Pender County land use plan update, 1986

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

1986

PENDER COUNTY

LAND USE PLAN

COASTAL ZONE
INFORMATION CENTER

Assistance by

TALBERT COX & ASSOCIATES INC.

HD
211
N8
P46 LOCAL ADOPTION - MAY 27, 1987
1987

CRC CERTIFICATION - JUNE 5, 1987

HD211.N8 P46 1987

1986

PENDER COUNTY

LAND USE PLAN

Assistance by

TALBERT , COX & ASSOCIATES INC.

LOCAL ADOPTION - MAY 27, 1987

CRC CERTIFICATION - JUNE 5, 1987

1986

PENDER COUNTY
LAND USE PLAN UPDATE

Prepared By

PENDER COUNTY PLANNING BOARD

and

PENDER COUNTY BOARD OF COMMISSIONE RS

Assistance By

TALBERT, COX & ASSOCIATES, INC.

COASTAL ZONE

INFORMATION CENTER

"The preparation of this report (map, document, etc.) was
financed in part through a grant provided by the North
Carolina Coastal Management Program, through funds provided
by the Coastal Zone Management Act of 1972, as amended, which
is administered by the Office of 0cean and Coastal Resource
Management, National Oceanic and Atmospheric Administration."

TABLE OF CONTENTS

1986 Land Use Plan Update
for Pender County Page

Data Collection and Analysis

A. Information Base 1

B. Present Conditions 2

1. Present Population and Economy 2

2. Existing Land Use 15

a. Significant Land Use Compatibility 18
Problems
b. Major Problems Resulting from 18
Unplanned Development
C. Areas Experiencing or Likely to 19
Experience Changes in'
Predominant Land Use

3. Current Plans, Policies, and Regulations 20

a. List and Summary of.Existing Plans 20

(1) Transportation Plan
(2) Community Facilities Plan
(3) Utilities Extension Policies
(4) Open Space and Recreation
Policies
(5) Prior Land Use Plans and
Policies

b. List and Brief Description of 20
Enforcement

(1) Zoning
(2) Subdivision Regulations
(3) Flooding
(4) Building
(5) Septic Tanks
(6) Historic District
(7) Nuisance
(8) Dune Protection
(9) Sedimentation
(10) Environmental Impact Ordinance

Page

C. Constraints - Land Suitability 23

1. Physical Limitations for Development 23

a. Hazard Areas, Including Man-Made 23
Hazards
b. Areas with Soil Limitations 23

(1) Hazards for Foundations
(2) Shallow Soils
(3) Poorly Drained Soils
(4) Limitations for Septic Tanks

C. Water Supply 24

(1) Groundwater Recharge Areas
(2) Public Water Supply Watershed
(3) Well Fields

d. 12% Slopes 24

2. Fragile Areas 26

a. Coastal Wetlands 26
b. Sand Dunes 27
C. Ocean Beaches and Shorelines 27
d. Estuarine Waters and Estuarine Shorelines 27
e. Public Trust Waters 28
f. Complex Natural Areas 28
9. Areas that Sustain Remnant Species 29
h. Unique Geologic Formations 29
i. Registered Natural Landmarks 29
j. Wooded Swamps 29
k. Prime Wildlife Habitat 29
1. Scenic and Prominant High Points 30
M. Archaeologic and Historic Sites 30

3. Areas with Resource Potential 30

a. Productive and Unique Agricultural Lands 30
b. Potentially Valuable Mineral Sites 30
C. Publicly-Owned Forests, Parks, Fish and 31
Gamelands
d. Prime Farmland 31

D. Constraints - Capacity of Community Facilities 32

1. Existing Water and Sewer 32

2. Design Capacity for Water Treatment, Sewage 32
Treatment Plant, Schools, and Primary Roads

Page

3. Level of Utilization for Water System, 33
Sewage System, Schools, and Primary
Roads

4. Capacity of Community Facilities to 33
Supply Existing and Anticipated Demand

E. Estimated Demand 35

1. Population and Economy 35

a.. Seasonal Population 35
b. Local Objectives Concerning Growth 35
C. Forseeable Social and Economic 35
Change 35

2. Future Land Need 38

3. Community Facilities Demand 38

Policy Statements 39

A. Resource Protection

1. Areas of Environmental Concern

a. Coastal Wetlands
b. Estuarine Waters & Estuarine Shorelines
C. Public Trust Areas
d. Inlet Hazard Areas & Ocean Hazard Areas
e. Archaeological AEC

2. Hazardous and Fragile Land Areas 41

a. Freshwater Swamps
b. Marshes
C. Maritime Forests
d. Cultural & Historic Resources
e. Man-made Hazards
f. Hurricane & Flood Evacuation Needs
9. Protection of Potable Water Supply
h. Use of Package Treatment Plants fo
Sewage Treatment Disposal
i. Storm Water Runoff from
Agriculture, Residential
Development, Phosphate or Peat
Mining and Their Impact on Coastal
Wetlands, Surface Waters or Other
Fragile Areas
Marine and Floating Home
Development

Page

k. Industrial Impacts on Fragile
Areas
1. Development of Sound and Estuarine
System Islands

B. Resource Production and Management - Discuss 43
Importance of Agriculture, Forestry, Mining,
Fisheries and Recreational Resources

Policy Statement on:

1. Productive Agricultural Lands
(Executive order #96)
2. Commercial Forestlands
3. Existing and Potential Mineral
Production Areas
4. Commercial and Recreational Fisheries,
Including Nursery and Habitat Areas
5. Off Road Vehicles
6. Residential and Commercial Land
Development
7. Peat and Phosphate Mining and
Industrial Impacts on Resources

C. Economic and Community Development - Discuss 45
Types of Development to be Encouraged

1. Types and Locations of Industries
Desired
2. Local Commitment to Provide Services to
Development
3. Commitment to State and Federal
Programs Include Erosion Control,
Public Access, Highway Improvements,
Port Facilities, Dredging Military
Facilities
4. Anticipated Residential Development,
Densities, location, Units Per Acre and
Services Necessary to Support
Development
5. Types of Urban Growth Patterns Desired
- Redevelopment of Developed Areas
6. Assistance to Channel Maintenance and
Beach Nourishment Projects, Including
Provision of Borrow and Spoil Areas,
Provision of Easement for Work
7. Energy Facility Siting and Development
8. Tourism and Beach and Waterfront
Access
9. Coastal and Estuarine Water Beach
Access

Page

10.. Local Land Use*Planning Issues (Ranked 1
through 19 in local importance)

III. Land Classification System 63

IV. Storm Hazard Mitigation 69

V. Relationship of Policies and Land Classification 78

VI. Public Participation 79

Appendix

Tables

1 Population Growth 1970-1980 2
2 Changes in Population by Township 2
3 % Urban & Rural Population 3
4 Population Density 3
5 Persons Per Household 3
6 Employment by Industry Type 6
7 Retail Sales 1980-1985 7
8 Acres Harvested and Estimated Farm Income 8
9 Fish Caught & Value 1981-1984 - 9-10
10 Value of Forestry Products - 1983 11
11 Tourism Income 11
12 Per Capita Income 13
13 School Capacity and Utilization 32
14 Population Projections by Age Group 37

Maps

Map showing townships with largest increase in population 4

DATA COLLECTION AND ANALYSIS

PENDER COUNTY LAND USE PLAN

A. Information Base

The 1986 Land Use Plan Update for Pender County has been
prepared in accordance with requirements of the North Carolina
Coastal Area Management Act (CAMA). Specifically, this document
complies with Subchapter 7B, "Land Use Planning Guidelines," of
the North Carolina Administrative Code, as amended, July , 1984.

The initial Land Use Plan was prepared for Pender County in
1976, and the first update in 1981. According to the Land Use
Planning Guidelines, the major purpose of periodic updating of
local land use plans is to identify and analyze newly emerging
community issues and problems. An additional element which was
not required in either the 1976 Plan or the 1981 Update is a
"Storm Hazard Mitigation, Post-Disaster Recovery, and Hurricane
Evacuation Plan," and is required to be included in the 1986
Update, This element is designed to help local governments coor-
dinate effective policies and actions relating to the impact of
hurricanes or other severe storms.

The guidelines further give the following objectives the
update should meet:

to further define and refine local policies and issues;
to further examine and refine the land classification
system and the land classification map;
to assess the effectiveness of the existingland use
plan and its implementation;
to further explore implementation procedures, and;
to promote a better understanding of the land use plan-
ning process.

Both the 1976 Land Use Plan and the 1981 Update provided
much of the needed information base for this update. However, in
many cases, new information had to be developed or has become
available since the 1981 Plan was completed. A number of data
sources were used during the preparation of this plan to prepare
updated analyses of population, housing, economics, (including
agriculture, fisheries, and forestry), and existing land uses.
Most of the data came from primary and secondary sources in the
form of direct contacts with representatives of various state and
federal agencies and/or previously published documents or reports.
Also, "windshield" surveys were conducted to obtain data on exist-
ing land use patterns. Interviews were conducted with various
County officials, and extensive effort was made before beginning
the planning process to obtain citizen input on issues of local
concern.

B. Present Conditions

1. Present Population and Economy

The most current population information for Pender County is
the 1980 Census data and the North Carolina Office of State Budget
and Management estimates for 1985. As shown in the 1981 Land Use
-Plan, Pender County had the following population in 1980 based on
Census information.

Table 1: Pender County Population Growth

Population % Increase, 70-80

1960 18,508
1970 18,149
1980 22,107 +21.8
*1985 24,114 + 9.1 (5 years estimated)

Source: 1980 U.S. Bureau of the Census
*July 1, 1985 N.C. Office of State Budget and Management

As shown on Table 1, Pender County continues to experience a
steady rate of growth based on 1985 population projections, and
this trend will most likely continue.

Table 2 below reflects population changes by township for
1960, 1970, and 1980.

Table 2: Changes to Population by Township

% Change Ranking of
Township 1960 1970 1980 1970-80 Growth Rate

Burgaw 4,135 4,422 4,940 +11.7 8
Canetuck 466 256 330 +28.9 3
Caswell 1,171 1,023 996 - 2.6
Columbia 1,691 1,542 1,740 +12.8 7
Grady 1,148 1,264 1,360 + 7.6 9
Holly 1,579 1,373 1,684 +22.7 4
Long Creek 1,045 886 1,158 +30.7 2
Rocky Point 1,728 1,616 1,941 +20.1 5
Topsail 2,431 2,860 4,515 +57.9 1
Union 3,114 2,907 3,443 .+18.4 6

TOTALS S18,508 18,149 22,107 +21.8

Source: U.S. Census

Table 2 shows that Topsail, Long Creek, Canetuck, Holly, and
Rocky Point Townships have experienced the largest increases in
population between 1970 and 1980. All of these areas continue to

TABLE 3
PENDER COUNTY, NORTH CAROLINA
% OF URBAN AND RURAL POPULATION

1950. 1960 1970 1980

Urban - - - .9

Rural 100,1 100*0 100,0 99.1

Source: State Government Statistical Abstract, Fifth Edition,
1984, North Carolina

TABLE 4
PENDER COUNTY, NORTH CAROLINA
POPULATION DENSITY AND LAND AREA

1960 1970 1980 1983*

Land Area in Square Miles

875 22 21 21 26.7

Source: State-Government Statistical Abstract, Fifth Edition,
1984F North Carolina; *September .1984 Profile of North
Carolina Counties

TABLE 5
PENDER COUNTY, NORTH CAROLINA
NUMBER OF HOUSEHOLDS AND PERSONS PER HOUSEHOLD

1960 1970 1980

Number of Households 4,613 5,237 7,511

Persons Per Household 3.99 3.42 2.91

Source: State Government Statistical Abstract, Fifth Edition,
1984, North Carolina

M so No W 40 Wt so 4w we OW
TOWN5HIP MAP

POPULATION INCREASE 1970-1980

Top
Lon
Can
1101
Roc
ca

22.7

COLUNAE51A

CA'@5WE

-2.6

57.9

A"ETUCK
2 8.9

grow in population. The significant population growth in
Topsail Township, 57.9% between 1970 and 1980, has continued since
1980 due to the very attractive developments along and adjacent to
the Intercoastal Waterway and within a relatively short drive to
Wilmington for urban services, such as shopping, entertainment,
etc. Large developments, such as Scotts Hill, Washington Acres,
Olde Point, Belvedere Plantation, and Deerfield, which have many
undeveloped parcels remaining, will most likely ensure that this
portion of the County will continue to grow. In addition-to these
developments, new areas that have recently opened between U.S. 17
and the Intercoastal Waterway, such as Bay Harbour, Virginia Creek
Forest, Gabes Point, Deer Run ' Topsail Green, Cedar Landing, and
others, will provide addition single family lots for
development. al
The Long Creek Township has experienced a 30.7% increase in
population between 1970 and 1980, with the Canetuck Township
experiencing a 28.9% increase in population for the same period.
Much of this development is most likely attributable to ease of
access to the County's major thoroughfare system and good access
to waterfront areas, such as the Cape Fear River, Black River, and
Long Creek. Assuming continued interest in waterfront access,
these areas will most likely-continue to experience increases in
population.
The Rocky Point Township, between 1970 and 1980, experienced
the fourth largest increase in population. Again, this area has
good access to both U.S. 117 and N.C. 210 and, additionally,
access to the recently opened 1-40. Since 1980, this area has
continued to grow with many mobile home developments being located
in this part of the County.

The Caswell Township is the only area of the County that has
lost population between 1970 and 1980. This 2.6% lo *ss may be due,
in Sart, to the lack of good road access north and south and the
nee to travel a fairly substantial distance to reach points, such
as Burgaw or Wilmington, to the south. This area has been, and
continues to be, very rural in character, other than the small
Town of Atkinson.

The township map, on the previous page, reflects the location
of the five townships with the largest increase in population
between 1970-1980, and the one township that has lost population
during that period.

Tables 3, 4, and 5 reflect how the County, in 1980, began in a
very small way to shift from a totally rural Count 'y to one with a
very small percentage in the urban classification. Also, as
reflected in Table 4, the population density in 1970 was 21 people
per square mile and 26.7 people per square mile in 1983. Al-@hough
the population density is increasing, it is still very rural and
considered a very low population density. Specifically, the 1984
Profile of North Carolina Counties ranked Pender County the 94th
county in population density, while New Hanover County was ranked

TABLE 6
PENDER COUNTY, NORTH CAROLINA
EMPLOYMENT OF PERSONS 16 YEARS OLD OR OLDER
BY INDUSTRY, 1980

2,229 Manufacturing

1,503 Wholesale and Retail Trade

881 Construction

768 Educational Services

669 Agriculture, Forestry, Fishing and Mining

660 Transportation, Communications, and

other Public Utilities

536 Health Services

492 Public Administration

467 Finance, Insurance, Real Estate, Business, and

Repair Services

360 Personal, Enteetainment and Recreational Services

129 Other Professional and Related Services

Source: Profile of North Carolina

the 3rd highest density county in the State, with a 1983 density
of 589.7 people per square mile. As discussed earlier, because of
Wilmington's expanding economy, ease of access to Wilmington by
way of 1-40, 421 and U.S. 17, and the availability of subdivisions
in a more rural setting, people have been and will probably con-
tinue to establish residence in Pender County.

Table 5 shows a substantial increase in the number of house-
holds established between 1970 and 1980, while at the same time,
the number of persons per household is dropping. Specifically,
@uring this 10-year period, 2,274 new households were established
in the County.

Both the 1976 and 1981 Land Use Plans discussed the fact that
Pender County's economy was based on agriculture and natural
resources, such as fishing, but the economy was experiencing
diversification at that time. This diversification of the economy
has continued, as shown in the following tables.

TABLE 7
PENDER COUNTY, NORTH CAROLINA
RETAIL SALES 1980 - 1985

1980-81 1981-82 1982-83 1983-84 1984-85

Total Gross Retail Sales $60,126,633 $61,540,329 $62,300,077 $73,958,036 $82,985,244
#:)od 14,814,535 15,784,930 15,795,344 18,361,369 22,303,360
,tne.ral Merchandise 15?685,796 18,441,205 17,585,010 21,171,629 22,135,952
to 12,474,829 11,347,716 12,296,757 11,932,701 10,268,369

ilding Material 6,045,486 5,722,100 5,194,334 5,628,897 7,329,157

Apparel, Furniture 11,105,987 10,244,378 11,428,632 16,863,440 20,948,406
Unclassified
etail Sales

ource: Patty Chubb, North Carolina Department of Revenue

TABLE 8
PENDER COUM, NORTH CAROLINA
ACRES OF HARVESTED CROP LAND
AND ESTIMATED FARM INCOME

1980 1981 1982 1983 1984

Acres of Harvested 52,500 57,000 51,800 44,100 46,900
Crop Land

Estimated Farm Income 36,473,000 31,787,000 28,959,000 26,130,000 28,069,000

Source: September, 1984, Profile, North Carolina Counties 49-82

Table 6 shows that in 1980, over 4,613 jobs in the County were
in manufacturing, wholesale and retail trades, and construction,
with manufacturing leading with 2,229 jobs. This table also shows
that 669 jobs were in agriculture, forestry, fishing, or mining,
with other job opportunities showing a lesser amount. Retail
sales in the County have continued to increase, as shown in Table
7. Of particular interest is the sharp increase in retail sales
since 1980, specifically, from $60,126,633 in 1980 to $82,985,244
in 1985, which represents a 38% increase in that five-year period.
Much of that increase can be attributed to the continued growth at
the beach, Hampstead, and along major thoroughfares, and the
increase of tourist dollars being spent in the local economy.

