quite similar to or quite different from each other. Although closely associated geographically,.@ the soils in an association may differ in their suitability for agricultural and non-farm use. Fortunately, a Soil Survey Special Report has been prepared for Burgaw and the surrounding area.-K- A Special Soil Survey Map appears on the following page which shows the location and extent of eight soil types in the Burgaw planning area. Included in this report are interpretation sheets which provide information about the physical and chemical properties of soils, the su itability and major features affecting soil as resource material, the capability, s6il loss factors and potential yields of soils, and where applicable information.,on the use of soils for range. Ratings as to the soils.degree of limitation for selected uses' and the major soil features affecting each of the uses are provided, and in addi-. tion the soils are rated as to their suitability for wildlife'and suitability for. woodland.' The interpretation will not eliminate the need for on-site sampling.-testing, and study of specific sites for design and construction ofengineering works and various uses. However,.the information is useful for (1) those who want a general idea of the soils., (2) those who want to comparethe potential of different parts of the planning area, or (3) those who seek the location of areas suitable for specific types of land use. The interpretation sheets should be used primarily to plan more detailed filed investigations to determine the conditions of the soil at the proposed site for the intended use.. For the purposes of this report', a siam-gry entitled, Soil Interpretation Chart along with the Soils Map is included. 4@-Soil Conservation Service,'Soil SuUeZ Special Report, Burgaw and. Surrounding Area, January, 1974 3@0 Soil Legend Map Symbol Soil Name 437 Nixonton very fine sandy loam 439 Barclay very fine sandy loam 455, Exum very fine sandy loam 458 Nahunta very fine sandy loam 812 Johnston loam 872 Pasquotank very fine sandy loam 877 Trebloc very fine sandy loam 853 Bladen fine sandy loam 439 4378, -- - ------- - -- ------------- - 439- 437 912 4 853 72 4 4-P 437 43q 4 437 4 BURGAW .455 ..NO-R-TH-.CAROLINA O.S Soil Interpretation General Soil Map Burgaw, N. C. LIMITATIONS FOR Dwellings with Recreation Suitability-for Sewerage Septic Tank Intensive Light, Roads and General Soil Associations Systems Filter Fields Camp Sites Picnic Areas Play Areas industries.,, Streets2/ Agricultu re Woods 439 Barclay Very Fine Sayidy Loam Mod Wet Sev Wet,; Perc Mod Wet Mod Wet. Mod Wet Mod Wet Mo.d Wet Clood Good 853 Bladen Fine Sandy Loam Sev FI;Wt Sev Fl; Wt Sev Fl;Wt Sev Fl;Wt Sev FI;Wt Sev Fl;Wt Sev Wt;Fl; Poor Good Sh-Sw 455 Exum Very Fine Sandy Loam, Sev.Wt Sev Wt sit Wt sit sit Mod Wt Mod Wt;TSC Good Good 812 Johnson Loam Sev Fl;Wt Sev FI;Wt Sev Fl;Wt Sev Fl;Wt, Sev FI;Wt Sev Fl:Wt S.ev Fl;Wt Poor Good 458, Nahunta Very Fine Sandy Loam Sev Wt Sev Wt Mod Wt Mod Wt Mod Wt Mod Wt Mod Wt Fair Good 437 Nixonton Very Fine Sandy Loarn sit Wt Mod Wt sit Sit sit Mod Wt Mod Wt Good Good 872, Pasquotank ,Very Firfe,Sandy Loam Sev Wt;Fl Sev.Wt;F1 Sev Wt;F1 Sev Wt;F1 'Sev Wt;Fl Sev Wt;F1 Sev Wt;F1 Fair Good 877 Trebloc Sev Wt;F1 Sev Wt,-Fl Sev Wt;F1 Sev Wt;F1 Sev Wt;F1 Sev Wt;Fl Sev Wt;F1 Fair Good- Slopes 10% Slopes 10% Slopes 6% Slopes 10% Slopes 6% Slopes 10% Slopes.25% impose limi- impose limi- impose limi-impose limi- impose limi- impose sev. impose sev. tation,s; 1.0- tations; 10- tations;.6- tations; 10- tations; 6- limitations limitations 25% - Mod.; 15% - Mod.; 10% - Mod.; 25% - Mod.; 10% - Mod,; 257.+-Sev. 15*/.+-Sev. 107.+-Sev. 257.+-Sev. 107.+-S.ev. Abbreviations for Limiting Factors: F1 - Flood hazard Definitions of Soils Limitations Wt - Water Table None to Soils have properties favorable for the rated use. Limita- Traf Trafficability Slight tions are so minor that they can be easily,overcome. Good Sh-Sw Sbrink-swelt potential performance and low maintenance can be expected.from these R - Rock Soils. I/ Structures whose footings are - - - - - T - T - - - T - - - - - - - T - T T - T - T - - - -- Perc. Pc@xcolatjon rate .4oderatQe -Soils-have'properties moderately favorable for the rated; in subsoil Cor Corrosion poten(linl use. Limitation can be overcome or modified with planningp TSC Traffic supporting capacity . . . . _design,_or @pecial maintenance. 2/ Refers to roads.and streets Prod Productivity Severe Soils have one or more properties unfavorable for the rated, that have subsoil for baFe AWC Available water capacity use. Limitations are difficult and costly to modify or overcome, requiring major soil reclamation, special design or intense maintenance. From the Soils Interpretation Chart, we see that, the Nixonton (437) has the least limitation for community development (septic tank filter fields, local roads, light industry, and recreation). The next soil with the least overall limitations in Burgaw is Nahunta (458). -However this soil has severe limitations for septic tank filter fields. Unfortunately, most of the land in the Burgaw planning area consists of soils other than these two where the high water table is the most limiting factor. With the exception of Nixonton soils, all the other soils arepoorly drained or have considerable wetness characteristics. This has created problems for natural drainage in the Burgaw planning area. This natural.char.acteristic has been compounded by the lack of adequate provision for drainage and storm water control in the development of the community. The Soil Conservation Service has made recommendations for drainage 40 improvements for the Town.,@@ The.recommendation consists of opening up natural drainage ditches and the construction of new ones as indicated, on the following map. ..Hydrogeology The understanding of the hydrogeology of the area is the first step toward evaluating the availability, occurrence, and chemical quality of the ground water in the planning area. The void spaces between the rock materials that underlie Burgaw constitute the reservoir.in which the water is stored and conduits through which the water moves. While a thorough examination of the geology.and ground water has not been completed at