As shown in Table 8, agriculture continues to be a major
economic factor in Pender County, although fewer acres are being
harvested each year and less revenue is being generated by farm
operations. Specifically, in 1980, 52,500 acres harvested gener-
ated a farm income of $36,473,000, while in 1984, 46,900 acres
harvested generated $28,069,000, which represents 5,600 fewer
acres harvested with $8,404,000 fewer dollars of estimated farm
income. Although the dollar amount has gone down, agriculture is
still a very important part of the Pender County economy.

ow so so aw no Ift IW ow) so, an

TABLE 9

FISHING INDUSTRY IN PENDtR COUNTY

POUNDS CAUGHT/VALUE

1981 1982

SPECIES POUNDS VALUE SPECIES POUNDS VALUE

Bluefish 34,343 5,210 Bluefish 54,811 $11,4 67
croaker 38,851 17,724 Croaker 38,726 21,244
Flounders, Fluke, 21,327 16,492 Drum, Red 1,118 252
Unclassified Flounders, Fluke, 35,270 26,574
Groupers 27,610 24,822 Unclassified
Harvestfish 1,586 286 Groupers 29,479 23,534
King Mackerel 7,547 6,668 Grunts 1,265 437
King Whiting 57,919 20,472 Harvestfish 3,313 817
Mullet 50,222 11,668 King Mackerel 12,848 12,033
Scups or Porgies 28,670 15,323 King Whiting 17,336 6,563
Sea Basses, Unclassified 24,489 19,441 Mullet 79,354 15,736
Sea Trout, Grey 70,131 22,742 Pigfish 1,457 286
Snappers 49,642 95,397 Scups or Porgies 36,101 25,981
Spanish Mackerel 2,756 1,102 Sea Basses, Unclassified 25,685 20,268
spot 32,725 9,050 Sea Trout, Grey 70,301 30,113
Tilefish 1,045 888 Snappers 21,903 38,712
Triggerfishes 582 146 Spanish Mackerel 2,388 836
Crab, Blue, Hard 100,264 21,162 Spot 39,357 11,765
Crab, Blue, Soft 1,005 1,759 Tilefish 3,692 1,908
Shrimp (heads on) 83,012 185,521 Crab, Blue, Hard 239,733 37,881
Clams, Hard (meats) 33,149 119,358 Crab, Blue, Soft 3,333 6,666
Oyster (meats) 17,669 27,671 Shrimp (heads on) 252,580 553,806
Clams, Hard (meats) 55,095 185,267
Oysters (meats) 21,124 37,276
COUNTY TOTAL 684,544 $622,902 COUNTY TOTAL 1,046,269 $1,069,422

TABLE 9
(Continued)

FISHING INDUSTRY IN PENDER COUNTY

POUNDS CAUGHT/VALUE

1983 1984

SPECIES POUNDS VALUE SPECIES POUNDS VALUE

Bluefish 56,371 $ 9,907 Bluefish 32,892 $ 5,412
Croaker 47,205 20,517 Butterfishes 1,826 512
Drum Red 8,508 1,682 Croaker 81,203 34,968
Flounders, Fluke, 44,236 34,774 Drum, Red 12,987 3,644
Unclassified Flounders, Fluke, 37,671 30,079
King Whiting 35,834 13,711 Unclassified
Mullet 54,889 12,321 Harvestfish 599 151
Pigfish 3,507 661 King Whiting 39,600 15,098
@-j Sea Trout, Grey 77,807 28,565 Mullet 145,868 26,804
C) Spot 51,687 15,261 Pigfish 3,172 651
Crab, Blue, Hard 118,326 34,487 Pompano 56 39
Shrimp (heads on) 113,100 240,276 Scups or Porgies 37 30
Clams, Hard (meats) 92,540 346,285 Sea Basses, Unclassified 2,552 1,919
Oyster (meats) 25,632 50,141 Sea Trout, Grey 92,435 33,540
Sea Trout, Spotted 2,972 2,282@
Spanish Mackerel 89 36
Spot 65,196 17,590
Crab, Blue, Hard 48,831 8,521
Shrimp 284,504 634,857
Clams, Hard (meats) 60,495 214,130
Oyster, Public, Spring 9,005 18,010
(meats)
Oyster, Public, Fall 10,627 18,869
(meats)
Oyster, Private, Spring 1,484 2,983
(meats)
Scallop, Bay (meats) 2,141 3,213

COUNTY TOTAL 729,642 $808,588 COUNTY TOTAL 936,242 $1,073,338

N* am- Is* am a= aw am Mao an Mw aw

The fishing industry has been, and continues to be, a very
important part of the economy. Table 9 shows that in 1981,
684,544 pounds of fish were caught with a value of $622,902; while
in 1984, 936,242 pounds were caught with a value of $1,073,338.
Although these dollar amounts appear to be relatively small com-
pared to retail operations in the County, the fishing industry,
both commercial and recreational fishing, is a very special-and
important part of the local character and economy of Pender County
and continues to provide job opportunities through facilities such
as the Atlantic Seafood Company in Hampstead and others.

TABLE 10
PENDER COUNTY FORESTRY
1983

Estimated Value to Land Owner $5,414,000
*(Includes Public and Private Land)

Value of Logs Delivered to $8,727,000
**Point of Manufacturing

Source: *Commodity Survey from N.C. Division of. Forest Resources
**Stump Value Composite, Division of Forest Resources

Like agriculture and fishing, the forestry industry continues
to be a very important part of the local economy. Table 10 shows
that in 1984, over $5 million was generated for local property
owners through the harvesting of trees, with over $8 million in
value being generated for logs delivered to points of
manufacturing.

Local companies, like Pender Lumber Company, Williams Lumber
Company, and Nunalee Lumber County, are able to use local forest
products, and thereby continue-to provide local job opportunities
in Pender County.

TABLE 11
PENDER COUNTY TOURISM INCOME
1980-1985

1980 $ 5,787,000

1981 6,414,000

1982 7,710,000

1983 10,080,000

1984 18,264,000

1985 21,144,000

Source: N.C. Travel and Tourism Division, Department of Commerce

As shown in Table 11, one of the fastest growing segments of
the economy is tourism income. In 1980, $5,787,000 in tourism
dollars were spent in Pender County, primarily for restaurants,
gas, food, and lodging at the beaches. In 1985, tourism income
was $21,144,000, which represents a substantial increase in tour-
ist dollars being spent in the County. With the continued growth
at the beach, tourist attractions near Hampstead, and the opening
of 1-40 between Raleigh and Wilmington during the planning period,
this segment of the economy will most likely continue to grow.

Also, with the work of the Economic Development Commission and
improved highway access during the five- to ten-year planning
period, the County will most likely experience continued growth of
industry, such as the Takeda Plant on 421 and other smaller indus-
tries that have located throughout the County since 1981.

TABLE 12
PENDER COLWIY, NORTH CAROLINA,
PER ChPITA PERSONAL INCOME
1969 - 1981

69 70 71 72 73 74 75 76 77 78 79 80 al

State 2,999 3,220 3,410 3,789 4,241 4,587 4,860 5,350 5,770 6,475 7,125 7,780 8,656

Pender 2,034 2,357 2,495 2,808 3,203 3,462 3,765 4,031 4,380 4,901 5,485 6,054 6,892

Onslow 2,828 3,314 3,339 3,931 4,341 4,851 4,661 4,834 4,499 4,934 5,401 5,989 7,089

New Hanover 3,175 3,396 3,555 3,970 4,386 4,677 4,966 5,497 6,002 6,728 7,591 8,339 9,158

Wake 3,677 3,962 4,182 4,563 5,018 5,465 5,922 6,459 7,026 7,835 8,851 9,633 10,623

Durham 3,376 3,680 4,072 4,460 4,711 5,176 5,711 6,225 6,744 7,498 8,333 9,158 10,095

Mecklenburg 4,066 4,305 4,622 5,091 5,542 5,974 6,381 6,954 7,592 8,490 9,523 10,335 11,460

Guilford 3,864 4,154 4,444 4,920 5,381 5,890 6,179 6,708 7,274 8,204 9,045 9,913 10,943

Forsythe 3,705 4,025 4,243 4,652 5,182 5,654 6,101 6,776 7,459 8,198 8,958 9,912 11,014

Sources: September, 1984, Profile, North Carolina Counties

As more people locate in the County, it is worth noting the
per capita personal income for the County. Table 12 shows that
Pender County's per capita personal incom'e was approximately
$1,764 less than the State average based on 1981 figures. Per
capita income continues to increase, although it is slightly less
than Onslow County to the north and approximately $2,266 less than
New Hanover County to the south of Pender County. With the recent
opening of better access to Wilmington by way of 1-40 and the very
attractive developments on the water near Hampstead, it is likely
that many people working in Wilmington will continue to choose to
live in Pender County because of its many fine qualities and rural
atmosphere. If this trend continues, the per capita income level
for the County may make even larger gains in the future. As
reflected on Table 12 in 1981, New Hanover County per capita
personal income was above the State average by more than $500.00.

Overall, the economic picture for Pender County looks very
bright during the five to ten-year planning period.

2. Existing Land Use

Pender.County is the seventh largest County in North Carolina
with 559,885 acres of land and water area. The County contains
the four municipalities of. Surf City, Topsail Beach, Burgaw, and
Atkinson, with each of these municipalities recently preparing or
planning to prepare their own CAMA Land Use Plan Updates.

In preparing information on existing land use (see existing
Land Use Map) for Pender County, Talbert, Cox & Associates, Inc.,
first obtained copies of the updated Land Use Plan for Topsail
Beach, which was prepared in 1985. The plan reflects existing
land use for single-family residential, duplex, multi-family,
commercial, public, institutional, and vacant land. The Surf City
plan was prepared in 1981 and is currently being updated. The
@981 plan shows existing residential, commercial, and
institutional uses. For those interested in existing land use or
land classification information for the beach area, they are
referred to these two land use plans.

Existing land use for the remaining portion of the County was
obtained from a windshield survey, the use of 1984 Department of
Transportation photos, and a windshield survey for the area
between U.S. 17 and the Intercoastal Waterway using 6601 scale
aerial photos as a base. This more detailed survey was conducted
because of the very rapid growth rate between U.S. 17 and the
Intercoastal Waterway, as discussed in the population section of
this report, and in an effort to determine how extensive this
development is and what impact it might have on the ecosystem
along the Intercoastal Waterway.

Topsail Township

Based on the survey, we found that commercial development
continues to concentrate along U.S. 17 near Poplar Grove Planta-
tion, Hampstead, near Vista, and at the intersection of S.R. 1560
and U.S. 17. In addition to commercial uses along the U.S. 17
corridor, two public schools and a public library are located
between Hampstead and the Belvedere Plantation development.

Single-family residences are located along S.R. 1571 at Scotts
Hill, with water access for boats at Scotts Hill Marina. A large
area between Scotts Hill and Washington Acres is wooded and
undeveloped. Washington'Acres has approximately 75 lots devel-
oped, with most of these developed lots being concentrated on or
near the water. Washington Acres also has a boat landing avail-
able. Deerfield, at the time of the survey in late 1985, had 21
developed lots, with most of those being located on the water.
Development along S.R. 1614 and 1616 between Hampstead and the
Intercoastal Waterway is a combination of conventional homes and
mobile homes.

Both Olde Point and Belvedere Plantation are very attractive
planned communities surrounding golf course facilities. The
development along S.R. 1575 at the waterfront is a relatively
high-density single-family development with rather small lots.
Also, at the waterfront, a marina is being developed as part of
the Belvedere community. Continuing north on U.S. 17, the next
major new development is Topsail Green, which is an attractive
mobile home development around an 18-hole golf course.

State Roads 1561, 1564, and 1578 have a combination of conven-
tional and mobile home development on single lots, with Bay
Harbour, north of S.R. 1561, in the early development stages with
only two developed lots in late 1985.

Virginia Creek Forest, off of S.R. 1560, and Deer Run and
Cedar Landing, near N.C. 50, are large, primarily mobile home
developments. Gabes Point is a larger residential development
with entrance from N.C. 50 at the entrance to the Surf City and
Topsail Beach Bridge. Lots on or near the water are developed,
with many of the interior lots undeveloped.

All of the remaining land areas between U.S. 17 and the Inter-
coastal Waterway are either forested or agricultural areas, uncul-
tivated fields, marsh, or bodies of water.

The remaining portion of Topsail Township between U.S. 17 and
the Topsail Township boundary consists of the Holly Shelter Game-
land, forested and agricultural areas, or strip residential devel-
opment along Highway N.C. 210 or S.R. 1002.

Holly Township

The Holly Township is a very rural part of the County, with
mostly residential and some commercial development being concen-
trated near Maple Hill. Additional residential development is
located along Highway 53, with a large blueberry farm located near
the center of the Township. The remaining land area is forested
areas, open fields, or agricultural land, and the Angola Bay Game
Land at the northern edge of the Township. This Township also
contains the Maple Hill quarry consisting of approximately eleven
acres and extensive forested areas that are subject to forest
fires -as demonstrated by the S2ring 1986 forest fires in the
vicinity.

Union Township

Union Township contains the communities of Penderlea, Willardr
and Watha. Residential and commercial uses are concentrated along
U.S. 117 and along roads leading to or near the communities of
Penderlea, Willard, and Watha. A major new land use is the
recently opened 1-40 thoroughfare, with an access point to Willard
at U.S. 117. The remaining portion of the County is wooded or
agricultural in use.

Burgaw Township

Burgaw, the County's largest municipality, is located near the
center of this Township. Residential, commercial, and institu-
tional land uses are concentrated inside the Town limits of
Burgaw, with strip residential and commercial development being
located along major thoroughfares, such as U.S. 117, N.C. 53,.and
other state roads. 1-40 and N.C. 53 intersect near Burgaw and
provide greatly improved access to Burgaw from the northern and
southern part of the County and to adjacent New Hanover County and
Wilmington. The remaining land area is primarily agricultural and
forested areas, cultivated farmland, or fields,

In addition to the recent opening of 1-40 to Burgaw, the area
is also in the process of opening a new shopping center at the
intersection of U.S. 117 and N.C. 53. once this facility is in
operation, additional land use changes in this area can be antici-
pated, particularly along N.C. 53 between 1-40 and its intersec-
tion with U.S. 117.

Rocky Point, Long Creek, Grady, and Canetuck Townships

These four townships are very rural in character, with res-
idential and some commercial land uses being concentrated along
the highway system, such as N.C. 210, U.S. 117, and U.S. 421. The
Rocky Point Township has N.C. 210 running east and west, with U.S.
117 and 1-40 running north and south. 1-40 has an access point to
Rocky Point at Highway N.C. 210. Each of these four townships is
primarily forested or in cultivated fields and each has exper-
ienced substantial population increases between 1970 and 1980.
This increase in population will probably continue because of
highway access, the relatively short travel time to Wilmington and
New Hanover County, and job opportunities available in that area.
Also, the proposed location of a Cape Fear Technical School faci-
lity and the 1,000 acre + "Lane's Perry" Industrial Park area and-
residential development adjacent to the Cape Fear River on N.C.
210 will affect future land use in the area east of Rocky Point.

Columbia and Caswell Townships

Caswell Township contains the municipality of Atkinson, which
is located on N.C. 53. Again, residential and commercial uses are
concentrated in Atkinson and adjacent to the major thoroughfare in
this area. Columbia Township has most of its commercial land uses
along U.S. 421, which runs north and south between Wilmington and
Clinton to the north. This highway route is the primary access
point between Wilmington and Raleigh and other Piedmont area com-
munities. Like other County townships, the remaining land uses
are primarily forested areas, fields, or cultivated fields.

In summary, Pender County has a very low density of develop-
ment with extensive forested areas and agricultural areas through-
out the County. Most residential and commercial development is
located in municipalities or along highway thoroughfares leading
to municipalities or communities. The fastest growing portion of
the County is Topsail Township, including Topsail Beach, Surf
City, and the area between U.S. 17 and the Intercoastal Waterway.
The major land use change affecting the County and completed since
the 1981 Land Use Plan was prepared has been the completion and
opening of Interstate 1-40.

a. Significant Land Use Compatibility Problems

In the conventional application of the concept, there are few
significant land use compatibility problems in Pender County. A
land compatibility problem is generally identified when two or
more land use types are adjacent to each other and one is somehow
restricted from expansion because of adverse conditions caused by
the other, thus discouraging additional investment in a particular
land use.

The 1981 Land Use Plan did not address significant land use
compatibility problems as such, but concentrated more on the vis-
ual qualities, or impressions, of the County. Because of the
County's primarily rural character, there are no significant land
use compatibility problems, with the possible exception of resi-
dential uses in areas not suitable for septic tank use. In many
cases where problems exist, they are due to older developments
that took place prior to the more restrictive State septic tank
regulations going into effect.

b. Major Problems from Unplanned Development

Again, the 1981 Land Use Plan did not address major problems
from unplanned development. However, based on a November 1985
windshield survey of the County, it was apparent that many
subdivisions have been developed over the years using dirt roads
that will probably not meet today's Department of Transportation
road standards. Although this may not be a major problem now for
the County, as these developments continue to have homes
developed, many of these roads may become maintenance problems
from additional use. If they were not originally constructed to
State DOT standards or have not been accepted for DOT maintenance,
this could become a major long-range problem for the County.

Adoption of subdivision regulations requiring roads to be
built to DOT standards will eliminate this problem in the future.

C. Areas Experiencing or Likely to Experience
Changes in Predominant Land Use

The Topsail Township area, and specifically the Hampstead area
along U.S. 17, is continuing to change from a rural-type land use
to a community. Several new commercial businesses have opened to
serve the tourist traffic and residents of the area. one new bank
has been built in Hampstead and another is planned, and this
growth trend will most likely continue.

The intersection of U.S. 117 and N.C. 53 is changing from a
rural character to a shopping center use. Because this area is
close to Burgaw, at the intersection of two major highways with
access to 1-40, this area will probably continue to experience
major changes in land use during the planning period. Also, the
area between this intersection and the intersection of 1-40 and
N.C. 53 will probably change in predominant land use.

The location of the Takeda Plant on 421 at the Pender-New
Hanover County line may encourage other industry to locate in this
?art of the Countyj which is considered a prime location for
industrial development because of four land road to State Ports,
railroad line access, and potential extension of the Lower Cape
Fear Waterline.

The Lane's Ferry area east of Rocky Point between 1-40 and the
Cape Fear River has recently been changed to a transition class
for approximately 1,000 acres of industrial and resIdential
development. As 1-40 opens to Raleigh and existing good access to
Wilmington, this area will experience substantial growth.

3. Current Plans, Policies, and Regulations

a. List and Summary of Existing Plans

1. Transportation Plan

Pender County does not have an adopted
transportation plan. However, the County
will work with DOT to prepare and adopt such
a plan.

2. Community Facilities Plan

Pender County has a Community Facilities
Plan from the mid-1970's, which needs
updating.

3. Utility Extension Policies

The County presently does not provide County
water or sewer services. 'L_21an has been
prepared that discusses a water system in
the eastern part of the County.

4. Open Space and Recreation Policies

The County has an old recreation and open
space plan, which is in need of updating in
order to be useful for current populations.

5. Prior Land Use Plans and Policies

Pender County has prepared and adopted.CAMA
Land Use Plans in 1976 and 1981. Both of
these plans included background land use
information and policies as required by the
CAUMA regulations and both plans have been
used in the 1986 update.

b. List and Brief Descr iption of Enforcement

1 . Zoning

There is no zoning ordinance at present;
however, the Planning Board is working to
present an adoptable zoning ordinance.

2. Subdivision Regulations

Draft subdivision regulations have been
prepared, but not adopted.

3. Flood Insurance Program

The County came under the Federal Flood
Insurance Program on February 15, 1985.
Inspections are conducted by the County
Inspection Department.

4. Buildinq

The North Carolina Building Code is enforced
by the Pender County Building Inspection
Department.

5. Septic Tanks

Septic tanks are used extensively throughout
Pender County. Enforcement of septic tank
use is administered by the County Health
Department using applicable State
standards.

6. Historic District

Pender County has existing historic and
archaeological sites, but at present has no
Historic District Ordinance.

7. Nuisance

Pender County does not have an existing
Nuisance Ordinance.

8. Dune Protection

Dune protection is regulated through the
Coastal Area Management Act requirements.
Minor permits are administered by the
County's Permit Officer with major permits
being administered by the State Permit
officer.

9. Sedimentation

Pender County adopted a Soil Erosion and
Sediment Control Ordinance effective
January 25, 1975. However, monies were not
budgeted to the Soil and Water Conservation
District to enact the ordinance and the
Department of Natural Resources and
Community Development is managing and
enforcing the ordinance.

10. Environmental ImDact Ordinance

Pender County does not have a local
Environmental Impact Ordinance. Major
projects must meet requirements of State and
Federal environment regulations administered
-by State and Federal agencies.

C. Constraints - Land Suitability

This section of the Pender County Land Use Plan identifies
features of the land or landscape of the County which are or could
pose serious constraints to development. Under land suitability,
these constraints are generally considered under the broad cate-
gories of (1) physical limitations, hazardous (man-made or natur-
al) areas, areas with soil limitations, hazardous slopes, etc.;
(2) fragile areas, example: AECS, complex natural areas, or areas
with cultural (architectural or archaeological) significance; and
(3) areas with resource potential, i.e., productive or prime agri-
cultural or forestlands, or potentially valuable mineral sites
(peat, for example). These elements were not discussed in the
1981 Land Use Plan Update. However, because of the implications
for updating certain policiest they are discussed and presented
below.

1. Physical Limitations for Development

a. Hazard Areas, Including Man-Made Hazards

There are no identified man-made hazard areas.

b. Areas with Soil Limitations

The inherent soil characteristics of the coastal Area, with
high water table elevations and susceptibility to flooding, can be
a major limitation to development. Soils subject to floodinq have
been identified using information provided by the Soil Conserva-
tion Service office in Burgaw. Specifically, the following soils
have been identified as soils that are frequently flooded:
Bohicket silty clay loam; Carteret fine sand, frequently flooded;
Croatan muck; Chewacla loam, frequently flooded; Dorovan muck,
frequently flooded; and Muckalee loam, frequently flooded. These
soils have such severe limitations (flooding, drainage, etc.) that
development for other uses would be impractical and ecologically
unsound.

As di scussed in the 1976 Land Use Plan and is apparent by
looking at the Pender County Detailed Soil Survey, nearly 80% of
the County has high water table conditions which place limitations
on residential development.

Most of the soils in the County have either severe or moderate
limitations for development using septic tanks due to high water
table conditions. The wetness condition, without modifications,
causes wastewater to saturate the soil and pond on the surface,
The deep sandy soil on the beach area and adjacent to some rivers
and streams offer little filtration for wastewater due to the
rapid permeability rate. Developers will need to exercise caution
in developing these areas. Specific conservation soils-are listed
on page 68 of the plan.

Although flooding is a constraint to development, it can be
avoided by building structures above the 100-year flood, if
approved by local, State, and Federal agencies having regulatory
jurisdiction. The County also has two large pocosins in or near
the Angola Bay Game Land and Holly Shelter Game Land, with an
additional low, wet area in the southwestern corner of the County
near the Bladen, Columbus, and Brunswick County lines.

c. Water Supply

(1) Groundwater Recharge Areas

Wetlands regulate water supplies by retaining and delaying
floodwaters and may assist groundwater recharge in some instances
(U.S. E.P.A. 1978; Larson 1981). The U.S. Environmental Protec-
tion Agency (1978) indicates that wetlands aid in recharging
groundwater by channeling water into aquifers. Other sources
indicate that the relationship begween wetlands and groundwater
recharge is not clear (Larson 1981) or is limited to recharge of
surficial aquifers and streams or rivers in many cases (Charles
Daniels, U.S. Geological Survey, Raleigh). Pocosin wetlands in
Pender County that have peat soils and are elevated above the
surrounding terrain do recharge groundwater, but at very slow
rates (Daniel 1981). Pender County has 150,000 acres of pocosins
that could act as recharge areas.

(2) Public Water Supply Watershed

Groundwater comprises the sole source of water supply for both
public and private systems in Pender County. Subsurface water of
reasonable quality and quantity can be found throughout the
County, as the area is underlain by a vast aquifer system from
which potable water can be drawn at various depths. There are
four geologic strata occurring in the aquifer.system underlying
the County.

Pleistocene and recent surficial sands cover most of Pender
County and constitute the principal water source for individual
wells and rural domestic supplies in the County (Von Oesen and
Associates, 1972). In the surficial sands, water usually occurs
under water table conditions within 15 feet of the land surface.
The productivity of this aquifer is limited primarily only by its
thickness; it is recharged directly by rainfall and is easily
subject to contamination. The surficial sands are the only pot-
able water supply between the Cape Fear and Black Rivers, where
the underlying strata contain brackish water.

The Yorktown clays, shell beds, and marls occur on a limited
basis east of the Northeast Cape Fear River. This formation is
absent in the central and western parts of the County and, unlike
the other strata in this area, does not thicken toward the coast
(LeGrand, 1960). The Yorktown is rarely used as a source of water
supply.

The Castle Hayne limestone underlies the surficial sands in
the northeast and southeast sections of the County, outcrops in
the central portion of the County, and forms just a thin layer
between the surficial and Cretaceous sands in the south. The
Castle Hayne is absent from the western part of the County.

The Castle Hayne is not extensively used for water supply in
the County, but is potentially valuable as a large, long-term
supply, especially in the east. In the beach areas, the formation
begins at 351 below msl and its waters occur under artesian condi-
tions; its recharge area would, therefore, be expected to be
located elsewhere and not be vulnerable to contamination from-the
immediate area. In most places where it occurs to the west of the
beaches, however, it begins less than 25' under highly permeable
surficial sands. Under these conditions, a high recharge'rate
could be expected (Wiggins-Rimer and Associates, 1973).

The auality and quantity of water from the Castle Hayne
aquifer vary in different locations. It ranges from hard to very
hard, with a pH of 7-8. In the Surf City-Holly Ridge area, it is
low in chlorides and high in iron locally; and at Holly Ridge,
indications are that a specific capacity of 50-70 gpm/feet of
drawdown can be obtained (Laymon, 1965). Most attempts to obtain
good water from the Castle Hayne in the immediate beach areas have
proved unsuccessful thus far.

The Peedee Cretaceous sands, limestones, and marine clays
occur throughout Pender County. For the most part, west of the
Northeast Cape Fear River, the Peedee immediately underlies the
surficial sands. Toward the east, it occurs beneath, and is in
hydraulic connection with the Castle Hayne. In both cases, the
Peedee is recharged directly by rainfall. In the beach areas,
however, the formation occurs deep and its water is under artesian
conditions. Recharge to the Peedee, therefore, probably does not
take place in the immediate beach areas.

The Peedee furnishes water to many wells drilled west of the
Northeast Cape Fear River; wells in it vary from 50-200 feet deep
and yield up to 300 gpm (Wiggins-Rimer & Associates, 1973). In
the eastern part of the County, it is rarely used for water sup-
ply, as it can be high in chlorides and too deep to be used eco-
nomically.

Subsurface water quality and yields for specific locations in
Pender County can be determined only on an individual case basis
with a test well. Often, water obtained from shallow aquifers

will contain excessive amounts of iron. In some locations, local
people have become accustomed to iron or hydrogen sulfide concen-
trations that others would find objectionable. The quality that
can be expected cansometimes be estimated from the condition of
wells nearby.
In general, satisfactory water can be obtained from some depth
most anywhere in Pender County; and with the numerous existing
water table wells, most of the surficial sands throughout Pender
County function, to a certain degree, as recharge areas.

(3) Well Fields

Pender County does not have a County water system, ther efore,
there are no public well fields. However, wherever recharge takes
place for private wells, there are private well 111-elTs-.

d. 12% Slopes

The soils of Pender County are predominately level or gently
sloping. However, a few areas of the County have slopes of up to
30%. The sandy areas east of US 17 and along the southern portion
of US 421 have slopes up to 6%. In the western part of the
County, along the Black River and back toward US 421, slopes range
from less than 1% up to 12% slopes. The area along the northern
border of Pender has slopes % to 12% alongsthe Rockfish Creek.
The Newhand soil of the outer ank area has lopes ranging up to
30%. All soils that have been cleared have a tendency to erode.
The steeper slop@?s combined with loamy or clayey subsoils erode
faster than sloping @andy soils. However, the sandy soils will
experience wind erosion as well as water erosion if not protected.

2. Fragile Areas

These are areas which could easily be damaged or destroyed by
inappropriate or poorly planned development. There are several
fragile areas in Pender County including those areas identified as
Areas of Environmental Concern (AECs), including coastal wetlands,
estuarine waters, public trust waters, and ocean hazards areas.
The CountX also includes pocosi s which are identified on the
@nt@ s detailed soils report and "404" regulated Wetlanas as
defined by the U.S. Army corps of Engineers.

a. Coastal Wetlands

Coastal wetlands are defined as any salt marsh or other marsh
subject to regular or occasional flooding by tides, including wind
tides (whether or not the tide waters reach the marshland areas
through natural or artificial watercourses), provided this shall
not include hurricane or tropical storm tides. Salt marsh or
other marsh shall be those areas upon which grow some, but not
necessarily all, of the following salt marsh and marsh species:
Smooth or Salt Water Cordqrass (Spartina alternifl.ora): Black
Needlerush (Juncus roemerianus); Glasswort (Sal-icornia spp.);
Salt - Meadow Grass CSpartina Patens); Sea L-a-v-e-n-J-er--(-Limonium
S'PP.); Bulrush (Scirpus spp.); Saw Grass (Cladium Jamaicense); and
Salt Weed Grass (Spartina cynosuroides). Included in th-is-aefini-
tion of wetlands 1'sany contiguous land as the Secretary of NRCD

reasonably deems necessary to affect by any such order in carrying
out the purposes of this Section." (G.S. 113-230[al).

Pender County has jurisdiction over extensive wetland areas,
primarily between the mainland area and adjacent tributaries,
and the beach areas, and adjacent to the Intercoastal Waterway
from Onslow to New Hanover County.

These wetlands along our coast serve as a critical part of the
ecosystem. Estuarine dependent species like fish and shellfish
make up over 90% of the total value of North Carolina's commercial
catch, and therefore, it is necessary that any future adjacent
development be sensitive to this fragile environment and meet
applicable County, state or federal regulations for development.
Low tidal marsh also serves as the first line of defense against
shoreline erosion by dissipating wave action.

b. Sand Dunes

Sand dunes are defined as ridges or mounds of wind-blown
material, usually sand. These occur at Topsail Beach and Surf
City and would be addressed in their CAMA Land Use Plan.

c. Ocean Beaches and Shoreline

Ocean beaches and shoreline are defined as land areas without
vegetation covering and consist of unconsolidated soil material
that extends landward from mean low tide to a point where any one
or combination of the following occur: (1) vegetation, or (2) a
'jistinct change inipredominant soil partical size, or (3) a change
in slope or elevat on which alters the physiographic lan'd form.
Sand deposits of ocean beaches and shorelines represent a
dynamic zone which does not afford long-term'protection for devel-
opment. The nature of tidal action and the force of storms is
such that they cause the beach areas to shift constantly. Lit-
toral drift is a natural phenomenon whereby sand is removed from
beaches by wave action and littoral currents and is de osited upon
a different stretch of the beach; this action also shNts the line
of high tide and low tide. Ocean beaches and shorelines are valu-
able for public and private recreation and are located within
natural hazard areas. Thus, development within these dynamic
zones may result in loss of property and possible loss of life.

Such areas much be preserved to the greatest extent feasible
with opportunity to enjoy the physical, aesthetic, cultural and
recreational qualities of the natpral shorelines of the State.
Ocean beaches and shorelines occur at Topsail Beach and Surf City
and-will be addressed in those plans. Ocean beaches and shore-
lines in the County's jurisdiction include Lea &-Hutaff Islands.

d. Estuarine Waters

Estuarine waters are defined as all water of the Atlantic
Ocean within the boundary of North Carolina and all the waters of

the bays, sounds, rivers and tributaries there to seaward of the
dividing line between coastal fishing waters and inland fishing
waters, as set forth in an agreement adopted by the Wildlife
Resources Commission and the Department of Conservation and Devel-
opment filed with the Secretary of State entitled "Boundary Lines,
North Carolina Commercial Fishing-Inland Fishinq Waters, revised
March 1, 1965" or as it may be subsequently revised by the Legis
lature. In addition to estuarine waters AECs there are adjacent
estuarine shoreline AECs as detined by CAMA requl-ations.

These areas are among the.most productive natural environments
of North Carolina, for they not only support valuable commercial
and sports fisheries, but are also utilized for commercial naviga-
tion, recreation, and aesthetic purposes. Species dependent upon
estuaries, such as menhaden, shrimp, flounder, oysters and CrAs
make up over 90 percent of the total value of North Carolina's
commercial catch, and these species must spend all or some part of
their life cycle in the estuary. The high level of commercial and
sports fisheries and the aesthetic appeal of coastal North
Carolina are dependent upon the protection and sustained quality
of our estuarine areas.

Pender County estuarine waters are located generally between
the mainland side of the Intercoastal Waterway and the Atlantic
Ocean.

e. Public Trust Waters

Public trust waters are defined as all waters of the Atlantic
Ocean and the lands thereunder from the mean water mark to the
seaward limit of State jurisdiction, all natural bodies of water
subject to measurable lunar tides and lands thereunder to the mean
high water mark, all navigable natural bodies of water and lands
thereunder to mean high water mark or ordinary high water mark, as
the case may be, except privately owned lakes to which the public
has no riPt of access, all waters in artificially created bodies*
of water in which exist siVnificant public fishing resources or
other public resources, which are accessible to the public by
navigation from bodies of water in which the public has no rights
of navigation, all waters in artificially created bodies of water
in which the public has acquired rights by prescription, custom,
usage, dedication or any other means. Included in public trust
waters are areas such as waterways and lands under or flowed over
by tidal waters or navigable waters, to which the public may have
rights of access of public trust rights, and areas which the State
of North Carolina may be authorized to preserve, conserve, or
protect under Article XIV, Section 5, of the North Carolina
Constitution. Public trust waters in Pender County include the
Cape Fear River, Northeast Cape Fear River, Black River, and
Morgan, Long, and Turkey Creeks and other naturally flowing
streams. f. Complex Natural Areas
Pender County has three areas that can be considered complex
natural areas, as discussed in the 1981 Land Use Plan.

Angola Bay has extensive tracts of tall evergreen shrub poco-
sins, mixed pond pine pocosin. and pond pine forests. It is
believed to serve as an important wildlife habitat for various
endangered or threatened species.
Holly Shelter is a 100-square mile wilderness which contains
both low and high pocosin wetlands. It serves as a habitat for
bear, alligators, red-cockaded woodpeckers, eastern diamondback
rattlesnakes, et al. There have been seven rare plant species
identified in this area. They include the venus 4ytrap, white
wicky (Kalmia cuneata), roughleaf loosestrife (Lysimachia
asperulaefolia), and others. There is also a 300-acre (sarracenia
flava) pitcherplant bog.
Near Rocky Point, there is a 40-acre, badly cut-over bottom-
land called the Rocky Point Marl Forest. It consists of a mixture
of pine and sweet gum trees and contains rare herbaceous species.
It also contains out-croppings of the Castle-Hayne limestone form-
ation marl. This is the only North Carolina location for the rare
carya myristicaeformis. THei-County Planning Board discussed
possible local regulation ot the complex natural area bU-E-Fe-it
there are adequate tederal and state regulations..
9- Areas That Sustain Remnant Species

Angola Bay, Holly Shelter, and the Rocky Point Marl Forest,
discussed above, sustain remnant species.

h. Unique Geologic Formations
As discussed in the 1981 Land Use Plan, an abandoned rock
quarry near Maple Hill has the best known exposure of the.fossili-
ferous Castle-Hayne limestone formation probably the most signif-
icant geologic layer in eastern North C@rolina due to its water-
carrying capacity in this part of the State.

i. Registered Natural Landmark

Pender County does not have any Registered Natural Landmarks.

j. Wooded Swamps
Wooded swamps and seasonally flooded basins, as defined by the
U.S. Fish and Wildlife Service, Circular 39, "Wetlands of the
United States," occur in Pender County. Based on information from
the Soil Conservation Service, they can be identified by the
hydric soil types and by hydrophytic vegetative cover. It is
estimated that there are 80,000 acres of wooded swamps or season-
ally flooded basins in Pender County. Information on s2ecific
locations can be obtained from the Soil Conservation office and
detailed soils maps.

k. Prime Wildlife Habitat

Game lands, such as Angola and Holly Shelter, provide excel-
lent wildlife habitat, as discussed under complex natural areas.
Also, the extensive marsh areas and larqe bodies of water through-
out the County also provide prime wildlife habitats.