this time, there are pertinent facts that have been identi- fied.by the Regional Hydrologist with the N. C. Department of Natural and Eco nomic Resources, The City,of Burgaw is located in the Lower Cape Fear River Basin not in proximity to usuable class A2 surface waters to supply,city water needs. Consequently,the town uses groundwater to satisfy all water needs. Since groundwater is the town's exclusive source of water, the discussion of public water supply watershed, applicable only to surface water supplies -I.G. Samuel Cox, Soil Conservation Service "Recommendations for Drainage Improvements for Burgaw Planning Board" September 5., 1974. '@@;<-Memorandum from Mr. Richard Shiver, Regional Hydrologist, N. C. Department of Natural and Economic Resources, Wilmington, N. C. September 1975 41 DRAINAGE IMPROVEMENT - ------------------ (2 BURGAW NORTH CAROLINA is not appropriate. Groundwater occurs within two system aquifers in Burgaw. The uppermost aquifer system is a water table aquifer, the Post-Miocene in which potable groundwater is stored in unconsolidated sand. The Post- Miocene Aquifer exists between land surface and an estimated thirty feet below land surface (BLS). Underlying the Post-Miocene Aquifer is the Cretaceous System Aquifer.. the most significant aquifer in Burgaw. The upper portion of the Cretaceous System Aquifer is comprised of uncon- solidated sands where groundwater exists under artesian conditions; here. the water is potable. Unconsolidated sands provide the aquifer framework for the middle and lower portions of the Cretaceous System Aquifer. The middle and lower Cretaceous System Aquifers are suspected of containing brackish groundwater. The Cretaceous System Aquifer exists somewhere between an estimated 30 feet BLS and an estimated 900,feet BLS; basement rock is encountered beneath the Cretaceous System Aquifer. In Burgaw groundwater recharge occurs to the Post-Miocene Aquifer and to parts of the upper Cretaceous System Aquifer. Direct rainfall infil- trates and$ recharges the water table Post-Miocene Aquifer. Interaquifer transfer of groundwater accounts for any recharge into the upper Cretaceous System Aquifer. Recharge most significantly occurs to the Post-Miocene Aquifer. The Post-Miocene Aquifer in Burgaw is, not used as a water supply source since superior quantity and quality groundwater is avail'able in deeper aquifers; however, the Post-Miocene Aquifer does contain good quality water in consequential amounts.* Man-made activities which exert @43 a detrimental effect.on the future quantity and quality of groundwater in this aquifer shouldbe avoided. Three potable water wells screened within the upper Cretaceous. System Aquifer provide groundwater supplies to the Town. Three eight.... inch wells, at a total depth of 350 feet, yield collectively.760 GPM of good quality water at the present time. Because of the,depth of the. aquifer, it is unlikely future man-made activities in Burgaw would. degrade the good quality water presently pumped from [email protected]. Nor is the future quantity of groundwater obtainable from this aquifer- in jeopardy: the available'data, suggests the aquifer in question contains enormous amounts of groundwater available for reasonable use. In summary, planning efforts should be concentrated toward protecting the Post-Miocene Aquifer since this aquifer is most vulnerable to altera- tion by man. Also, it should be noted that: The. aquifer hydraulics hav4p.never been determined, hence the future availability of groundwater is an unknown; Each well in the well field should be periodically monito.red-to, detect quantity and@quality changes; and What is Post-Miocene Aquifer in Burgaw may be Upper Cretaceous System Aquifer eastward. B. Fragile Ar&as There are not any known fragile areas as defined by in the the State Guidelines for Local Planning Burgaw planning area. C. Resource Potential A eas of which the most obvious are productive'agri-, r cultural lands. not be over emphasized., it is the mainstay of the county's economy. As'noted in. Burgawls.existing land use chart and the employees by occupation in Burgaw, it.is still important in the Town as well. As the Town grows and develops, it will.continue to serve this segment of the local economy but actual acreage devoted to this land use. will in all probability diminish. Another area of resource potential important to.both the Town and the county are.game.la,nds and outdoor recreational lands. While there are not any knoWn public or private game lands.per se in the Burgaw planning area, there is high potential for these activities. -X--"-Soil Conservation Service, An Appraisal of Potentialsfor outdoor Recreation Development, Pender County March,'1973. -Section M Capacity of Community Facilities Water System The Town of Burgawts water system consists of three wells and collectively they yield 760 gallons per minute., This system is.capable of providing 547,200 gallons per day based on a 12 hour demand. In May, 1974, it-was estimated that.the Town had about.700 water customers and an average daily usage of about 250,000 g,allons.*'Thus, the water system is presently operating at, .46 percent capacity. There are other factors to consider such as water quality, types of water users, equipment and well production before,determining excess capacity. Nevertheless, without an analysis of those factors, it appears that 25 percent more of capacity could be utilized and still provide a reasonable safety factor for an emergencyo The area served by the existing water system and proposed improvements are shown on the following map. As the map indicates most all presently developed areas withtnthe Town limits have water._,service available. Proposed improvement would increase supply cap acity, storage capacity, and sufficiently interconnect the distribution system. In view of anticipated demand which is discussed under "Estimated Demand",and the above,it would not seem appropriate to increase supply capacity at this time. To determine the realistic needs of, the communit y in terms of supply capacity, it will require a period of monitoring and evaluating water production. Sewer System Burgaw's wastewater treatment plant has a design capacity of 300,000 gallons + Henry von Oesen & Associates, Preliminary Engineering Report, Burgaw, N.,G. May 1974 page 3 fe . .. ....... ... . ................... - ----------- -------- ---- ---------- Ril per day. The average monthly flow as recorded in October, 19743 was 220,000 gallons per day. The peak flow was 3801000 gallons per day. According to a report prepared by the Division of Environmental Management infiltration problems are considered serious at times, mainly in the older section of Town.