1. Scenic and Prominent High Points

Although the County does not have any designated scenic or
high points, it does have an abundance of scenic areas throughout
the County and particularly along the waterfront areas and marsh
areas. Lea and Hutaff Islands are two specific scenic areas in
the County. M. Archaeologic and Historic Sites

Specific information on the location of archaeological sites
cannot be given in this report at the request of the North
Carolina Department of Cultural Resources. The County presently
has six structures on the National Register, which include the
following (the County does not have any areas with groupinqs of
structures that could be considered for nomination of an historic
district): National Re4ister
Bannerman House, Player vicinity
Belvedere Plantation House (Merrick-Nixon House),
Hampstead vicinity
Moore's Creek National Military Park
Pender County Courthouse, Burgaw
Poplar Grove, Scotts Hill
Sloop Point, Vista

One structure on the study list, as provided by Renee
Gledhill-Early of the Division of Archives and History, include
the following:

Study List

Burgaw Railroad Station and Depot

3. Areas With Resource Potential

a. Productive and Unique Agricultural Lands

The most productive agricultural lands in Pender County are
identified by the Pender Soil and Water Conservation District as
Prime Farmlands and Locally Important Farmlands. This list and
the soils maps of Pender County are available from the District
office (see Appendix).

b. Potentially Valuable Mineral Sites

Based on information from the Department of Natural Resources
and Community Development, Division of Land Resources, Pender
County currently has six mineral resource sites which contain
deposits of limestone.

Acres

Stocks Pit 9.0
Royal State Construction Company

Williams Pit 9.0
Prime Construction, Inc.

Cowan Mine 33.0
East Coast Limestone

Brickhowe Pit 3. 0
Dickerson, Inc.

Rocky Point Quarry 246.0
Martin Marietta

Maple Hill Quarry 11.0
Holly Creek Limestone

C. Publicly-Owned Forests, Parks, Fish, and
Gamelands

Publicly-owned forests include the Angola Game Land and Holly
Shelter Game Land. Moores Creek National Battlefield, located on
Highway 210, is a federally-owned and operated park. Public trust
waters throughout the County provide both recreational boating and
fishing opportunities to residents, as well as visitors to the
area. If public access and facilities in publicly-owned forests,
parks and gamelands would benefit the County, any federal or state
grants for such development will be secured if possible.

d. Prime Farmland

Prime farmlands have been identified by soil type and are
listed in the Soil Conservation Service - USDA office in Burqaw.
There are approximately 98,780 acres of prime farmland in Pender
County. Soil maps are available from the SCS office (see
Appendix.) These 98,780 acres are in varying forms of production
from farmland to timber production.

@31

D. Constraints - Capacity of Community Facilities

1. Existing Water and Sewer

At present, the County does not have a County water or sewer
system. Each of the County's municipalities, with the exception
of Atkinson, has its own water system and details on each are
discussed in their respective CAMA Land Use Plans. Burgaw has a
sewage treatment facility; however, Topsail Beach does not have
central systems and must continue to use individual ntic tanks
for sewage disposal. Surf City has a waste treatment acility
with a 550,000 qpd capacity which should be -a-cTe-quate to serve the
area tor 10 years.
2. Desian Capacity for Water Treatment, Sewage Treatment
Plant, Schoois, Land Fiii, and Primary Roads

As discussed in the previous section, Pender County does not
have a water or sewer system. The details of operation for the
water system and sewer s stem at Lane's FerriE will be declTeRT-In
the tuture by c-o-un-E-y-oTticlals and the Industrial Park Dey-e-1-oper.

Based on information from the Superintendent of Schools,
grades 9-12 are experiencing a decline in student population in
the western part of the County, with an increase in the eastern
part of the County. Three of the schools in the system were con-
structed prior to 1924. The following list reflects design capa-
city and school enrollment in 1974-75, 1981-82, and 1985-86.

Table 13: School Capacity and Utilization
Design EnrollmIent
School Grades Capacity 1974-75 1981-82 1985-86

Topsail Hi h K-3 & 8-12 814 477 559 554
Topsail Mi9dle 4-7 374 270 426 289
Rocky Point K-6 264 203 239 233
Elementary
Long Creek K-6 308 247 271 259
Elementary
Atkinson Junior 6-9 352 242 208 190
West Pender K-5 264 239 220 231
Elementary
Pender High 10-12 946 775 852 11033
Burgaw Elementary K-6 572 586 633 51U
Burgaw Junior 7-9 660 658 584 523
Penderlea Junior 4-9 616 426 397 293
Willard Elementary K-3 149 145
Maple Hill K-6 154 136 133 139
Elementary

TOTAL 5,456 4,409 4,667 4,594
Table 13 shows that many of the schools are under design capa-
city with Pender High being 87 students over desig@ capacity with
Penderlee Junior High being 323 students under design capacity.

Primary roads include 1-40, U.S. 117, U.S. 17, U.S. 421, N.C.
210, and N.C. 53. 1-40 has recently been completed and will be
adequate to serve the area throughout the planning period. The
southern section of U.S. 421 is a four-lane facility and will be
adequate to serve this portion of the County for many years. A
four-lane facility between 1-40 and the beach area of Pender
County would have an additional positive effect on the local
economy by encouraging more tourism. -(See 1986-95 Transportation
Improvements Map in Appendix.)

3. Level of Utilization for Water System, Sewage System,
Schools, and Primary Roads

As discussed earlier, the County does not have a water or
sewer system. County residents must utilize individual wells and
septic tanks.

As reflected in Table 13, the design capacity of school facil-
ities is to accommodate 5,456 students. Presently, the school
system has approximately 4,594 students; however, Pender High
School is above design capacity as of the 1985-86 school year.

Primary roads appear to be adequate for the planning period.
1-40 is presently being under-utilized, but that will change
dramatically upon completion of this interstate highway connecting
southeastern North Carolina with the Piedmont and mountain sec-
tions of the state. U.S. 17 continues to carry substantial traf-
fic, and a U.S. 17 study had proposed widening of the facility;
.however, this proposed widening is not reflected in the NCDOT
Tr ansportation Improvement Plan.

4. Capacity of Community Facilities to Supply Existing
and Anticipated Demand

The planning questionnaire shows that of t he 608 responses,
288 did not want the County to provide County water, 176 did, and
144 were not sure. Based on the present low density of the County
and a relatively slow growth rate, projected individual wells
should be adequate to meet current and anticipated demand.

When citizens were asked about a County sewer system, of the
616 responses, 412 favored a County sewer system, 112 were not
sure, and 92 were against a County sewer system in rapidly growing
areas of the County. Again, because of relatively small popula@-
tion projections and current low density of development, individu-
al septic tanks should be adequate during the planning period.
However, the County may begin to look at alternative ways to serve
the faster growing areas near the more ecologically sensitive
parts of the County.

Overall, schools are currently able to serve present student
populations, with the exception of Pender High School. Student
population appears to be increasing in the eastern part of the
County, and stable or decreasing in the central and western por-
tion of the County. Many of the schools are old and in need of
renovation or replacement. During the planning period, a bond
referendum may be used to generate needed funds to accomplish
school improvements.

E. Estimated Demand

1. Population and Economy

Table 13 reflects continued population growth during the next
10 year planning period. Table 14 reflects projected population
increases by age group, specifically the 40-54 age group is grow-
ing, while the 10-19 and 25-29 age group is projected to decrease
during the next 10 years. As the overall population increases,
the local economy,continues to diversify and more tourists find
access to the area improved by way of 1-40, the local economy
should continue to expand. At present, the economic future for
Pender County looks very bright.

a. Seasonal Population

Seasonal population increases occur primarily along the beach
area of Surf City and Topsail Beach. The 1981 Surf City Land Use
Plan projected a seasonal population by 1990 of 940 people with a
projected permanent population of 500 people by 1990. The 1985
Topsail Beach plan projects an average seasonal population of
10,072 people with an ultimate peak seasonal population of 14,528
using 7.5 persons per dwelling unit during peak vacation periods.

b. Local Objectives Concerning Growth

The primary objective of County officials is to encourage
development and growth that does not adversely affect the
environment or other existing development. The County will
encourage and support growth and development that provides
improved job and housing opportunities for County citizens.

C. Forseeable Social and Economic Change

The County anticipates continued diversification of the County
tax base through the efforts of the Industrial Development Commis-
sion. The County also anticipates continued growth of the tourist
industry which will have a positive affect on many of the County's
citizens by providing expanded job opportunities and support for
existing businesses. The per capita income for County citizens
should continue to rise, having a positive impact on the social
and economic fabric of the County. As noted in Table 14, the
younger age groups, 20-29, are either decreasing or stable. This
age group represents those people forming new families, buying
houses, buying furniture, etc. If this trend continues, there
will be fewer dollars spent in establishing new homes; however,
the older age group, which is expanding, will most likely help
expand the economy as more people retire in Pender County or move
here to retire.

FUTURE POPULATION OF PENDER COUNTY

Based on the North Carolina office of State Budget and Management
projections, Pender County can anticipate continued population
growth during the planning period, as shown on Table 13
28,000 Table 13

27,464
27,000

26,000 10,
25,914

.0e
25,000 10,
.01
24,114
24,000

23,0000

22,107
22,000

21,000

20,000

19,000
18,508
0----__18'149
18,000

17,000

16,000

15,000

1960 1970 1980 1985 1990 1995

Source: 1960, 1970, 1980 Census and 1985 Population Projections by
N.C. Office of State Budget and Management

PENDER COUNTY

POPULATION PROJECTIONS
BY AGE GROUP

TABLE: 14

1985 1990 1995
AGE % of % of % of
GROUP TOTAL COLUMN TOTAL TOTAL COLUMN TOTAL TOTAL COLUMN TOTAL

0-4 1,680 6.97 1,758 6.78 1,762 6.42
5-9 1,804 7.48 1,764 6.81 1,953 7.11
10-14 1,886 7.82 2,003 7.73 1,853 6.75
15-19 1,748 7.25 1,972 7.61 1,817 6.62
20-24 2,052 8.51 1,556 6.00 1,898 6.91
25-29 1,783 7.39 1,951 7.53 1,737 6..32
30-34 1,886 7.82 1,963 7.58 2,110 7.68
35-39 1,787 7.41 2,033 7.85 2,051 7.47
40-44 1,458 6.05 1,872 7.22 2,098 7.64
45-49 1,186 4.92 1,522 5.87 1,893 6.89
50-54 1,192 4.94 1,238 4.78 1,610 5.86
55-59 1,234 5.12 1,294 4.99 1,288 4.69
60-64 1,269 5.26 1,282 4.95 1,314' 4.78
65-69 1,093 4.53 1,275 4.92 1,205 4.39
70-74 881 3.65 1,005 3.88 1,108 4.03
75-79 580 2.41 729 2.81 820 2.99
80-84 358 1.48 421 1.62 559 2.04
85&UP 237 0.98 276 1.07 388 1.41

24,114 25,914 27,464

Source: North Carolina Office of State Budget and Management Based on 70-80 Census
Data Prepared November, 1985

2. Future Land Need

Between 1985 and 1990, the County is projected to grow by
1,800 people. Using the 2.91 persons per household, this repre-
sents an additional 618 households during this five-year period or
approxiamtely 123 new households per year.

Between 1990 and 1995, the County is projected to grow by
1,550 people or 532 households. Because of the County's low den-
sity, and the numerous lots already plotted, there should be no
problem accommodating an additional 1,150 households or more
during the ten-year planning period.

3. Community Facilities Demand

As discussed earlier, individual septic tanks and wells should
be adequate to continue to serve current needs and projected
needs. A new incinerator is being planned for the County, and
this facility should be adequate to serve the County during the
planning period. There is a need for improvements to schools in
the County's school system to accommodate growing population in
certain portions of the County and reduced population in other
areas of the County. Addressing this need is an ongoing responsi-
bility of the Pender County School Board. Adequate roads are of
great importance to the County, and working with NCDOT to improve
the County's road system will remain a high priority.

POLICY STATEMENTS

II. POLICY STATEMENTS

A. Resource Protection

1. Areas of Environmental Concern

Pender County recognizes the primary concern of the Coastal
Management Program is to provide a means for planning sound eco-
nomic growth that is sensitive to the need to protect natural
resources, County officials share this concern for the protection
and sound management of these environmentally sensitive lands and
waters. As listed in the 1981 Land Use Plan, Pender County has
the following Areas of Environmental Concern (AECs):

(1) Coastal Wetlands
(2) Estuarine Waters
(3) Estuarine Shoreline
(4) Public Trust Waters
(5) Inlet Hazard Areas and Ocean Hazards

In terms of developing policies, the estuarine system AECs,
which include coastal wetlands, estuarine waters, estuarine shore-
lines, and public trust areas, will be treated as one uniform
grouping since they are so closely interrelated. Another reason
for grouping these AECs together is the fact that the effective
use of maps to detail exact on-ground location of a particular
area sometimes poses serious limitations.

Pender County's overall policy and management objective for
the estuarine system is "to give the highest priority to their
protection and perpetuate their biological, social, economic, and
aesthetic values and to ensure that development occurring within
these AECs is compatible with natural characteristics so as to
minimize the likelihood of significant loss of private property
and public resources." (15 NCAC 7H. 0203) In accordance with
this overall objective, Pender County will permit those land uses
which conform to the general use standards of the North Carolina
Administrative Code (15 NCAC 7H) for development within the estu-
arine system. Generally, only those uses which are water depend-
ent will be permitted. Specifically, each use permitted in the
estuarine system is discussed below.

a. Coastal Wetlands

The first priority of uses of land in this area will be uses
which promote "conservation" of this sensitive area, with conser-
vation meaning the lack of imposition of irreversible damage to
the wetlands. Generally, uses which require water access and uses
such as utility easements, fishing piers, and docks will be
allowed, but must adhere to use standards of the Coastal Area
Management Act (CAMA: 15 NCAC,7H)., These uses change from time to
time pursuant to current AEC Standards.-

b. Estuarine Waters and Estuarine Shorelines

Pender County officials are very much aware that protection of
the estuarine waters and adjacent estuarine shorelines is of para-
mount importance to fishing, both commercially and for recreation.
Pender County recognizes that certain actions within the estuarine
shoreline, which is defined as the area extending 75 feet landward
of the mean high waterline of the estuarine waters, could possibly
have a substantial effect upon the quality of these waters.

In order to promote the quality of these estuarine waters,
Pender County officials will permit only those uses which are
compatible with both the estuarine shorelines and which protect
the values of the estuarine system. Residential, recreational,
marine-related facilities, and commercial uses may be permitted
within the estuarine shore, provided the develo2er can demonstrate
through an engineer's report, submitEed to the Planning Boardf
that:

1. A substantial chance of pollution occurring from the
development does not exist

2. Development does not have a significant adverse impact
on estuarine resources

3. Development does not significantly interfere with
existing public rights or access to, or use of, navi-
gable waters or public resources
Also, no develo@ment or industry should be approved by the
CounTZ:or State that will lower fne present water quality in the
County.
County officials re uest review of criteria used bi@ State
review agencies by the county Planning Board prior to tHe 9E-atels
final recommendarinn for approvai or denial of a SedimenEFFI-on and
Controi Pian.

C. Public Trust Areas

Pender Count y recognizes that the public has certain estab-
lished rights to certain land and water areas and that these pub-
lic areas also support valuable commercial and aesthetic value.
Pender County will continue to promote the conservation and man-
agement of public trust areas. Appropriate uses include those
which protect public rights for navigation and recreation Proj-
ects which would directly or indirectly block or impair eLsting
navigation channels, increase shoreline erosion, deposit spoils
below mean high tide, cause adverse water circulation patterns,
violate water quality standards, or cause degradation of shellfish
waters shall generally not be allowed. Allowable uses 'shall be
those which do not cause detriment to the physical or biological
functions of public trust areas. Such uses as navigational chan-
nels, drainage ditches, bulkheads to prevent erosion, piers or
docks, and bridges shall be permitted.

d. Inlet Hazard Areas and Ocean Hazard Areas

These areas, if applicable, would be addressed in the Surf
City and Topsail Beach Land Use Plans.

e. Archaeological AEC
Pender County contains 215 known archaeological sites. Pro-
tection ot these sites is the responsibility ot the N.C. Division
ot Archives and History.

4. Hazardous and Fragile Land Areas

a. Freshwater Swamps
Pender County supports the CAMA program and the U.S. Corps of
Engineers 404 program, which has jurisdiction of regulating devel-
opment in designated freshwater swamp areas. All freshwater
swamps do not necessarily come under CAMA requl-ations.

b., Marshes

Development in marsh areas is regulated by the local and State
CAMA Permit Officers in addition to Corps of Engineers regula-
tions. Pender County's policy is to continue support of these
regulations in an effort to protect this sensitive natural envi-
ronment.