-N@ A more recently sampling inspection revealed a flow of 339,000 gallons per day during heavy rainfall before and during the sampling period. The system was bypassing approximately 20% of the flow at the main lift station. it was indicated that bypasses occur frequently during periods of wet weather. The report went on to recommend that the collection system be examined for points of inflow and these points be eliminated. Furthermore, if points of inflow are not identified and wet weather flows reduced then the town should determine if additional pumping capacity may be installed without damaging the treatment works. Consequently, the Town of Burgaw's wastewater treatment plant is operating at maximum capacity. However, if corrective measures are undertaken to elimi- nate the serious infiltration then the facility may be reevaluated to determine what additional load it can handle. The area served by the existing sewer systems and proposed improvements are shown on the following map. As'the map indicates there are areas within the Town limits which do not have sewer service available. It is estimated that the proposed extensions would provide about 100 new customers. However, the project is feasible without these new customers, at the suggested N. C. Department of Natural and Economic Resources, Division of Environmental Management Report on Operation and Maintenance of Wastewater Treatment Plant, December 17, 1977 C. Department of Natural and Economic Resources, Division of Environmental Management Sampling Inspection August 15, 1975 . ......... --- - - ----- ------------- ---- EATAfy7 ....... ... rate inc ,reases. Until such.time that the infiltration problems are resolved,, then it. is recommended that no new customers be provided sewer service. Thoroughfares According to the Highway Capacity Manual,"'the practical.'capacity for two lanes@plus parking for two way traffic is 5,700-8,200 vehicles.per day@ Capa- city is defined.as the maximum number of vehicles which has a: reasonable expectation of passing over a given section of a lane or a roadway in both directions during a given time period under prevailing roadway and.traffic conditions. According.to the'North Carolina Department of Transportation's 1974 average daily traffic counts,. the mo st heavily traveled highway is' U.S. 117 iBypass with 4400 vehicles per day. However, there ate other factors (i.e. design, number of accidents, cost.,'.traffic generators, prigin-de.stination studies, etc.) besides capacity analysis which must be considered before alterations are made. Education Facilities .,See next page 4' Henry Von Oesen & Associates. Preliminary,Engine6ring.Report, Burgaw,.N. C. May 1974 page 7 Highway Rese arch Board, Highwa Capacit Manua I Sp ec i 41 Repo rt87 1965 SO There are three educational facilities administered by the Pender County Board of Education which serve Burgaw. These facilities are grossly overcrowded since mobile units and converted shops,are being. used to house students. The Board of Education is now developing 4, 11school facility needs plan" for the entire County. The Town of Burgaw, actually has little or no authority with regard to school policies. In--@ formation provided by the Board revealed the following: Burgaw Elementary School Design Capacity .450 1975-76 Enrollment 576 Pupil/Teacher ratio - 23:1 Burgaw Junior High School Design Capacity 300 1975-76 Enrollment 690. Pupil/Teacher ratio - 24:1 Pender High School Design Capacity 800 .1975-76 Enrollment 790 Pupil/Teacher ratio.--o-21:1 XRTICLE V ESTIKATED DEMAND- Section. I: Population -and Econ2a In order to better understand population projections and population change, historic population And current estimates are summarized on the next page.. Population change is the result of births, deaths, and-migration. Migration is the most difficult variable to predict because it is subject to so many outside factors. Under the historic population we see that the Town of Burgaw's percent increase from 1930 to 1970 has been greater than either Burg4w Township or Pender County. It should also be noted that Burgaw.from 1930 to 1970 has represented an average of 9.5 percent of the County's total population. The two basic sources of regional population projection Are.the OBERs Series E projection, which uses projected economic growth to account for the regional distribution of population, and the.North Carolina Population -Projection Model, which is based upon births, deaths, And observed trends, (1970-73) in migration. The OBERs Series E data are disaggregated from larger multicounty Bureau of Economic Analysis economic areas. The 1973 adjusted trend projections are adjustments of the previous trend projections based.on a comparison of observed mi tion from 1970-73 with predicted migration. gra i Due to,Burgawl s small.size and lack of a data base, it is more accurate to discuss population changes at the county level. As noted in the Community Profilel Burgaw, N. C., Pender County and Burgaw'have remained stable over the last few decades. In fact an examination of specific age groups of population for Burgaw revealed that the town was losing population in all but two age groupings. Increases were the very young and the middle aged, while young HISTORIC POPULATION Ave. Po-rce it of Percent Change Percent Change Percent Change Percent Change Percent Change 1930 1940 1950 1960 1970 County 1930-70 1940-50 1950-60 1960-170 1930-70 Burgaw* 9'.5 11209 -1,476 22.1 .1,613 9.3 1,750 8.5 L,744 -0.3 44.3 Burgaw Twp. :21.8, 3,192 3,517 10.2 42068 15.7 4$135. 