C. Maritime Forests

Maritime forests are present in the Topsail Beach and Surf
City area and wouid be covered under their plans.

d. Cultural & Historic Resources

See list of properties on National Register. No regulations
or zoning to protect designated historic structures. The County
feels that their resources are adequately protected by the
Division of Archives & History.

e. Man-Made Hazards

There are no defined man-made hazard areas in the County.
However, military cargoes are transported along Highway 17 and
I-4U.

f. Hurricane & Flood Evacuation Needs

An entire section within the Policy Statement discussions is
included separately for hurricane and flood evacuation, as well as
storm mitigation and post-storm redevelopment policies, beginning
on page 69.

g. Protection of Potable Water Supply

As discussed earlier, Pender County does not have a water
system; however, land uses nearoyoundwater sources are regulated
by the North Carolina Division Environmental Management through
N.C.A.C., Subchapter 2L and Subchapter 2C.
Pender County recognizes the importance of protecting potable
water supplies and, therefore, supports the enforcement of these
regulations if and when applicable.

h. Use of Package Treatment Plants for Sewage
Treatment Disposal

Package treatment plants are not being used'very extensively
in the County. If and when used, these facilities are regulated
through the health department using State guidelines. The County
will support the use of package treatment plants and enforcement
of appropriate regulations in issuing permits for their use as an
alternate means to treat sewage other than individual septic
tanks.

i. Storm Water Runoff from Agriculture, Residential
Development, Ph5-spnate, or Peat ti@ I
Through County support of the Division of Environmental
Management, County officials support efforts to regulate storm
water runoff through applicable State and Federal regulations and
sup2ort the new 575-foot regulation area by the Division of
Environmental Management.
County officials re uest review of criteria used by State
review agencies b ounty Pia@in Board prior to the 97-a-te's
f-in-a-M recommendar*A4"r approvai or denial or a bealmenEUNUI-on and
Control Plan.

j. Marina and Floating Home Development

The development of marinas has significant commercial and
recreational potential in Pender County. Therefore, the County
supports the development of marinas, in compliance with applicable
CAMA regulations, and in waters with the lowest water qualit@ in
existence as of JanuarX 1, 1987. Floatiffg home development has
not taken place in Pender County, and County officials have deter-
mined that floating homes could have an adverse impact on water
quality. Theretore, tloating homes wilr-not be permitted in
Pender county regulated waters.

k. Industrial Impacts on Fragile Areas
Pender County officials will continue to support applicable
State and Federal regulations as they relate to the siting of new
industry, or impact of new industry or environmentally sensitive
areas. Proposed locations of future industry will be reviewed by
the Economic Development Off-i-ce,-@n@in Board or other agency or
board as designated by the County Board of commissioners. The
designa ed review body will make a tormar recommendation EF-EHe
County Commissioners on the appropriateness ot the RroRosed
location. zoning, once adopted, will also be used to direct the
locatioff-of industrial land areas.

1. Development of Sound and Estuarine System Islands
Many of the Sound and estuarine system islands located in
Pender County are located in the planning jurisdiction of Topsail
Beach and Surf City. Islands like Hutaff Island and Lea Island
have been discussed under the Local Land Use Planning Issues sec-
tion of this plan. Refer to Issue #16 on page 61.

B. Resource Production and Management

1. Productive Agricultural Lands (Executive order #96)

Productive Agricultural Lands (Executive Order #96) have been
identified for Pender County as Prime and Locally Important Farm
and Forestland, as shown on the Pender County detail soils maps.
Executive order #96 is supported by the Pender Soil and Water
Conservation District, and a list and soils maps are available at
the District Office. (See Appendix A for list of locally impor-
tant farmland soils and prime farmland soils, as identified by the
Soil Conservation Service.) Prime agricultural lands and water
quality will benefit from newlzzavallabie cost-sharinq for agri-
cultural best management practices.

2. Commercial Forestlands

The County s policy has been and will continue to be support
of this naturai resource through in-kind services to agencies
directly involved with the maintenance and support of this
resource. Specifically, the County will continue to support the
Extension Service, Soil Conservation Service and N. C. Forest
Service in their efforts to encourage CJood forest management. The
County would encoura e efforts to provide farmers financial
incentives to leave lorested buffer areas between productive agri-
cultural areas and estuarine waters. The County will also contin-
ue to support CAMA and Federal Wetland Programs in an effort to
protect fragile areas adjacent to timberlands.

3. Existing and Potential Mineral Production Areas
Pender County p@esently has two large mining operations.
Rocky Point Quarry is a 246-acre site which has been and will
probably continue to be in operation for an extended period.
The East Coast Limestone Mine is 33.0 acres in size. The County
also has potential deposits of peat in several areas of the County
and this could be a future source of energy. other mining sites
are listed on page 31 of this report.
The County will encourage the use of natural resources if
mining operations meet all State and Federal laws and create no
adverse impact on the environment. The County will continue to
support the enforcement of State mining regulations.

4. Commercial and Recreational Fisheries, Including
N-ursery anff-H-H-B-Itat Areas

The fishing industry, both commercial and recreational fish-
ing, hasbeen and continues to be an important part of Pender
County's economy. The County will continue to support recreation-,
al fishing by encouraging @he expansion of tourism and vacation
development. The County ill also support efforts to secure
Economic Development Grants to assist local commercial fishing
operations, processing or any other means to support the local
commercial fishing industry. The County will support efforts to
improve the water quality in Pender county wnicn Will nave a posi-
tive impact on recreational and commercial tishing. Tne county
wi, also work to improve water access through state and tederal
granfs.

5. Off-Road Vehicles

off-road vehicles would be addressed in the Topsail Beach or
Surf City Land Use Plans. off-road vehicle regulations for Lea
and Hutaff Islands would come under the County jurisdiction, and
such policy will be formulated as future access and development of
these islands require. Holly Shelter and Angola Bay Gamelands are
state controlled.

6. Residential and Commercial Land Development

Pender County has been and continues to grow in population.
Current and future policy will be to allow the market place to
establish the need for and location of future residential and
commercial development. Current and future development must meet
all established health department regulations, building code regu-
lations, flood regulations,.and all local, State and Federal
agency requirements. Consideration is now being given to review
and adoption of zoning and subdivisions regulations. Upon adop-
tion, these regulations would constitute County policy on all
future land development and would be used to direct future land
use.

7. Peat and Phosphate_Mining

At present, there are no known phosphate deposits in Pender
County large enough to justify mining. However, peat 'is present
in the County, but due to current energy costs, peat mining does
not appear to be economically feasible on a commercial scale.
Pender County officials will address these two issues and estab-
lish policy if and when activity in one or both of these areas
appears feasible.

C. Economic and Community Development

Issue: Types and Locations of Industries Desired
In 1981, the plan noted the fact that a full-time director'for
the County Industrial Development Commission had been hired. The
plan discussed two potential industrial sites, one near Burgaw at
the proposed 1-40 and N.C. 53 intersection, and the other near
Rocky Point at 1-40 and 210 with good access to the State Ports in
Wilmington and the Piedmont area of North Carolina, upon opening
of 1-40. The objective was to encourage balanced growth, support
existing industries such as manufacturing, forestry and farming
while working to continue the process of diversification of the
economic base.

In preparing the 1986 Land Use Plan Update, it is apparent
that tremendous progress has been made to expand the County's
industrial base since 1976. New facilities like Takeda, Inc.,
located on the Pender/New Hanover County line and others, show how
the County continues to grow. With projected increases in popula-
tion, improved highway access to Wilmington and to Raleigh in the
near future, the County can anticipate continued diversification
of the industrial or manufacturing base. Selecting the right
types of industry to market is the next step for Pender County in
establishing County policy for location and types of industry.
Based on the results of the 1986 Land Use Planning Questionnaire,
272 responding would like to see industry locate near 1-40 at
Willard, Burgaw or Rocky Point, with 210 suggesting that industry
locate along the southern section of 421 near the recently opened
Takeda plant. 124 preferred the area along Highway 53 between
Burgaw and Jacksonville. Very few people, 45, responding to the
questionnaire, wanted to see industrial development along U.S. 17,
the Ocean Highway. Based on the current and projected growth
trends in this area and its use as access to the beach and water-
front development, not having industry in this area could help
preserve its lower density appearance and preserve this area for
tourist related uses.

Policy:

1. Continue to support the new industrial park on N.C. 210
near Rocky Point.

2. Encourage industrial development along US 421.

3. Support local industry, agriculture, forestry and others
in securing federal or State grants to develop or expand
industrial operations to utilize or process locally pro-
duced products.

4. Adopt a zoning ordinance that provides for the orderly
location and development of individual industrial sites or
industrial parks with clustering of industrial uses.

5. Pursue federal or state grants to develop and provide
needed water, sewer, a d other utilities to make indus-
trial development economically feasible.

6. Until adoption of the zoning ordinance, the updated Land
Classification map and Land Use Plan will be the only
planning tool available along with health department
regulations to guide the location of future development.

Issue: Local Commitment to Providing Services to Development

Both the 1976 and 1981 Land Use Plans discussed the fact that
Pender County provided services such as fire protection, schools,
rescue squad, Sheriff's Department, and solid waste facilities.
These earlier plans also acknowledge the fact that neither water
nor sewer systems were available from the County. Specifically,
the 1976 Plan indicated that a "County-wide water and sewer system
is far beyond the financial capability of the County and exceeds
its needs." The 1976 Plan also stated that providing water and
sewer facilities was a municipal function.

The 1981 Plan listed septic tank problems as a #1 priority
problem and a County-wide water system as a # 5 class priority.
The plan discussed the problem of some septic tank failure and
impact on water quality of the estuarine system as well as poten-
tial pollution of the ground water system.

The 1981 Plan policy stated that because of the rural char-
acter and low density of the County, a County-wide water system
was not justified; however, a study of higher density areas was
justified.

The 1981 policy on septic tanks indicated that proper regula-
tion of septic tank placement would prevent ground and surface
water pollution. The. 1981 Plan did not discuss a County sewer
system.

Based on the results of the 1985 land use survey, it is very
apparent that portions of Topsail Township are continuing to
experience rapid growth. For example, S.R. 1575 has approximately
45 residential units located along a 1-mile section of road and
adjacent to the estuarine waters of the intercoastal waterway.
Each of these forty-five units has an individual septic tank and
is very typical of the higher densities being experienced along
the waterway with the potential for pollution of adjacent waters
by septic tanks.

Based on the results of the 1986 LUP questionnaire, the major-
ity of those answering did not want the County to consider pro-
viding a County-wide water system. Specifically, the question
was:

Do you think the County needs to consider providing a County-
wide water system, if financially feasible?

Yes 176 28.9%
No 288 47.4%
Not Sure 144 23.7%

Total 608 100.0%

When citizens were asked if the County should consider
providing sewage treatment facilities in rapidly growing areas to
protect water quality by eliminating the need for septic tank use
for sewage disposal, the County received the following responses:

Yes 412 66.9%
No 92 14.9%
Not Sure 112 18.2%

Total 616 100.0%

Based on the results of the questionnaire, there appears to be
little interest in a County water system with a great deal of
interest in a sewer system to serve rapidly growing areas. Based
on these results, concern for protection of the estuarine system,
ground water resources and the desire to provide services that are
financially feasible and desirable, the County must determine the
appropriate steps to take pertaining to providing water and sewer
services either in the near or distant future.

Policy:

0 Continue to regulate septic tank use using applicable
local and State regulations.

0
Based on increases in population now projected, the desire
to protect the County's natural resources, County policy
will be to begin the planning process for a County sewer
system and water system to serve the rapidly growing areas
of the county with potential for future expansion. The
County will pursue federal or state grants to conduct such
studies. Such studies and implementation will help
protect County water quality by elimination of the
widespread use of septic tanks.

Issue: Commitment to State and Federal Programs, Including
Erosion Control, Public Access, Highway Improvements,
Port Facilities, Dredging, Military Facilities

The County is committed to erosion control programs through
support of the State Sedimentation Control Act.

Public beach access has been and continues to be of great
importance to local officials. County officials will cooperate
with Surf City and Topsail Beach in efforts to secure additional
public beach access for public use and enjoyment. The County will
also pursue waterfront access in other parts of the County.

Highway improvements are considered a major factor in ensuring
the continued economic growth of the area. The 1985-86 North
Carolina Transportation Improvement Plan for Pender County
includes a road improvement near Moores Creek National Park and
bridge improvements throughout the County. Although all of these
improvements are important, none address the need to improve
access from 1-40 to the beach areas of Pender County. When 1-40
is completed between Wilmington and Raleigh, beach areas in Pender
County will have greatly improved access to the Piedmont region.
Tourism is becoming a very important part of Pender County's econ-
omy, but to take full advantage of this expanding market, Pender
County will need to provide better access to Pendek County
beaches. Providing this improved access will be a very high
priority for Pender County during the five- toten-year planning
period by working closely with the Department of Transportation to
improve access. (See current DOT planned highway improvements in
Appendix).

Large port facilities do not presently existin the County,
and any policy pertaining to any proposed facility would be con-
sidered on a case-by-case basis.

The County has and will continue to support efforts to dredge
areas along the Intercoastal Waterway and other major bodies of
water in the County to provide safe access for commercial and
recreational boating. Spoil will be 21aced in approved spoil
areas..

Pender County does not have any military facilities within the
county; therefore, no policy is necessary.

Policy:

Policy statements for all of the issues discussed above have
been given, with the exception of highway improvements. Highway
improvements are a very important part of the economic vitality of
an area, and the County has addressed this issue under the Local
Land Use Planning Issue section of this plan. Refer to page 60,
Issue #15.

Issue: Anticipated Residential Development, Densities,
Locations, Units Per Acre, and Services Necessary to
Support Development

As discussed in earlier sections of the plan, Pender County
had a density of 26.7 people per square mile in 1983. Although
the County continues to grow in population, the County continues
to have a very low density of development. The only multi-family
or higher density developments in the County are located in
Topsail Township, with most of the higher density developments
being located in either Surf City or Topsail Beach. County offi-
cials anticipate other townships in the County remaining primarily
low density and rural in character during the five- to ten-year
planning period. At present, the location, density, and units per
acre are regulated by State health regulations due to the lack of
zoning or subdivision regulations. However, during the planning
process to prepare the 1986 Land Use Plan Update, it became very
apparent that many people in the faster growing areas of the
County want to see more growth management to avoid the mistakes
made in other parts of the state or nation. For this reason,
County officials are considering establishing zoning and subdivi-
sion regulations for use in some or all of the County. Also,
based on the results of the Land Use Plan questionnaire, the fol-
lowing was learned concerning the need for County provision of a
water or sewer system:

1. Do you think the County needs to consider providng a
County-wide water system, if financially feasible?

176- Yes 288 No 144 Not Sure

2. Do you think County officials need to consider providing
sewage treatment facilities in rapidly growing areas to
protect water quality by eliminating the need for septic
tank use for sewage disposal?

412- Yes 92 No 112 Not Sure

Of the 608 responses to Question #1, a clear majority did not
think the County should provide a water system. However, when
asked about the County's providing sewage treatment facilities in
rapidly growing areas to protect water quality by eliminating the
need for septic tanks, a clear majority of those answering the
questionnaire were in favor of the County considering providing
such a system.

In summary, Pender County remains a very rural county, with
primarily low-density development. Density and location of devel-
opment are based on health department requirements with no current
water or sewer system to serve current or future development.

Policy:

Density of development and location of development will be
established upon approval of zoning for the County, as discussed
under the "Zoning" issue. Until zoning is approved, location and
density of development will continue to be based on local, State,
and Federal regulations, as applicable.

Issue: Types of Urban Growth Patterns Desired Redevelopment
of Developed Areas

The 1976 Land Use Plan indicated that Pender County citizens
and County officials desired modest growth near existing develop-
ment. In 1981, the adopted policy was to guide new growth through
the use of zoning and subdivision regulations. However, when
zoning and subdivision regulations were discussed at public meet-
ings many citizens, not favoring zoning and subdivision regula-
tions, expressed those opinions while those in favor of zoning did
not. As discussed in the population section of this plan, Pender
County had a density of 26 persons per square mile in 1983. In
1981, the County was 99.1% rural with very little urban develop-
ment. Because of the County's very low density, urban growth
patterns is not an issue; however, providing the planning tools to
guide growth is very much an issue as indicated during the public
information meetings held in Burgaw and Hampstead during the early
planning stages for this update. The growth pattern issue facing
Pender County is how to direct growth and prevent future problems
through good growth management.

Redevelopment of developed areas is continuing in areas like Maple
Hill through the Community Development Block Grant program. The
County will continue this renewal process.

Policy:

0 The County will prepare a zoning map and ordinance to
provide a growth management tool, as discussed under the
"Zoning" issue section of this plan on page 54.

0 County policy will be to zone areas along U.S. 17 to pro-
vide 'for appropriate uses for this major tourist-oriented
highway corridor.

� County policy will be to determine the best location for
industrial development sites or industrial development
parks and zone areas accordingly.

� The County will continue to work to obtain grants to per-
mit the redevelopment of developed areas in need of such
action.

Issue: Assistance to Channel Maintenance and Beach
Nourishment Projectso, Including Provision of Borrow and Spoil
Areas and Provision of Easements for Work

Channel maintenance of areas such as navigable rivers and
the Atlantic Intracoastal Waterway is very important to Pender
County because of the positive impact on commercial and recrea-
tional boating. Continued maintenance of these waterways is a
high @riority for County officials. Beach nourishment is dis-
cusse in the Topsail Beach and Surf City Plans.

: County officials will continue to work with the Army
Corp nqineers and any other State and Federal agencies to
ensure continued dredging and maintenance of channels and rivers
as needed to keep these facilities open to navigation. Providing
borrow or spoil areas and provision of easements for work will be
determined on a case-by-case basis. However, the County would
prefer that known spoil areas with existinq easements tor such
purpose be used.

Implementation:
1. Maintain contact with cong@essional representatives and
Federal officials as dredging or other channel maintenance
operations are needed.

2. County officials will continue to assist local users of
these facilities as feasible, and as needs and concerns
for dredging or maintenance are brought before local offi-
cials or officials determine that a need for such assis-
tance exists.

Issue/Policy: Energy Facility Siting and Development

At present, Pender County is not aware of any plans to con-
struct an energy facility in the County. County policy to deal
with such a facility will be formulated if such a facility is
proposed.
Issue/Policy: Tourism and Beach and Waterfront Access
Tourism is a major economic benefit for Pender County business
and the Pender County tax base. However, prov@iding public access
to beaches is the responsibility of Surf City and Topsail Beach.
County policy shall be to p@ovide assistance to Topsail Beach and
Surf City in promoting tourism and in providing better beach and
waterfront access. The County will obtain 5rants when possible to
plan for and provide better nea-c-H-5-57ff-waterfront acces.s.