1.7 43422 6.9 38.5 Pender Co. 15,686 17,710 12.9 18,423 4.0 18,508 0.5 18,149 -1.9 15.7 Source: U.S. Department of Commercee 1950, 1960, 1970. U.S. Census of Population, North Carolina AVERAGE PERMANENT RESIDENT POPULATION as of July.1 1973 1974 1.9890 1,860 Pender County L 8.,.800 202000 City Only Source: N.C. Department of Administration, Office of State Planning POPULATION PROJECTION 1980 1985 1990 2000 2HILaw* 1973 Adj. Trend 1700 1677 1653 1567 OBER "Ell 1776 1833 1890 1928 Cohort Survival 1805 1857 1909 1957 Arithmetic 1878 1928 1978@ .2069. Pender County 1973 Adj. Trend 179900 172650 17@400 16.9500 OBER "Ell 18,700 19,300 19,900 20,300 Cohort Survival 19,000 19,550 20,100 20,600 Arithmetic 18.,7.65 l9p293 19,820 20--084- City Only Source: U.S. Department of Commerce, Bureau of Economic Analysis N.C*- Department of Administration, OSP N.C. Department of Natural and Economic Resources, DCA adults showed the largest decreases. Also Burgaw's median age is 31.1 years compared to the State's median age of 26.5. It is felt that recent declines in Burgawls population are.tempo-. rary and because of the rapid growth of.Wilmington in the last few.years .that the Town's population will eventually exceed the cohort:.-I@survival projection. Therefore, the most accurate projection.appears to be the':@. cohort survival projection. Fender County suffers from extensive poverty, low wages,..extensive out-commuting, an unbalanced industrial mix, high unemployment, and a low labor force participation rate. Fender County is a predomiriatelylagri- cultural area while,the-Town of Burgaw is less oriented toward agriculture and contains a large numberof persons engaged in wholesale-retail and pro- fessional services due to the county seat offices. 'Population projections.and economic.statistics indicate a stagnant, economy yet the citizenB of Fender County recently held a referendum which was approved by a slim margin to establish an Industrial Development Comm- ission. This fact could very well be the key to the future of Burgaw.and Fender County. Since November, 1974, the unemployment rate has continued,to'increase: January 1974 14.5%; May 1974 13.5%; and August 1975 Pro- jecting future economic conditions is a most difficult task,.since many factors are dependent upon the national economy and are beyond'the control of the local decision makers. However, there,is a.key economic, which has.:been projected by the U. S. Department,of'Commerce, Bureau of Economic Analysis by regi&ns.@ In any event there are assumptions made which if proved erroneous, could render the outcome totally invalid. 'If. we apply the 1970 oercent-,of.county:population of total regional population to regional,employment, we arriveat a county projected employment. d., 1980 1990 2000 Total County Employment 7938 8778 9923 This compares with 7210 persons in the county's labor force in 1973 (6820 employed and 390 unemployed). Consequently, barring any sizeable industrial development in Pender 'County there is little anticipated economic demand at this time._@ Section II. Future L The existing patterns of development, were analyzed under the section entitled "Existing Land Use" in.this report. As a basis to understanding future land needs, a summary of,existing land use is provide&below.@ Since residential land use is one of the largest developed categories, it deserves special review. There are several methods for forecasting future acreage requirements for new residential construction, all of which have basic assumptions, but normally employ the family or household is the key element.'' 4` N.C. Department of Administration., Office of State Budget Statistical Abstract page 207 1973 F. Stuart Chapin., Urban Land Use Planning University of Illinois Press Urban 1965 page 423 Si@ Future Land Use Requirements Within Corporate Limits Approximate 1985 Acreage Category 1975 Acreage Persons per acre 'iftqpirement* Residential 163.1 11.4 6.0 Commercial 27.3 68.1 1.0 Industrial 13.4 138.8 0.5 Transportation, Communications and Utilities 200.0 9.3 7.3 Government and Institutional 76.8 24.2 2.8 Cultural, Entertainment Recreational 1 1.2 166.1 0.4 Subtotal Developed 491.8 3.8 Total 18.0 Agricultural 210.0 Forestland 136.8 Undeveloped -487.3 1325.9 1.4 *Does not include safety factor Source: Land Use Information Soil Conservation Service aerial photos (2/20/72), N. C. Department of Natural and Economic Resources, Division of Community Assistance Windshield Survey 8/75 No. Dwelling Units 592 Based on the present density,for the Town of Burgaw., the number of new'dwelling units needed in 1985 is 21.7 (1974-1985 population increase of 68 persons divided by 3.14 persons per dwelling units). New dwelling units needed is converted to an acreage requirement of 6 acres (new dwelling units divided by 3.63 dwelling units per residential acre in 1975). This method involvesa'ssumptions as to constant household size, stable vacancy rate and no losses in existing stock of dwelling-units from demolition, fire or other catastrophes. Because of this and the fact that.'the method does not provide flexibility for' the location of additional employment generators, asafety factor of@50 percent .is added to produce a total@residential acreage need in 1985 of 9..acres. Due to a lAck.of pertinent data and a small amount of acres in the other land use categories, acreage requirements, are determined by dividing projected population growth (68.,person-5).'by, persons per acre in 1975. Total acres required to accommodate development in 1985 is 18 acres,. If a safety factor of 50 percent'is added then., the total acres needed to accommodate all land uses resulting from new growth in 1985 is 27 acres., It.must be recog- nized that this is based on present density and if a large industry located in or near the community additional acres would be necessary* Section III.. Community Facilities Demand With the exception of the wastewater treatment plant, existing facilities.can accommodate the nominal growth projected for.Burgaw. It is recommended that the Town of Burgaw concentrate on improving existing facilities and services in order to adequately serve the citizens within the Town. Fortunately, the Town has that opportunity with U.S. Department Of Housing and Urban Development,Grant under the Community Development Act,which.has been received by Pender County. @Burgaw'will share with othercommunities and the CountyS the