Issue/Policy: Coastal and Estuarine Water Beach Access

As discussed above, providing estuarine water and beach access
for public use is a high priority for County officials. There-
fore, it shall be County policy to make every effort to provide
boating and pedestrian access to the County's estuarine areas and
other water courses. The Count)@ will cooperate with Topsail Beach
and Surf City in .providing beach access@r@euested to provide
assistance and will apRIX for federal and state grants Eo improve
watertront access. Subdivision requiaFi-onswill include IR2rovi
sions for future developments to provide public watertront access.

LOCAL LAND USE PLANNING ISSUES

Local land use planning issues established by the Planning Board
and ranked from #1 through #19, with #1 being the most important
local issue.

1. ISSUE: Subdivision Regulations

The Pender County Planning Board and Planning Director have
been actively working on the preparation of subdivision regula-
tions for the County in 1986. As discussed in the 1981 Land Use
Plan, subdivision regulations, once adopted, will help ensure that
development does not occur haphazardly and that future development
will provide for future tie-in of roads with adjacent property
when appropriate. Also, subdivision regulations will provide
design standards for setbacks, road designs, buffering, etc., and
as also stated in the 1981 plan, subdivision regulations, after
adoption, will become a very important land use management tool
for Pender County. This regulation will also require public
access to the waterfront and funds for purchase of waterfront
access areas by the County.

POLICY:

It is Pender County's policy that subdivision regulations
become an important land use management tool for ensuring future
development is accurately surveyed for recording and engineered
following good planning design principles. County officials will
continue to work for adoption of a County-wide subdivision regula-
tion in the near future.

2. ISSUE: Zoning Ordinance

As discussed in the existing population and economy section
of the plan, Pender County has been and continues to grow in popu-
lation. As the County population grows and more and more homes
and businesses are being developed, it becomes more important that
local officials and County citizens have some means to direct and
influence the placement of different land uses in the County. The
1976 plan discussed the fact that over 80% of the respondents to a
planning questionnaire at that time desired County-wide zoning.
During 1986, the Planning Board and Planning Director have been
directed by the County Commissioners to prepare a County-wide
zoning ordinance for review and adoption.

POLICY:

County policy shall be to prepare and adopt a County-wide
zoning ordinance as soon as possible. Upon adoption, the zoning
ordinance will be used to direct and guide the location of future
land uses and will serve as a land use management tool in the
future.

3. ISSUE: Sound Waters

Policy on sound waters has been addressed under AEC Estuarine
Waters and Estuarine Shorelines on page 40.

4. ISSUE: Solid Waste

Providing for solid waste disposal is a local responsibility
with technical assistance and licensing.from the State. Pender
County has two landfills, with one near Surf City and the other
being located approximately four miles from Burgaw. The County is
presently looking for another suitable landfill site and reviewing
the possible use of an incinerator for waste disposal.

POLICY:

County policy will be to continue to provide adequae sites
and facilities for solid waste disposal.

5. _ISSUE: Economic and Community Development - Types and
Locations of Industries Desired

The 1976 Land Use Plan discussed the lack of job opportunities
in the County other than farming and forestry and the need to
expand other employment opportunities to keep young people in the
area. The 1976 plan also addressed the need for a full-time
industrial development director. The primary concern in 1976 was
the need for diversification of the economic base.

In 1981, the plan noted the fact that a full-time director for
the County Industrial Development Commission had been hired. The
plan discussed two potential industrial sites, one near Burgaw at
the proposed 1-40 and N.C. 53 intersection, and the other near
Rocky Point at 1-40 and 210 with good access to the State Ports in
Wilmington and the Piedmont area of North Carolina, upon opening
of 1-40. The objective was to encourage balanced growth, support
existing industries such as manufacturing, forestry and farming
while working to continue the process of diversification of the
economic base.

In preparing the 1986 Land Use Plan Update, it is apparent
that tremendous progress has been made to expand the counties
industrial base since 1976. New facilities like Takeda, Inc.,
located on the Pender/New Hanover County line and others, show how
the County continues to grow. With projected increases in popula-
tion, improved highway access to Wilmington and to Raleigh in the
near future, the County can anticipate continued diversification
of the industrial and manufacturing base. Selecting the right
types of industry to market is the next step for Pender County in
establishing County policy for location and types of industry.
Based on the results of the 1986 Land Use Planning Questionnaire,

272 responding would like to see industry locate near 1-40 at
Willard, Burgaw or Rocky Point, with 210 suggesting that industry
locate along the southern section of 421 near the recently opened
Takeda plant. 124 preferred the area along Highway 53 between
Burgaw and Jacksonville. Very few people, 45, responding to the
questionnaire, wanted to see industrial development along U.S. 17,
the Ocean Hiqhway. Based on the current and projected growth
trends in.this area and its use as access to the beach and water-
front development, not having industry in this area could help
preserve its lower density appearance and preserve this area for
tourist related uses.

POLICY:

0 Continue to support the new industrial park on N.C. 210
near Rocky Point.
0 Encourage industrial development along N.C. 421.
0 @upport local industry, agriculture, forestry and others
in securing federal or State qrants to develop or expand
industrial operations to utilize or process locally pro-
duced-products.

Adopt a zonin ordinance that provides for the orderly
location and 9evelopment of individual industrial sites or
industrial parks with clustering of industrial uses.

6. ISSUE: Drainage

The 1981 Land Use Plan discussed the widespread occurrence of
drainage problems because of the high groundwater table and nearly
flat topography in the County. In 1986, the County, through the
Water Manag@ment Office and Community Development office, has been
working to improve drainage in the Maple Hill area of the County.
Because drainage problems are a continuing problem, the County
will continue to identify specific drainage problem areas and then
work with other state, federal, or local agencies to resolve the
problems. The recently adopted DEM regulations controlling storm
water runofT-within 575 reet or water courses should algo help
eliminate the adverse impact on the environment.

POLICY:

Pender County will identify areas of the County with drainage
problems and then prepare a water management County drainage plan
for review and approval by federal and state agencies to address
those identified problems. Using programs like the Community
,Development Block Grant program, CAMA Planning & Management grant,
and other programs, the County-wiII continue to work to resolve
these drainage problems when feasible.

7. ISSUE: Tax Mapping
The 1981 Land Use Plan discussed the fact that good tax map7
ping is essential for efficient and equitable property tax admini-
stration. Tax mapping can also serve as an excellent base of

information for land use planning and comprehensive land records
for oublic and private use. Recently, the County Commissioners
have been discussing the desirability of expediting development of
a County-wide tax mapping system.

POLICY:

Establishing a comprehensive County-wide tax mapping system
for Pender County would be in the best interest of Pender County
citizens. County officials will seek technical and financial
assistance to establish a County-wide tax mapping system.

8. ISSUE: Housing

Most of the housing stock in Pender County is either individ-
ual lot/conventional units or mobile homes on individual lots or
in mobile home parks. Since 1981, there have been several higher
density residential developments built at Old Pointe and
Belvedere, but most homes are still either mobile homes or conven-
tional stick-built housing units. The County is involved with the
Section 8 housing program in an effort to provide better housing
for low and moderate income families. The County also has a
County Housing Authority, which works to provide decent, safe, and
sanitary housing for low- and moderate-income families.

POLICY:

It shall continue to be County policy to assist, where pos-
sible, in the provision of decent, safe, and sanitary housing for
County citizens with low and moderate income. The County will
continue to secure state and federal funds to improve or provide
better housing opportunities for low and moderate income citizens.

9. ISSUE: Development Pressure on Streams and Intracoastal
i@aterway

As projected in the 1981 Land Use Plan, new developments
continue-to be developed along the Intracoastal Waterway and along
streams and rivers throughout the County. Areas like Bay Harbor,
Virginia Creek Forest, Gabes Point, Cedar Landing, and Deer Run
all appear to be new developments with many lots remaining to be
sold or built on. This development pressure will most likely
continue because of the desirability of both the stream area and
Intracoastal Waterway area for residential development.

With completion of the County's detail soils report, the
county has designated soils subject to flooding in the conserva-
tion classification on the Land Classification Map. Also, the
Federal Flood Insurance Program helps regulate the location of
development in flood-prone areas.

POLICY:

Pender County anticipates continued development pressure in
areas adjacent to County streams and the Intracoastal Waterway.
It shall continue to be County policy to permit development near
streams and the Intracoastal Waterway provided such development
does not adversely affect or endanger the environment and meets
all local, state, and federal regulations.

10i ISSUE: Localized Development Conflicts

Like other coastal North Carolina counties, one of the pri-
mary development conflicts is the desirability of land adjacent to
the estuarine system for residential or marina development and the
impact that development can have on this environmentally sensitive
area. Another conflict or potential conflict is the mixing of
land uses due to the present lack of zoning in the County. At
present,, marina development and regulation of waterfront develop-
ment is affected by state and federal regulations and local health
department requirements. Upon approval of a zoning ordinance and
map, the County will then have a better means to direct and guide
future development to prevent conflicts in the future.

POLICY: It will be the County's policy to adopt a County-
wide zoning ordinance and map to assist in eliminating development
conflicts in the future.

11. ISSUE: Waterway Access

The 1981 Land Use Plan discussed the fact that continued

potential of reducing the future opportunity for public access to
private development along the County's coastal waters had the

public waters. Presently, the County has public boat launching
facilities provided by the N.C. Wildlife Resources Commission at
the following locations: (1) end of White Stocking, SR 1512;
(2) Highway 11, Black River Bridge; and (3) Shaw Highway, SR 1520.

In an effort to continue to have more and better public
access to the water, the County will continue to work with citi-
zens, state and federal agencies, and any other interested groups
in providing future public access to the water.

POLICY:

It shall be Pender County's policy to work with local groups
and state and federal agencies to secure water access points
throughout the County. The County will consider any state or
federal financial assistance that may be available to increase the
inventory'of public water access points.

12. ISSUE: Fishing Industry

Commercial fishing has been, and continues to be, an impor-
tant part of Pender County's economy and way of life. Recreation-
al fishing provides an important leisure time activity for County
residents and a major activity enjoyed by tourists visitinq the
area. County officials know that to continue to retain this
renewable natural resource, it is important to protect nursery
areas like Old Topsail Creek, Virginia Creek, Bishops Creek, and
others so indigenous fish species will be able to spawn and multi-
ply, thus improving the conditions needed for successful commer-
cial and recreational fishing. (See Table 9, "Pounds
Caught/Value.")

POLICY:

The County will continue to support the CAMA program and
other state and federal programs that protect water quality to
ensure the continuation of nursery areas in Pender County.

13. ISSUE: Inter-County Cooperation

Many, if not all, of the 20 coastal---counties involved in the
North Carolina Coastal Management Program show some of the same
land use related problems, such as development pressure in areas
adjacent to environmentally sensitive areas. Economic development
op ortunities are also of great importance to coastal counties
lNe Pender County, but economic development that does not
adversely affect the environment,must.be a top priority. For
example, an area that can have a very positive effect on the local
economy while being designed to have minimal effect on the envi-
ronment would be improved access from 1-40 to the beach areas of
Surf City and Topsail Beach. This improved access would have a
better chance for approval with the cooperative efforts of the
County and beach communities. Improved east-west road access
would also have a better chance for implementation in the State's
Transportation Improvement Plan (TIP) if the County, Atkinson,
Burgaw, Surt City, and Topsail-B-e-a-c-7-could agree on the best east-
west route and then support efforts to have that route included in
the State's long-range plans. (See appendix for. list of projects
currently included in the State's TIP for Pender County.)

POLICY:

It shall be County policy to consult and cooperate with other
area local governments to identify and solve common problems.

14. ISSUE: Loss of Productive Agricultural Lands, Timber
Production and Mana5ement, and Truck Farm!nT-and
MarkeE-inq ot Products

As discussed in the economic section of this report, agri-
culture and timber production have been, and continue to be, a
very important part of the Pender County economy. Production and
management of productive agricultural lands and management of
productive forested areas will be assisted by the fact that Pender

County, through the Soil Conservation Office, has identified the
most productive agricultural land and prime farmland following
completion of the detail soil survey of the County. With this new
information, the County now has the ability to use this data as
part of the zoning ordinance that is currently being prepared.
Specifically, these productive agricultural areas could be placed
in an agricultural zone to help protect this natural resource.

POLICY:

The County will use the Soil Conservation Service soil types
for productive agricultural lands in preparing the County's zoning
ordinance. The County will continue to support and encourage good
timber production and management practices and, as stated under
the Economic Policy, Section 5, will continue to suPport local
industryt agriculture, forestry, and others in securing federal
and state grants to develop or expand industrial operations to
utilize or process locally produced products, be it agricultural
oroducts or timber products.

15. ISSUE: Transportation - 1-40, US 17, NC 421, and Improved
Ta-st-West connection

As discussed under the section headed "Commitment to State
and Federal Programs," highway improvements are considered a major
factor in ensuring the continued economic growth of the area. The
1985-86 North Carolina Transportation Improvement Plan for Pender
County includes a road improvement near Moores Creek National Park
and bridge improvements throughout the County. Although all of
these improvements are important, none address the need to improve
access from 1-40 to the beach areas of Pender County, widening of
US 17, widening of NC 421, and improved east-west access. When
1-40 is completed between Wilmington and Raleigh, beach areas in
Onslow, Pender, and New Hanover Counties will have greatly
improved access to the Piedmont region, with New Hanover County
having the best access because of I-40's termination in Wilming-
ton, with a short distance to Wrightsville Beach. Tourism is
becoming a very important part of Pender County's economy, but t
take full advantage of this expanding market, Pender County will
:0

need to provide better access to Pender County beaches. Providing
this improved access will be a very high priority for Pender
County during the five- to ten-year planning period.

Like improved access to the beach area from 1-40, the widen-
ing of US 17 and four-laning the remaining portion of NC 421 would
greatly improve the efficiency of these major thoroughfares.
Improvements to either NC 53 or NC 210 would provide needed
improved east-west access through the County, which has been a
concern for some time, as discussed in the 1981 plan.

POLICY:

County policy will be to work with the Department of Trans-
portation to establish a four-lane thoroughfare between 1-40 and

Surf City and Topsail Beach. The. County will continue to work for
the improvement of NC 421 and US 17 as four-lane facilities and
for the improvement of NC 53 and NC 210 to improve the east-west
connection of the County.

16. ISSUE: Lea Island/Hutaff Island

Lea Island and Hutaff Island have access only by boat.
Because of the sensitive nature of these two islands, the County
would prefer that any future development in these areas, if
permitted by CAMA, Corps of Engineers, and.County and Local Permit
Office regulations,'be of lower intensity development.

POLICY:

The County is aware that both Lea Island and Hutaff Island
are located in an environmentally sensitive area and, therefore,
would only encourage lower density development in'the future if
all local, state, and federal regulations would permit such
development; as permitted by the zoning ordinance once adopted.

17. ISSUE: Water System

Both the 1976 and 1981 Land Use Plans acknowledge the fact
that neither water nor sewer systems were available from the
County. Specifically, the 1976 plan indicated that a "County-wide
water and sewer system is far beyond the financial capability of
the County and exceeds its needs." The 1976 plan also stated that
providing water and sewer facilities was a municipal function.

The 1981 plan listed septic tank problems as a #1 priority
problem and a County-wide water system as a #5 class priority.
The plan discussed the problem of some septic tank failure and
impact on water quality of the estuarine system, as well as
potential pollution of the groundwater system.

The 1981 plan policy stated that because of the rural char-
acter and low density of the County, a County-wide water system
was not justified; however, a study of higher density areas was
justified.

Based on the results of the 1986 LUP questionnaire, the major-
ity of those answering did not want the County to consider pro-
viding a County-wide water system. Specifically, the question
was:

Do you think the County needs to consider providing a County-
wide water system, if financially feasible?

Yes 176 28.9%
No 288- 47.4%
Not Sure 144 23.7%
Total 608 100.0%

Based on the results of the questionnaire, there appears to be
little interest in a County water system. Based on these results,
concern for protection of the estuarine system, groundwater
resources, and the desire to provide services that are financially
feasible and desirable, the County must determine the appropriate
steps to take pertaining to providing water services either in the
near or distant future. However, if County officials determine
that it would be in the County's best interest to develop a water
system, the County will pursue federal & state grants to develop
such a system. However, if County officials determine that it
7;_
would be in the County's est interest to develop a water system,
the County will pursue federal and state grants to develop such a
system.

POLICY:

As outlined in the section headed, "Commitment to provide
Services to Development," page 47, County policy will be to begin
the planning process for a County water system to serve the rapid-
ly growing areas of the County with potential for future expan-
sion.

18. ISSUE: Rural Crime

"Crime Watch" programs are being used in communities through-
out the County in an effort to help the Sheriff's Department
patrol the County. Citizens of the County will be encouraged to
become involved in the Crime Watch program, if they are not
already.

POLICY:

It shall continue to be County policy to provide protection
for County citizens and others through the County Sheriff's
Department. Citizens not involved in the "Crime Watch" program
will be encouraged to become involved through educational programs
conducted by the Sheriff's Department.

19. ISSUE: Aesthetics .

County officials are aware that a clean community projects a
positive image for industry, new business, and visitors to the
area. The County also knows projecting that positive image takes
hard work and dedication of County citizens interested in having' a
cleaner, more attractive county.

POLICY:

The County will review and discuss alternative methods to
establish an ongoing "clean community committee or commission" to
work toward the goal of improving the visual quality of Pender
County. The County will also use zoning regulations to require
screening of storage areas and to control the location of bill-
boards along major scenic highway routes.