funds,r.eceived.through this program. Burgaw's,proposed improvements.include $140,000 for wastewater collection system; $50,000 for.curb,,.gutter and paving; and $20,000,for.recreation. site acquisition and.improvement.. However, before the wastewater collection system is connected, the wastewater treatment will have tohave the,capacity@ to accommodate this increased load (see "Capacity of Community:Facilities Sewer System") a fact which it presently does not have.' In.addition,@ these improvements.will be located in areas which presently dq not have these @services. Provided the County's second year applicAtion.is,lapproved then the Town can expect the following improvements: $47,500for curb and.gVtter,@ street paving, and storm drainage; $17,500 for recreation development; and an unspecified amount for housing rehabilitation and demolition'. ARTICLE IV PLAN IMPL2ENTATION Section 1. Intergovernmental Coordination Prior to 1974, local land use plans were purely advisory in-nature. Local governments often adopted comprehensive plans and then proceed ed to ignore them by zoning land and building facilities in a manne'rinconsistent with the plan. Under the Coastal Area Management Act of 1974 the develop- ment of land use plans is Just the initial phase of the coastal area management program, for this is a continuing process calling for periodic review (at least once after five years) and revision to keep the plan current, and for management.of other governmental actions in a manner con- sistent with the plans. The law requires each town desiring to develop its own-implementation and enforcement plan to identify a "designated local official".to reviewi process and issue permits.., While regulations called for in the act relate only to permit authority affecting designated Areas of Environmental Concern, the permits need to be.coordinated with both the local,land use plan'and other existing regu- lations. The really crucial part of the program will be to see if the local plans can be effectively used to guide government, actions- by local, State and Federal agencies-within the local Jurisdiction Section I. Int rgovernmental Coordination In Burgaw there are two local units of government which provide ser- vices to the Town and have authority to .levy taxes. These two units Are: -the Town of Burgaw and the County of,Pender. Historically, counties have been responsible for software services (i.e. health, education and welfare) while municipalities were responsible for hardware services (i.e. water, sewer, streets and sanitation). However with a changing demographic picture, both cities and counties have initiated services of both types.. The co- ordination of services between Burgaw and Pender County are nonexistant. However, agreements in several areas should be explored. Possible areasifor joint services include recreation housing rehabi,litation,.and building. inspection to name a few. The degree to which any of these service agreements can be achieved will be determined by the cost,involved:.. The cost in turn can be held to a minimum by land us e control. Only.Burg4w has authority to regulate the use of land outside of AECs. The Town of Burgaw shall continue .to coordinate all plans for its development with those of other governmental agencies operating in the Town. Coordination in the development of the Land Use Plan between Pender County and Burgaw has been achieved through informal meetings by planning staff and by citizens through attendance at county public meetings. With the plan formulated, the major task remaining is to establish an implementation program. Through this program,,the plan may be translated from concept to reality. This implementation program identifies courses of action which will help achieve the objectives stated in Article III, Section 4, Objectives and Policies for Dealing with Issues. Subdivision Regulations. Subdivision regulations recently adopted by the Town can insure that proper design standards are met as new areas are developed and that necessary improvements are provided in the subdivision. New-home owners are assured that sanitary systems will function properly, that promised'paving, storm drainage, curbing, and other improvements will be properly installed, and that accurate markers will be provided for property line surveys. The chief benefit of such regulations is their ability to.prevent many future problems, while planned developments are still lines on paper rather than substandard lots sold to unsuspecting purchasers.. :Furthermore, subdivision regulations would help achieve the following objectives: 1. The encouragement of high standards in areas to be developed for residential purposes. 2. The encouragement of new home construction to increase the housing supply and upgrade the general level of housing quality. 3. The promotion of an attractive community appearance by encouraging visual attractiveness. 4. The establishment of an adequate park and recreation system by encouraging dedication of space in new sub- divisions for such purposes. 5. The promotion of safety and a continuous street improve- ment and construction program by insuring good circula- tion patterns and design standards in new subdivisions. 6. The utilization of subdivision regulations will encourage orderly and systematic growth of the community. The Town has adopted subdivision regulations. Enforcement should be given top priority. Zoning Zoning regulations are particularly important to shaping land develop- ment. The ordinance helps to insure that land uses ate properly located with respect to one another, that sufficient-land is available for.each type of use, and that density of development is suitable both to.the.level of community services available and to the natural features of@theland.. Zoning may be enacted by the Town Board and may be enforcedwithin the corporate limits and in the one-mile area. Since the Town's present zoning ordinance is outdated, it should be revised and expanded to include the one-mile area. The new zoning ordinance would aid in the'attainment of every goal and objective identified in the goals and objectives section of this plan. Therefore, preparation, adoption, and enforcement oUthe zoning ordinance should be a top priority item. Codes Related to Building Codes establish minimum standards for construction, plumbing, heating, and electrical installations, as well as providing for inspection and for enforcement of these standards. The State of North Carolina has adopte d uniform model codes and encourages municipalities to adopt'the:same- or stricter codes. The Town of Burgaw should utilize and rigidly enforce build- ing, electrical, plumbing, heating, health, and sanitary codes.. In the one-mile area, the Town may elect to enforce building codes if so desired. If the Town decides not to enforce building codes.in the Pne-mile area,, the county could assume responsibility for enforcement. The*responsibility for code enforcement in the one-mile area will require further study as to. which level of government can provide the service most efficiently and eco- nomically. In any case, enforcement of building codes will help achieve the following objectives: 1.. The maintaining of.high living and building standards of present residential areas exhibiting.such charac teristics. 2. The encouragement of high living and building standards in areas to be developed for residential purposes. 3. The improvement and promotion of adequate livingand building standards in blighted residential areas. Annexation It is desirable for development which occurs at urban densities to be inside the corporate limits so that it can benefit from the public ser- vices and utilities that such development requires for the health and safety of its residents. However, as has been previously pointed.out the ToFn-has sufficient land within the present corporate limits for growth. Every effort should be.made to encourage development to occur within existing city limits where services.are.pr6sently available. Housing Improvement There are many forms of housing assistance programs available to:help needy. persons provide adequate shelter for themselves and.their families.. Avenues available for consideration include funds from the Community Development Act of 1974, rehabilitation loans, and home ownership-loans availabl,e.from Farmers Home Administration 502 Program. Other housing improvement,:measures that,may be used include the following: 1. Local organizations, such-as civic clubs and,.the Chamber of Commerce, may help organize and conduct neighborhood clean--@u po fix-up, and paint-up campaigns. This should be done:ona yearl basis. y 2. The town should demolish those vacan.t'housing units that.'are beyond repair and'housing units thathave partially been destroyed. 3. All streets in residential areas should be paved withadequate drainage insured. The preceding actions would help achieve@tbe following'objectives:, 1.. The promotion of an attractive community appearance by improving visual attractiveness throughout the community.@ 2., The encouragement to improve and promote@adequate living and building.standards in blighted residential areas. 3., The improvement'of the process by which unsafe buildings. are condemned and demolished. 4. The encouragement to construct new homes to,increase housing supply and upgrade the general level of housing quality. 5. The broadening of the range of housing types available in Burgaw.@. 6. The emphasizing of safety and a continuous street improvement program. 7. Encourage the use of FHA 502 home ownership loan program-avai..l@ ost Office Box @28, able in rural areas. Local FHA office, P. Burgaw, NC '28425 8. The insuring of good circulation patterns and-pedestrian safety, 9. The encouragement of adequate storm drainage. Commercial Growth In addition to controlling commercial growth.through. zoning, the-following additional measures may be desirable.- These measures will also.be,helpful in achieving the objectives outlines.under the goal of promoting sufficient com._'@_ mercial activity to strengthen the communityls tax base and insure continuing growth. 1. Adopt a sign ordinance to insure proper visual appearance in all commercial areas. 2. Improve store front .development in the downtown business area through painting and remodelling. Industrial Growth In addition to controlling industrial growth through zoning, the following additional measures may be desirable. These measures will also be helpful in achieving the objectives,:'outlines under the goal of promoting sufficient indus- trial activity to strengthen the community's tax base and insure continuing growth.- Furthermore,/the first implementation measure may help achieve the following environmental objectives: 1. The development of a program to achieve high water quality. 2. The promotion of an attractive community appearance by im- proving,-4i8ual attractiveness throughout the community. 3. The monitoring of all sources of possible water pollution. Measures to control and promote industrial growth: 1. Work closely with the Pender County Industrial Development Commission. 2. Review industrial prospects by considering such things as noise, visual unsightliness and/or water and air pollution. .The Department"of Natural and Economic Resources, Division of Environmen@al Management may be of some assistance inc these areas. 3. Review indWstrial,prospects by considering such things as site requirements ', traffic generation, transportation needs of the industry, adequate utility services, and adequate buffers. 4. Utilize t;he Department of Natural and Economic Resources,. Division of Community Assistance, Community Development Section in assisting to attract new industries. Parks, Recreation, and Open Sgace The following methods mai be employed to implement the ideas relating y to parks, recreation, and open'4space in the plan. 1. The Department of Natural and Economic Resources, Division of Recreation is availablg,to answer questions and provide informa- tion on park and recreational development. 2. If additional park land 'is desirable in the future, the following methods are available to@obtain more land. (a) Outright purchase of lands by the city. (b) Encourage dedication or gifts of property for recreational use. (c) Purchase and lease back method a community buys land for future. recreational use, but leases it to the former owner or another party until such time as recreational facilities are needed. (d) Pre-emptive buying method - a community may buy a few strategically placed parcels of land which controls additional surrounding acreage by its very nature. (e) Utilize federal and state grants to supplement local budgets for the purchase of additional park acreage. 