SECTION III: LAND CLASSIFICATION SYSTEM

The land classification system provides a uniform way of
looking at how the planned use of land interacts with environmen-
tally sensitive areas and with the development of a County or
Town. It is not a strict regulatory device in the sense of a
zoning ordinance or zoning map. It represents more of a tool to
understand relationships between various land use categories and
how these relationships help shape local policy. Particular
attention is focused on how intensely land is utilized and the
level of services required to support that intensity. Land
classification is also useful in the staging of services necessary
to support development. The regulations for the Coastal Area
Management Act state:

"The land classification system provides a framework to be
used by local governments to identify the future use of all
lands. The designation of land classes allows the local
government to illustrate their policy statements as to where
and to what,density they want growth to occur, and where they
want to conserve natural and cultural resources by guiding
growth." (7B.0204) (b)

There are five general land use classifications under CAMA:
Developed; Transition; Community; Rural; and Conservation. In
applying the land classification system, each local government
should.give careful consideration to how, where and when certain
types of, and intensity of "development," will be either encourag-
ed or discouraged. A brief summary of the five broad classifica-
tions, as contained in the CAMA rules, might illustrate this. For
example:

"Urban land uses and higher intensity uses which presently
require the traditional urban services should be directed to
lands classified developed. Areas developing or anticipated
to develop at urban densities which will eventually require
urban services should be directed to lands classified transi-
tion. Low density development in settlements which will not
require sewer services should be directed to areas classified
as community. Agriculture, forestry, mineral extraction and
other similar low intensity uses and very low density, dis-
persed residential uses should be directed to lands classi-
fied rural. Generally, public or private water or sewer
systems will not be provided in areas classified rural as an
incentive for intense development." (7B.0204) (c)

The purpose of the conservation class is to "provide for the
effective long-term management and protection of significant,
limited, or irreplaceable areas." Consequently, urban services
(whether public or private) should not be provided to those areas
as an incentive to "stimulate" more intense development. Each of
these classes must be represented on a Land Classification Map.

The five land classifications and Land Classification Map are
therefore intended to serve as a visual reflection of the policies
previously stated in Section II. Ideally, the map which depicts
these classifications should be as flexible as the policies that
guide them. (See attached Land Classification Map)

The five land use classifications, as they will be applied in
Pender County, are identified and defined below.

A. DEVELOPED

The developed class of land use provides for continued inten-
sive development and redevelopment of existing cities or munici-
palities. Areas to be classified as "developed" include lands
currently developed for urban purposes or approaching a density of
500 dwellings per square mile that are provided with usual munici-
pal or public services, police and fire protection. In other
words, such areas must currently be "urban" in character, i.e.
have mixed land uses such as residential, commercial, industrial
and institutional, or other uses at high to medium densities. For
purposes of the Pender County Land Use Plan, the municipalities of
Atkinson, Burgaw, Surf City, and Topsail Beach are considered
developed.

B. TRANSITION

Transition land is classified as those lands providing for
future intensive urban development within the ensuing ten years on
lands that are most suitable and that will be scheduled for provi-
sion of necessary public utilities and services. They may also
provide for additional growth when additional lands in the devel-
oped class are not available or when they are severely limited for
development.

Lands classified "transition" may include:

1. lands currently having urban services;
2. lands necessary to accommodate the population and econo-
mic growth anticipated within the planning jurisdiction
over the next five to ten years;
3. areas which are in, or will be in, a "transition" state
of development, i.e. going from a lower intensity to a
higher intensity, of uses and will eventually require
urban services.

Transition lands must further:

1. be served or be readily served by public water, sewer,
and other urban services including public streets, and
2. be generally free of physical limitations for urban
development.

The "transition" class should not include:

1. lands of high potential for agriculture, forestry, or
mineral extraction, or land falling within extensive
rural areas being managed commercially for these uses,
when other lands are available;
2. lands where urban development might result in major or
irreversible damage to important environmental, scienti-
fic, or scenic values, cultural resources, or;
3. land where urban development might result in damage to
natural systems or processes of more than local concern;
and
4. lands where development will result in undue risk to life
or property from natural hazards or existing land uses.

The relationship between the "developed and transition" clas-
sification is important in predominantly rural counties like
Pender. The first class is meant to define the already developed
areas and/or those areas where public investment decisions will be
required to provide the necessary urban services. These become
important areas to closely monitor. The Coastal Resources Commis-
sion has further clarified this relationship as described below:

The Developed and Transition classes should be the only lands
under active consideration by the County or municipality for
intensive urban development requiring urban services. The area
within these classes is where detailed local land use and public
investment planning will occur. State and Federal expenditures on
projects associated with urban development (water, sewer, urban
street systems, etc.) will be guided to these areas. Large
amounts of vacant land suitable for urban development within the
Developed class should be taken into account when calculating the
amount of additional lands needed to accommodate projected
growth.

Transition areas include the following: along both sides of
NC 53 between the Burgaw extraterritorial limits and 1-40; the
land area around the I-40/U.S. 117 interchange east of Willard; an
area with high industrial potential between Turkey Creek and the
Cape Fear River at U.S. 117/NC 133; north along both sides of
U.S. 117 up to Rocky Point; along either side of U.S. 421 from its
intersection with NC 210 south to the New Hanover County line;
and, also, both sides of NC 210 from U.S. 117 crossing 1-40, east-
ward to the Northeast Cape Fear River have been designated transi-
tion.

For areas where "transition" is located on both sides of a
thoroughfare, the classification shall extend to 1,000-feet on
either side of the road right-of-way.

The Hampstead area has experienced significant growth since
the 1981 CAMA plan was completed, and this area will most likely
continue to grow. Portions of the Hampstead area has been desig-
nated as transition. Both sides of NC 210 at the entrance to Surf
City and extending approximately one-half mile along NC 210-has
been classified transition. Also, the waterfront area along NC
1538 west of NC 210 near the Surf City Bridge has been designated
transition. This transition area would not include any waterfront
property classified as conservation, and the final determination
of any potential conservation areas would be made based on a field
inspection by the appropriate regulatory agency.

C. COMMUNITY

The "Community" classification provides for clustered land
uses to meet housing, shopping, employment, and public service
needs within the rural areas of the County. It is usually charac-
terized by a small grouping of mixed land uses which are suitable
and appropriate for small clusters of rural development not
requiring municipal sewer service.

The "Community" classification includes Penderlea, Willard,
Currie, Scotts Hill, Maple Hill, Washington Acres, Deerfield, and
the Watts Landing area.

D. RURAL

The "Rural" class provides for agriculture and forest manage-
ment, mineral extraction and other low intensity uses on large
sites including residences where urban services are not required
and where natural resources will not be unduly impaired. These
are lands identified as appropriate locations for resource manage-
ment and allied uses; land with high potential for agriculture,
forestry or mineral extraction; lands with one or more limitations
that would make development costly and hazardous; and land con-
taining irreplaceable, limited, or siqnificant natural, recrea-
tional or scenic resources not otherwise classified.

The majority of land within Pender County falls within the
"Rural" classification. This classification is very important in
Pender County, because of the economic importance of agriculture
and forestry activities.

Addition 1: The majority of land within Pender County falls with-
in the "Rural" classification. This classification is very impor-
tant in the County because of the economic importance of agricul-
ture and forestry activities. In addition to agriculture and
forestry, there may be areas within the "Rural" classification
suitable for industry. Decisions as to an area or site being
suitable would depend upon criteria developed by the County, and
state/federal regulation. Preliminary investigations by the
County's Economic and Planning offices will determine if a pro-
posed industry meets this criteria and reaulations. If not,
recommendation for the needed corrections-would be made. These
investigative reports will be presented to the Pender County
Commissioners for a decision following a formal notice of public
hearing to be advertised at least two weeks prior to the hearing.

The "Rural" classification includes all of the County not
designated "community," "conservation," "transition," or the four
municipalities of Atkinson, Burgaw, Surf City, and Topsail Beach.

E. CONSERVATION

The final land use category, according to CAMA guidelines, is
the "Conservation" class, which provides for effective long-term

management of significant, limited, or irreplaceable resources.
However, beyond the presence of AECs, other areas within the
County, because of natural, cultural, recreational, productive, or
scenic value, may also require similar "effective long-term man-
agement." Examples could include major wetlands (other than sta-
tutorily defined coastal wetlands); essentially undeveloped shore-
lines that are unique, fragile, or hazardous for development;
lands that provide necessary habitat conditions (especially for
remnant species) or publicly-owned water supply watersheds and
acquifers.

The designation "Conservation" should not be misconstrued to
imply "non-use," but does imply a need for careful and cautious
management of any allowable use. For example, within a "conserva-
tion" area, there may be high ground areas which are suitable for
"development," in which case development should be allowed to take
place under carefully managed conditions. The term "preserva-
tion," on the other hand, implies total restriction on all uses.
Within lands designated Conservation, each proposal, or applica-
tion for any "developed" use will be reviewed on a case-by-case
basis.

AEC areas, soils subject to flooding, and large natural
areas, such as Anqola Bay Gameland and Holly Shelter Gameland, are
included in the conservation class. The overall premise for the
designation "Conservation" in Pender County will be to strike the
delicate balance between careful long-term management of sensitive
or valuable resources and the freedom of landowners to utilize
their properties.

Since, as stated previously, "Conservation" does not imply "Pre-
servation," specific allowable-uses in the Conservation class
shall include:

1. Drainage: Adequate drainage as permitted by County,
State, and Federal regulations.

2. Low density residential development in accordance with
future zoning ordinance, and as allowed by County, State,
and Federal regulatory aqencies. However, water and/or
sewer services will not be extended to such a residential

area.

3. Water-oriented uses such as piers and docks, and bulk-
heads, if they are shown not to cause detriment to estu-
arine waters and riverine waters or the Conservation
lands and if permitted by County, State, and Federal
regulations.

4. Necessary utility service lines, such as water, sewer,
electrical, natural gas, etc., when it is demonstrated
that the ecological system of the Conservation area will
not be adversely altered.

5. Roadways, when construction of roadways can be conducted
without adversely altering the ecological system, and in
compliance with existing federal, state, and local regu-
lations.

6. Timber harvesting.

7. Barge landings.

8. Marinas (in compliance with Federal, State, and County
Regulations).

The conservation areas of Pender County include all soils in
the County that are subject to flooding,* as designated by the
Soil Conservation Service in Burgaw using the recently completed
detail soils survey maps of the County, or as defined by the
Federal Emergency Management Agency, specifically, land area
susceptible to being inundated by water from any source which is a
general and temporary condition of partial or complete inundation
of normally dry land areas from the overflow of inland or tidal
waters. In addition to soil types subject to flooding, the
"Conservation" classification includes all CAMA-regulated areas of
environmental concern, as discussed in the 1986 Land Use Plan and
Flood Insurance Plan, as applicable to Pender County.

In conjunction with the Policy Statements section of this
Plan, each application for a "developed" use in the Conservation
classification, shall be brought before the County Planning Board
and reviewed on a case-by-case basis prior to approval. The
County Planning Board may recommend modification of the Proposal.

The development proposal shall include the location of the
site on a detail soils map of the area, which can be obtained from
the Soil Conservation Service office in the County Administrative
Building in Burgaw, North Carolina.

*Specific soil types included in conservation area are:

Bohicket Silty Clay Loam
Carteret Fine Sand
Chewacla Loam
Croatan Muck
Dorovan Muck
Muckalee Loam

Storm Hazard Mitigation, Post-Disaster Recovery, and
Evacuation Plans

The entire North Carolina Coastal region, including Pender
County, faces strong threats,of damage each year from hurricanes,
Northeasters, or other major storms. For nearly 20 years, there
was a marked "slowdown", or "lull", in hurricane activity along
the State's coast. Predictions were that a major storm could
strike the State at any time during the hurricane season, since
such a storm was "long overdue". And then, in September, 1984,
the "waiting" ended. Hurricane Diana, with some of the strongest
sustained winds ever recorded, rammed into the Southeast coast
near Wilmington. Although damage was extensive, the potential
destruction was much greater and the damage would have been great-
ly escalated had the storm hit land at a slightly different loca-
tion. This time the State and the Southeast coastal area were
relatively fortunate. Next time the coastal area may not be as
fortunate.

Notice the excerpt below from, Before the Storm: Managing
Development to Reduce Hurricane Damages, McElyea, Brower, &'
Godschalk, 1982, concerning development in coastal communities:

.. At the same time, development along the coast has grown
by leaps and bounds. Unless this development is wisely lo-
cated and built to withstand hurricane forces, North
Carolina's coastal communities will face massive destruction.
Local governments, as the primary protectors of the public
health, safety, and general welfare, have a responsibility to
reduce the risk of property damages and loss of life attend-
ing coastal development. They also have a responsibility to
ensure that reconstruction following a major storm can occur
quickly and leave the community safer from disaster in the
future. These are the goals of a hazard mitigation and
reconstruction planning." (p.iii)

The purpose of this section of the 1986 CAMA Land Use Plan
Update is to assist Pender County in managing development in
potentially hazardous areas, in cooperation with the communities
of Topsail Beach and Surf City, by establishing hazard mitigation
policies to reduce the risks associated with future hurricanes.
By developing post-disaster reconstruction/recovery policies, and
reviewing the adequacy of current evacuation plans, the County
will hopefully reduce the risks associated with future hurricanes.

"Hazard mitigation includes any activity which reduces
the probability that a disaster will occur or minimizes the
damage caused by a disaster. Hazard mitigation includes not
only managing development, in cooperation with the two coast-
al communities in Pender County, but also evacuation planning
and other measures to reduce losses of life and property.
Reconstruction involves the full range of repair activities

in the wake of a disaster which seek to return the community
to a "normal" level of operations." (McElyea, Brower, &
Godschalk, p.iii).

With this introduction, the following pages will present the
storm hazard mitigation and post-disaster recovery policies, and
review of the existing evacuation plan along with appropriate
discussions and maps.

1. Storm Hazard Mitigation: Discussion

Hazard mitigation, or actions taken to reduce the probability
or impact of a disaster could involve a number of activities or
policy decisions. The starting point, however, is to identify the
types of hazards (including the relative severity and magnitude of
risks), and the extent of development (including residential,
commercial, etc.) located in storm hazard areas.

Hurricanes are extremely powerful, often unpredictable forces
of nature. The two most severe effects are fatalities and pro-
perty damage, which are usually the result of four causes: high
winds, flooding, wave action, and erosion, each of which are dis-
cussed briefly below:

a. High Winds

High winds are the major determinants of a hurricane, by
definition, i.e., a tropical disturbance with sustained winds of
at least 73 miles per hour. Extreme hurricanes can have winds of
up to 165 miles per hour, with gusts up to 200 miles per hour.
These winds circulate around the center or "eye" of the storm.
Although the friction or impact of the winds hitting land from the
water causes some dissipation of the full force, there is still a
tremendous amount of energy left to cause damage to buildings,
overturn mobile homes, down trees and powerlines, and destroy
crops. Also, tornadoes can often be spawned by hurricane wind
patterns. Wind stress is an important consideration in storm
hazard mitigation planning. Because of a hurricane's size and
power, it is possible that all of Pender County would be subject
to the same wind velocity in the event of a storm.

b. Flooding

Flooding, on the other hand, may not affect all areas with
equal force. The excessive amounts of rainfall and the "storm
surge" which often accompany hurricanes can cause massive coastal
and riverine flooding causing excessive property damage and deaths
by drownings. (More deaths are caused by drowning than any other
cause in hurricanes.) Flooding is particularly a problem in ocean
coastal areas because of the storm surge and low-lying areas.
However, flooding can cause extensive damage in inland areas also,
since many coastal areas have low elevations and are located in
high hazard or "Zone A" flood areas according to the Federal

Emergen y Management Agency Maps. The County Planning Department
has chosen to use the detail soil maps of the County, prepared for
the Soil Conservation Service, to designate soils subject to
flooding, and this has been reflected on the Land Classification
Map as part of the conservation area.

Flooding can not only cause damage to buildings, but salt-
water flooding can cause serious damage to croplands. Considera-
tion of potential flood damage is important to Pender County's
efforts to develop storm mitigation policies.

c. Wave Action

Damage from wave action is connected very closely to the
storm surge, i.e., wind-driven water with high waves moving to
vulnerable shoreline areas. Areas most likely to be affected are
ocean hazard areas and estuarine shoreline areas. There are
extensive estuarine shoreline areas (75 feet inland from the mean
high water mark of estuarine waters) in the County and ocean
hazard areas along the outer banks. Wave action damage would have
the most significant impact along the Atlantic Ocean beach front
and Sound shoreline. As the existing land use map and the Flood
Hazard Boundary Map show, there is a significant amount of resi-
dential development in or near the estuarine shoreline area and
developed continuing at Topsail Beach and Surf City. Wave action
can cause erosion as well as push possible flood waters to areas
not reached by the storm surge itself. The estuarine shoreline
along Pender County's riverine shores are sufficiently inland from
an open coast so that the wave energy is dispersed and diffracted,
mainly by the proximity to forested areas.

d. Erosion

The final major consideration in storm hazard mitigation is
severe erosion, caused by high winds, high water, and heavy wave
action. Again, in Pender County, the area most susceptible to
storm-related erosion is the estuarine shoreline AEC along the
Sound and the ocean front areas of Topsail Beach and Surf City.
This is essentially the same area potentially affected by the
action of damaging waves and described in part c, above. Shore-
line erosion could lead to loss of property through portions of
waterfront lots being washed into the Sound and ocean or even
actual structural damage to buildings. Erosion potential is an
important factor to consider in developing storm hazard mitigation
policies.

e. Summary: Storm Hazard Mitigation Considerations

In summary, all four of the major damaging forces of a hurri-
cane, i.e., high winds, flooding, wave action, and shoreline ero-
sion could have a potential impact upon Pender County in the event
of a major storm. The degree of susceptibility to losses and/or
damages was generally alluded to in the previous discussions.
However, Table XVII provides a better projection of the percent of
the County's building structures (residential and commercial,
etc., subject to the potentially devastating effects of a major
storm:

Table XVII *Percent of Structures Subject to Storm Damage
Factors, Pender County

Storm Impact Percent Structures Possibly Affected

1. High winds See Surf City and Topsail Beach LUP
2. Flooding
3. Wave Action See Surf City and Topsail Beach LUP

*Based on preliminary estimates derived from examination of the
1986 Existing Land Use Maps for Pender County and soil types
subject to flooding, as provided by the Soil Conservation Service
office in Burgaw.