3,. Set aside a sufficient amount of money for recreation equipment and program operation. 4. Subdivision regulations should require that recreational space be included in large new developments. The zoning regulations can require that recreational areas be included in mobile home parks. 5. Utilize flood plain zoning in areas subject to flooding.@ Once, this.is accomplished, compatible recreational uses .may be developed in these areas. The Department of Housing and Urban Development will help determine flood hazard zones through its national flood insurance program. The preceding implementation measures will also help achieve the following objectives: 1. The establishment.of,an adequq@!@_.park and recreation system,by encouraging park dedication and public purchase of lands in the planning area that are suitable@for recreational purposes. 2. The encouragement of dedication of park and recreation space in new subdivisions. 3. The encouragement of environmental pro 'tection by excluding urban development (excluding limited recreational use, farming, or other similar limited activity) from those areas subject to,possible flooding. Transportation The following measures may be used to implement the ideas established under the thoroughfare section of the plan as well as the attendant objectives listed under the goal of promoting accessibility and safety in area transportation. 1. Utilize Powell Bill funds, local taxes, revenue sharing, and/or bond measures to improve.local streets. 2. The town should request the State Highway Commission to develop'a thoroughfare plan. 3. Utilize subdivision regulations to guide street development in new residential areas. General Revenue Sharing The federal government is returning a certain percentage of the town's.tax funds to the town for use as the town board deems appropriate, subject to certain restrictions. These funds can be utilized for many forms of community development projects. Careful consideration should be given the use of these funds in order to discourage the spending of general revenue sharing funds for .items and projects which can be financed readily.by other means. Rural Development Act The United States Congress has recently passed an act giving highest priority to the revitalization and development of rural areas (Public Law 92-419, August, 1972). This act hag many provisions which could assist Burgaw in implementing the land development plan, such as loans and grants for community facilities con- struction, industries, and housing. Money is only now becoming available under the act and all of its sections are not yet funded. However, the town board should become familiar with the act and aggressively seek financial assistance wherever possible. Citizen Participation In an effort to make the plan an effective guide for community growth, citizen participation should be encouraged. This should be a continuing process in which community goals and objectives ard constantly being reviewed and updated. Community Facilities and Services The town should develop a comprehensive policy for the maintenance, improvement, and extension of community facilities and services, such as fire protection, police protection, and water and sewer services. Section 11. Land Classification System The North Carolina Land Classification System contains five classes of land: (a) Developed - Lands where existing population density is moderate to high and where there are a variety of land uses which have the necessary public services. (b) Transition Lands where local government plans to accommodate moderate to high density development during the following ten year period and where necessary public'. services will be provided to accommodate that.growth. (c) Community - Lands where low density development is. grouped in existing settlements or will occur in such s -;'iUments during the following ten year period et and which will not require extensive public services now or. in the future. Rural - Lands whose highest use is for agriculture, forestry, mining, water supply, etc'., based on their natural resources potential. Also, lands for future needs, not currently recognized. (e) Conservation - Fragile, hazard and other lands necessary to maintain a healthy natural environment and necessary to provide for the public-health, safety, or welfare. These five classes provide a framework to be used by the Town to identify the general use of all lands within the corporate limits.. Such a.,system presents an opportunity for Burgaw to provide for its need as well As to consider those of the.whole State. Also, it is a statement of policy on where and to what density we want growth to occur, and where we want to conserve the Town's natural resources by guiding growth. Since an objective as stated in@the'section "Objectives and Policies.,. to Deal with Issues", is to encourage development within the existing corp- orate limits and avoid urban sprawl, then it is reasonable to demand that new growth occur in the.Developed Land Class (where water and sewer service is available and the density is 3.8 persons per acre using developed acreage). Furthermore, there are 487 acres of undeveloped land within the corporate limits - more than an adequate unt of land area to accommodate unantici- pated as well as.anticipated.growth for,the Town of Burgaw'.. Consequently, the Developed Land Class is allocated all the proposed development which coincides with city limit s. See the Land Classification Map on the next page. - --------- ----- --- ----------- ---- --------- - - Section III. Areas of Environmental Concern There are no areas of Environmental Concern in the Burgaw Planning Area as defined by State Guidelines. Section IV. Location and Development Standards These standards serve two purposes: as a basis for the Land Use Plan and as a guide to public officials and citizens for evaluating development proposals. These standards state where the various land uses should be located and how land should be developed for each land use. Residential areas should: have public water and sewer service within corporate limits have minimum lot sizes where community/public water and sewer service is unavailable- 20,000 square feet; if either-water and sewer facilities are available but not both - 15,000 square feet be bound but not crossed by major thoroughfares construct utilities including electric and telephone lines under- ground, where the ground water table prohibits underground electric wires, utility poles should follow rear property lines not locate in flood prone areas or in the case of beach communities should be above minimum building elevation and flood proofed as determined by HUD Federal Insurance Administration provide locations for churches, schools, recreation, and neighborhood serving stores near their center, be buffered from other.@land uses,,. Commercial areas should: locate near intersections of major thoroughfares to better serve trade areas -not be permitted to develop in strips, but rather in compacti grouped and consolidated into functional units provide adequate off @-street parking with designated, entrances and exits 3 to 6 acres in size while'for community sho.pping centers from 10 to 30 acres in size have compatible signs which do not obstruct sight Office and institutional areas should: - serve as buffers between residential areas and commercial or industrial uses - located in planned office and institutional parks have adequate off--@street parking facilities have compatible signs which do not obstruct sight Industrial'areas should: locate on nearly level ground; generally not more than 5% be well drained and on good load bearing soil locate where public watert sewer and other.utilities are@available locate near railroads, major thoroughfares, airports, navigable. waters, and major utility and transmission.lines provide sites largp, enough for expansion' have property owner, commitment at aset price ARTICLE VII CONCLUSION The Land Use Plan culminates six months work by the Burgaw Planning Board and Planning Advisor, plus the substance of several public meetings and surveys where input was given by citizens. Obstacles to present and future development are clearly identified. Means and methods for dealing with development problems are recommended. The protection of the public health, safety, and welfare of present and future residents can be assured provided Town Council implements the recommendations listed herein as development policy. ''Major conclusions of the Land Use Plan are: Present development can be classified as very low with approximately 487 acres available for development within the corporate limits. Burgaw requires the professional services of full-time qualified personnel to insure the efficient and wise.. management of the community's resources. Burgaw and Pender County have coordinated very few services. Recreation facilities are non-existent. Drainage, wastewater treatment, and housing conditions. are in need of improvement. Burgaw planning area is without Areas of Environmental Concern as defined in the State Guidelines 71 APPENDIX 72 CITIZEN OPINION SURVEY FOR THE TOWN OF BURGAW burgaw is preparing a land use plan in order to comply with the requirements.of the. CoasLal Area Management Act of 1974. one of the most important aspects of land u,,e planning iF: that the plan adequately reflects citizen opinions and attitudes toward the use.of the community's land--both public and private.' The following survey is intended to,give each citizen the opport:unity to.express his opinion onland uf:e. pro- b ms le s and issues' Your cooperation in answering the following questions will be appreciated. .Upon completing the questionnaire, please, return to: Mrs. Ethel J. Wells Town Clerk Town Hall Burgaw, N,.C. 28423 I." Are you a.perm .anent resident of Burgaw? yes no 2. What is your age? 3. Do you I ive in a: single-family house duplex mobile home apartment 4. During the next five years would you.like to see the population of,Burgaw, increase greatly increase slightly decrease greatly, 'decrease slightly stay.the same Which of the following types of development would you like to see more or less of in Burgaw? More Less single-family,,hou'sing apartments condominiums mobile homes commercial indu.strial public open space, public recreation facilities, (playgrounds and parks) other (specify) 6. For what reasons did you choose to live in Burgaw? ( ) close to work ( ) plcasant surroundings ( ) low taxes ( ) reasonably priced Land and house ( ) close to family and friends ( ) other 7. In which of the following areas do you feel more public fund should be spent? More Less water and sewer garbage collection fire and police protecti~on schools parks, and recreational facilities and programs roads or public transit environmental protection industrial development town management storm drainage other 8. what do you like most about Burgaw? 9. What do you like least about Burgw? 10. Is there any particular area or type of area within the Town limits or within one mile of the Town limits ,that you feel is unique or special and should be preserved or protected in its present state or form? 11. Please use the following space to make any additional comments would like. Thank you for your help and cooperation. This questionnaire should be returned, to the Town Hall by May 15th. Ar Rare and Endangered Species Pender County Amphibians .Pine barrens treefrog Hyla andersoni; preferred habitat: shrub bogs, pocosins; general comments: habitat damage may seriously deplete species disjunct populations N. J., N. C., and S. C..; status: undetermined Reptiles Coral snake Micrurus fulvius; general comments: very secretive,.N..C. northern limit range; status: peripheral-rare in N. C. Vascular Plants Hypoxis sessilis; preferred habitat: savannahs; general comments:. very rare in N. C.; status: rare Thalictrum cooleyi; preferred habitat: savannahs; general'comments:. very rare in N. C. (only place it is found); status: rare Source: N. C. Dept. of Natural and Economic Resources Prel.imiaar y List of Endangered Plant and Animal Species in North.Carolina June, 1973 --DATE- DUE GAYLORD No. 2333 PRINTED IN USA 3 6668 1410B 7207