The information in the Table above is an estimate and is not
intended to convey the impression that every single structure
possibly affected by damaging flooding would be affected, only
that the potential is there. Storm impact from high wind and wave
action would be covered in the Surf City and Topsail Beach LUP's.
Knowing that the potential is there forms the basis for setting
forth storm hazard mitigation policies, keeping in mind that
"mitigate" means actions which may reduce the probability of
disaster, or minimize the damage caused by a disaster (McElyea,
Brower, & Godschalk, p. iii).

f. Policy Statements: Storm Hazard Mitigation

In order to minimize the damage potentially caused by the
effects of a hurricane or other major storm, Pender County pro-
poses the following policies.

1. High Winds

Pender County enforces the N. C. State Building Code,
particularly requirements of construction standards
to meet wind-resistive factors, i.e., "design wind
velocity". The County also enforces provisions in
the State Building Code requiring tie-downs for
mobile homes, which help resist wind damage.

2. Flooding

Pender County is supportive of the hazard mitigation
elements of the National Flood Insurance Program.
Pender County also supports continued enforcement of
the CAMA and 404 Wetlands development permit process-
es in areas potentially susceptible to flooding.

3. Wave Action and Shoreline Erosion

Pender County is supportive of the CAMA development
permit process for estuarine shoreline areas and the
requisite development standards which encourage both
shoreline stabilization and facilitation of proper
drainage. The County is aware of potential overwash
areas at Topsail Beach and Surf City, and these areas
should be identified in the Topsail Beach and Surf
City CAMA plans.

g. Implementation: Storm Hazard Mitigation

1. Pender County has adopted an Emergency Management
Hurricane Response Plan, which requires coordination
with both Topsail Beach and Surf City.

2. The County will continue to support enforcement of
State and Federal programs which aid in mitigation of
hurricane hazards, including CAMA and the U. S. Army
Corps of Engineers 404 permit process.

3. The County is presently working on adoption of both
subdivision regulations and zoning ordinance. Both
of these planning tools will be used to direct growth
away from storm hazard areas.

3. Post-Disaster Reconstruction Plan

Pender County recognizes that in the event of a major storm,
it will be very important to have, at a minimum, a general recov-
ery and reconstruction plan. This section of the Land Use Plan
Update will address this issue.

a. Appointment of a "Post Disaster Recovery Team"

In the event of a major storm having landfall in the vicinity
of Pender County, when evacuation orders are issued, the Chairman
of the County Board of Commissioners shall appoint a "Post-
Disaster Recovery Team". This team shall consist of all of the.
members of the Control Group and Support Group as identified in
the Pender County Emergency Management Hurricane Response Plan,
and others whom the Chairman may appoint. The total team may
consist of the following:

1. The Chairman of the Pender County Board of Commis-
sioners
2. Group Chairman
3. The Mayors or their representatives of:
Surf City
Topsail Beach
Burgaw
Atkinson
4. The Pender County Emergency Management Coordinator
Advisor
5. The County Attorney - Legal Advisor
6. County Finance Officer - Group Chief of Support
Group
7. Sheriff
8. Director of Social Services
9. Superintendent of Schools
10. County Health Director
11. County Tax Supervisor
12. Burgaw Fire Chief
13. County Public Information Officer
14. Rescue Squad Representative
15. State Highway Patrol Liaison Officer
16. Red Cross Liaison Officer
17. Building Inspection Department
18. Local and State CAMA Permit Officers

The Emergency Management Coordinator will serve as the Group
Leader. The base of operations will be the Emergency Operations
Center (EOC) identified in the County Evacuation Plan. The
Disaster Recovery Team will be responsible for the following:

1. Establishing an overall restoration schedule.

2. Setting restoration priorities'.

3. Determining requirements for outside assistance and
requesting such assistance when beyond local capabi-
lities.

4. Keeping the appropriate County and State officials
informed.

5. Keeping the public informed.

6. Assembling and maintaining records of actions taken
and expenditures and obligations incurred.

7. Recommending to the Chairman of the Board of Commis-
sioners to proclaim a local "state of emergency" if
warranted.

8. Commencing and coordinating cleanup, debris-removal'
and utility restoration which would include coordina-

tion of restoration activities undertaken by private
utility companies.

9. Coordinating repair and restoration of essential
public facilities and services in accordance with
determined priorities.

10. Assisting private businesses and individual property
owners in obtaining information on the various types
of assistance that might be-available to them from
federal and state agencies.

b. Immediate Clean-Up and Debris Removal

As soon as practical after the storm, the Disaster Recovery
Team will direct appropriate County personnel, in cooperation with
Topsail Beach and Surf City municipal personnel, and as necessary,
request State and/or federal assistance to begin clearing fallen
trees and other debris from the County and municipal roads and
bridges.

C. Long Term Recovery/Restoration

The Disaster Recovery Team will be responsible for overseeing
the orderly implementation of the reconstruction process after a
major storm or hurricane in accord with the County's policies.
The County would contact State and Federal agencies to request
financial assistance to repair or reconstruct damaged or destroyed
property.

1. Damage Assessments

Damage assessments will be necessary to determine as
quickly as possible a realistic estimate of the
amount of damage caused by a hurricane or major
storm. Information such as the number of structures
damaged, the magnitude of damage, and the estimated
total dollar loss will need to be developed.

As soon as practical after the storm, i.e., clearance
of major highways and paved roads in the County, the
Disaster Recovery Team Leader shall set up a Damage
Assessment Committee (DAC), consisting of the Build-
ing Inspector, Emergency Management Coordinator, a
local realtor or building contractor, and appropriate
personnel from the Pender County tax department. The
DAC will immediately begin to make "windshield"
surveys of damaged structures to initially assess
damages and provide a preliminary dollar value of
repairs or replacement. The following general cri-
teria shall be utilized:

a. Destroyed (repairs would cost more than 80
percent of value).

b. Major (repairs would cost more than 30 percent of
the value).

c. Minor (repairs would cost less than 30 percent of
the value, but the structure is currently uninhabit-
able).

d. Habitable (some minor damage, with repairs less
than 15 percent of the value).

Each damage assessment will be documented according
to County tax records. Also, County tax maps (inclu-
ding aerial photographs) and/or records may be used
for identification purposes). The total estimated
dollar value of damages will be summarized and
reported to the Disaster Recovery Team Leader.

2. Reconstruction Development Standards

Reconstruction shall be held at least to the same
standards as before the storm. However, developed
structures which were destroyed and which did not
conform to the County's storm hazard mitigation poli-
cies, i.e., with basic measures to reduce damage-by
high winds, flooding, wave action or erosion, must be
redeveloped according to those policies. In some
instances, this may mean relocation of construction,
or no reconstruction at all. Building permits to
restore destroyed or damaged structures, which were
built in conformance with the State Building Code and
County storm hazard mitigation policies, shall be
issued automatically, all structures suffering major
damage will be repaired according to the State Build-
ing Code. All structures suffering minor damage,
regardless of location, will be allowed to be rebuilt
to the original condition prior to the storm. The
County Sanitarian and Building Inspector will consid-
er permitting reconstruction (between 30-80% of value
of damaged homes requiring a septic tank) on a case
by case basis if soil type does not meet current
septic tank requirements as of the date damage or
destruction occurred.

Development Moratoria

Pender County, because of a lack of densely populated
areas, does not foresee the need to prohibit any and
all development for any specified period of time,
unless prohibited by applicable State or Federal
regulations. Residents shall be allowed to proceed

with redevelopment and reconstruction as soon as
practical and in accord with the various levels of
State and federal disaster relief provided to them.
The Disaster Recovery Team will coordinate with the
State Building Association and other home construc-
tion organizations in assembling a list of qualified
contractors interested in assisting with reconstruc-
tion.

4. Repair/Reconstruction Schedule

The following schedule of activities and time frame
are proposed with the realistic idea that many fac-
tors of a hurricane may render the Schedule infeas-
ible.

Activity Time Frame

a) Appoint Damage Assessment 6 hours after storm
Committee

b) Complete and Report Damage Two weeks after storm
Assessments

c) Begin Repairs to Critical As soon as possible
Utilities and Facilities after storm

d) Permitting of Reconstruction Two weeks after damage
activities for all damaged assessments are
structures ("minor" to pre-storm complete
original status, "major" to State
building code and hazard
mitigation standards

5. Agency Responsible for Implementation

The Chairman of the Pender County Board of Commis-
sioners, as chief elected official of the County,
will serve as overall Chairman of Control Group. The
Board Chairman will delegate the oversight of the
reconstruction and recovery effort and implementation
of the plan.

6. Repair and Replacement of Public Utilities

Repair and replacement of public utilities at Topsail
Beach and Surf City will be the responsibility of
those municipalities.

4. Hurricane Evacuation Plan

Pender County has an official "Emergency Management and
Hurricane Response Plan," which was prepared in March 1984. A
brief review of this plan indicates that it is generally adequate.

Relationship of'Policies and Land Classification

As discussed in the data collection and analysis section of
the Land Use Plan, Pender County has been and remains a very rural
county. Based on 1983 estimates, Pender County had a population
density of 26.7 people per square mile, which is very low; how-
ever, portions of the County have been and continue to experience
a significant amount of development, particularly along the east-
ern mainland area between US 17 and the Intracoastal Waterway.

The primary policy adopted by Pender County and the one that
will have the greatest impact on future land use is the policy to
prepare and adopt both subdivision regulations and a zoning ordi-
nance. Also, the policy to begin the planning process to provide
water and/or sewer service in rapidly growing areas of the County
will impact on future development. Currently, the land use policy
is to permit development in the County if the proposed development
meets all Local, State, and Federal regulations. Upon approval of
the zoning ordinance, the County will have a better planning tool
to direct future growth.

To reflect these policies on the Land Classification Map, the
County has designated the area along both sides of NC 53 between
Burgaw at US 117 and 1-40 as a transition area. Also, both sides
of NC 210 between 1-40 and SR 1518 have been designated as transi-
tion due to the anticipated growth generated by the interstate
highway, the technical school planned for the area, and new
industry planned for the area.

The Hamostead area has experienced significant growth since
the 1981 CAMA plan was completed, and this area will most likely
continue to grow. All of the Hampstead area has been designated
transition. Both sides of NC 210 at the entrance to Surf City and
extending approximately one-half mile along NC 210 have been clas-
sified as transition. Also, the waterfront area along NC 1538
west of NC 210 near the Surf City Bridge has been designated
transition. This transition area would not include any waterfront
property classified as "Conservation," and the final determination
of any potential conservation area would be made based on a field
inspection by the appropriate regulatory agency.

The "Community" classification includes Penderlea, Willard,
Carrie, and Maple Hill.

The "Rural" classification includes all of the County not
designated transition, community, conservation, or the four muni-
cipalities of Atkinson, Burgaw, Surf City, or Topsail Beach.

The conservation area includes all soils in the County that
are subject to flooding, as designated by the Soil Conservation
Service in Burgaw using the recently completed detail soils survey

maps of the County. In addition to soil typessubject to flood-
ing, the*"Conservation" classification includes all CAMA-regulated
areas of environmental concern, as discussed in the 1986 Land Use
Plan and as applicable to Pender County.

Public Participation

During the early planning stages, the Pender County Planning
Board held two public information meetings, one in Burgaw and one
in Hampstead. During these meetings, the Planning Director, Plan-
ning Board Chairman, and consultant discussed the purpose of the
Land Use Plan Update and received comment on local issues. The
Hampstead meeting was attended by over 100 interested citizens.
During the following months, the Planning Board held several work
sessions which were attended by interested citizens. The Land Use
Plan Update has also been on the agenda for regular Planning Board
meetings. In addition to public information meetings and regular
Planning Board meetings as a means to have input into the planning
process, the Planning Board prepared and distributed over 5,000
planning questionnaires and distributed them through the schools
and two County libraries. Planning questionnaire responses were
tabulated and information used in preparing the Land Use Plan
Update.

Public participation will continue following submittal of the
draft plan to the Coastal Resources Commission for review and
comment. Following that review, the plan will be presented at a
public hearing for review and comment by Pender County citizens
prior to formal adoption. Following adoption of the plan, it may
be modified or amended during the subsequent five-year planning
period, as the need for such amendment may require.

The following public information meetings and Planning Board
meetings were open to the public:

October 23, 1985
January 24, 1986
February 10, 1986 (Burgaw Public Info. Meeting)
February 17, 1986 (Hamstead Public Info. Meeting)
February 27, 1986
March 20, 1986
July 3, 1986
August 23, 1986
November 17, 1986
January 12, 1987
January 19, 1987 (County Commissioners)

APPENIX

APPENDIX

SOIL SURVEY IDENTIFICATION LEGEND

PENDER COUNTY, NORTH CAROLINA

Locally Important Farmlands

AuB(BnB) Autryville fine sand, I to 4 percent slopes

BaB(BmB) Baymeade fine sand, 1 to 4 percent slopes

Gr Grantham loam

Gr Grifton loamy fine sand

InA(In)(Ip) Invershiel-Pender complex, 0 to 2 percent slopes

KeB Kenansville fine sand, 0 to 4 percent slopes

Ls(Li) Liddell silt loam

Lu Lumbee fine sandy loam, accasionally flooded

Pa Pactolus fine sand, occasionally flooded

Pn Pantego mucky fine sandy loam

Ra Rains fi ne sandy loam

To(Px) Torhunta mucky fine sandy loam

Wo Woodington fine sandy loam

APPENDIX

SOIL SURVEY IDENTIFICATION LEGEND

PENDER COUNTY, NORTH CAROLINA

Prime Farmland

AtA Altavista fine sandy loam, 0 to 3 percent slopes

AyA Avcock loam, 0 to 3 percent slopes

AyB2 Aycock loam, 3 to 6 percent slopes, eroded

EmA(ExA) Exum loam, 0 to 2 percent slopes

EuA(EU)(ExU) Exum-Urban land complex, 0 to 2 percent slopes

Fo(FoA) Foreston loamy fine sand

GoA Goldsboro fine sandy loam, 0 to 2 percent slopes

Jo Johns fine sandy loam

KaA(Ka) Kalmia loamy fine sand, 1 to 3 percent slopes

McC(CrC2)(CrC)(MaC) Marvyn and Craven soils, 6 to 12 percent slopes

NoA Norfolk loamy fine sand, 0 to 2 percent slopes

NoB Norfolk loamy fine sand, 2 to percent slopes

On Onslow loamy fine sand

1986-95

TRANSPOR TATION

IMPROVEMENT PROGRAM

R-604
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Replace Bridge over Merricks R_ RIB'J -, @-er
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Replace bridge over Bekkie's Cre
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B-21 60

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PENDER COUNTY

C HOLLY SHELTER

GAME LAND

SR 1520, BRIDGE #96, PE!:DER COU@171Y
Replae tri0je OVer AzneS CreeK.

TALBERT, COX & ASSOCIATES, INC.
6527 NEW PEACHTREE ROAD
ATLANTA, GEORGIA 30340 JAN 19 1987

T R A N S M I T T A L L E T T E R

TO: City of Roswell DATE: Jan. 14 1987
Recreation and Park Dept. JOB NO: 1574. 402 13
Roswel, Ga

ATTENTION: Bill Johnson

JOB: Waller Paark - Arean I & II

Dear Sir: We are sending you this ARCHITECTURAL DRAWINGS SHOP DRAWINGS
date the following: ENGINEERING DRAWINGS ADDENDA
SAMPLES ADDENDA

Transmitted by: OUR MESSENGER FIRST CLASS MAIL
YOUR MESSENGER AIR MAIL

EXPRESS SPECIAL DELIVERY

PARCEL POST SPECIAL HANDLING

BUS

ORIGINAL DRAWING LAST COPIES
SUBJECT MATTER NUMBER DATE EACH REMARKS

Talbarb fox & a add. 1- area I 1/14/87 20
add. 1- area II 1/14/87 20

NOTE: A - Shop drawinas marked "REVIEWED NO EXCEPT" give authority to proceed with the work
as shown, subject to the requirements of the plans and specifications.

B Shop drawings marked "MAKE CORR. NOTED" give authority to proceed in accordance
with notes, but corrected prints must be submitted. Only drawings without notes
shall be used for erection work in the field.

C Shop drawings marked "AMEND AND RESUBMIT" and "REJECTED-RESUBMIT" do not give
authority to proceed with any portion of the work shown thereon.

cc: Very truly yours,
TAlBERT, COX & ASSOCIATES, INC.

BY:

ADDENDUM NO. 1 January 14, 1987

Specifications for the Construction of Area I, Waller Park, City of Roswell,
Georgia identified as Project # CD-82-08A dated December, 1986. Bidders are
notified that above Specifications and accompanying Drawings are modified as
set forth below. All other provisions of the Specifications, Drawings and
'other Contract Documents previously issued remain unchanged.

ITEMS:

1. On Drawing L5 at "Typical Roadway Section" and at "Asphalt Paving",
change to:

50 Base Course
1-1/20 Type "B" Bituminious Binder Course
1" Type OEO Wearing Course

2. On Drawing LS at "Handicapped Drop Curb a Gutter":

(a) Change 11-60 base dimensions to 21-0".
(b) Change 7* thickness to 6".
(c) Add dimension of 5-1/2 inches from top of curb to low point of
handicapped ramp at face of curb.

1574-402

ADDENDUM NO. I January 14, 1987

.Specifications for the Construction of Area II, Waller Park, City of Roswell,
Georgia identifl-e-d as Project # CD-82-08A dated December, 1986. Bidders are
notified that above Specifications and accompanying Drawings are modified as
set forth below. All other provisions of the Specifications, Drawings and
other Contract Documents previously issued remain unchanged.

ITEMS:

1. On Drawing L4 at "Typical Roadway Section" change to:

50 Base Course
1-1/2" Type "B" Bituminious Binder Course
1" Type "E" Wearing Course

2. On Drawing L5 at "Handicapped Drop Curb & Gutter":

(a) Change 11-6" base dimensions to 21-0".
(b) Change 70 thickness to 60.
(c) Add dimension of 5-1/2 inches from top of curb to low point of
handicapped ramp at face of curb.

1574-402

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