land use plan for the Town of Surf City, North Carolina

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

Ct7-/ IF7@

COASTAL ZONE
RESOURCES
CORPORATION

HD
211 A 11M
S87 4505 FRANKLIN AVENUE
S8 WILMINGTON, N.C. 28401
1976

.LAND USE PLAN

FOR THE

TOWN OF SURF CITY, NORTH CAROLI

Prepared in accord with
State Guidelines for Local Planning in the Coastal Area
Under the Coastal Area Management Act of 1974.

Property of CSC Library
U.S. DEPARTMENT OF COMMERCE NOAA
COASTAL SERVICES CENTER
2234 SOUTH HOBSON AVENUE
CHARLESTON SC 29405-2413

To Be

Submitted to
North Carolina Coastal Resources Commission

May 21, 1976

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

TABLE OF CONTENTS

Page Number

INTRODUCTION

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

Method of Preparing the Plan 1-5

CURRIENT CONDITIONS SECTION I

Population and Economy I-1

Population I-1
Municipal Finance 1-3
Economy 1-4

1-7
Existing Land Use

Current Plans and Regulations I-11

Current Plans Concerning Land Use in Surf City I-11
Existing Local Regulations Affecting Land Use
in Surf City 1-13

Constraints 1-15

Physical 1-15
Fragile 1-18
Resource Potential 1-23
Community Facilities 1-24

ISSUES, OBJECTIVES AND ST ANDARDS SECTION II

major Issues and General Alternatives II-1

Past Development Activities 11-2
Storm and Erosion Protection 11-4
Visual Quality of Development 11-5
Providing.Community Facilities and Services 11-8
Financing Service Facilities 11-13

objectives and Stand ards for Surf City 11-15

AREAS OF ENVIRONMENTAL CONCERN SECTION III

Introduction III-1

The Estuarine System 111-2
The Beach-Foredune System 111-4
Hazard Areas 111-4
Public Trust Areas 111-6

TABLE OF CONTENTS

Page Number.

FUTURE LAND USE SECTION IV

The Demand for Land IV-1

Factors Influencing Growth I'V-1
Accommodating Future Growth IV-3

Land@Classification System .,IV_9

PLAN ADOPTION AND IMPLEMENTATION SECTION V

Plan Adoption V-1

.Plan Implementation v-4

Revision and Enactment of Town Ordinances v-4
Coordination of Permit-Letting Authorities V-5
Related Planning Activities v-6
Periodic Review and Revision of the Plan v-7

REFERENCES CITED SECTION VI

APPENDICES

Appendix A: Public Participation Program

Appendix B: Population and Density

INTRODUCTION

PURPOSE OF 11 LANDUSE PLAN IN NORTH CAROLINA COASTAL AREA MANAGEMENT

The North Carolina Coastal Area Management Act of 1974 /Chapter

1284 1973 Session Laws (G.. S. 113A/_ (CAMA) established "....a coopera-

tive program of coastal area management between local and State

governments" whereby "Local government shall have the initiative for

planning."

Enactment of CAMA was based upon findings by the General

Assembly that

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

"the estuaries are among the most biologically pro-
ductive regions of this State and of the nation"

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

The CAMA established the following goals for the coastal area

management system:

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

11(2) To insure that the development or preservation of the
land and water resources of the coastal area proceeds
in a manner consistent with the capability of the land
and water for development, use, or preservation based
on ecological considerations;

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

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

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

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

@(iii) Recreation and tourist facilities and parklands;

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

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

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

The planning processes established by the CAMA include:

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

followed in public and private use of land and water within the coastal

area; and (b) a land use plan for each county within the coastal area.

Following the procedures contained in the CAMA, the Mayor and

Board of Town Commissioners of Surf City declared the intent of the Town

to prep are a land use plan in accordance with State Guidelines for Local

Planning in the Coastal Area under the Coastal Area Management Act of

1974 (Guidelines) adopted by the North Carolina Coastal Resources Commission

on January 27, 1975, as subsequentl y amended.

1-2

The Guidelines mandate that each land use plan contain:

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

2) A Summary of Data Collection and Analysis;

3) An Existing Land Use Map;

4) A Land Classification Map;

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

A la nd use plan is one of many elements that constitute a

comprehensive plan for Surf City. The land use plan expresses the way

the democratically elected re presentatives of the people think the

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

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

use plan can only be thorough when health care, education, transporta-

tion, economic development, leisure time, and other component .sof a

comprehensive plan are tested against the people's goals and objectives

so they can be integrated.into the land use element.

Surf City's land use plan relies upon those data most readily

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

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

water and sewer, roads and streets, and employment are consistent w ith

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

for decision-making with respect to land.

It is Surf City's intention to utilize the plan as a keystone

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

comprehensive planning for Surf City. Matters such as zoning, building

codes, Town appearance, and beach maintenance can be based upon the plan;

1-3

policy issues, such as annexation, taxesi maintenance of water quality,

health care and employment are preliminarily identified for later study,

and decision-making as elements of the Town's comprehensive planning

process.

1-4

METHOD OF PREPARING THE PIAN

The Surf City land use plan was.developed as an iterative process

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

resource specialists.

The iterative process: 1) Sampled public recognition of problems

and opportunities in general terms; 2) defined the known physical, socialf
and institutional setting; 3) invited the public to participate in matching

problem solutions with the setting by defining objectives and standards for

the.Town; 4) projected factors consistent with the selected Town goals and

the physical restraints; 5) allocated land according to the projected

magnitude of demand and the physical characteristics of the Town; and

6) used the inventory data developed in step 2 to delineate areas recom-

mended as areas of environmental concern with a list of suggested uses.'

Coastal Resources Commission Guidelines emphasize the need to map

three sets of data existing land use, land classified according to pro-

jected use in 1985, and areas that will be recommended as interim areas of

environmental concern. These Surf City data were mapped at a scale of

I inch = 400 ft. Thebasic map medium was an aerial photograph mosaic

prepared by Coastal Zone Resources Corporation-from N. C. Department

Transportation 1 inch - 1,000 ft photography taken in December 1974.

Existing land use was determined by air-photo interpretation and

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

defining existing conditions permitted rapid identification of hazardous,

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

are as that shou ld,be of environmental concern.

1-5

The air-photograph maps are easily reproducible and will serve

as a useful public information tool. Additionally, the reproducible

mosaic is available for use as a base map to support other planning activi-

ties and for-implementat ion of the plan.

Data describing current conditions in the Town were assembled

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

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

was available,in publications was needed, personal communications with

representatives of the publishing agencies and knowledgeable Town residents

were used to complete the data collection and analysis.

Details of Surf City's public participation program are contained

in Appendix A.

Land use planning in Surf City was complemented by a concurrent

a
sewerage study for Topsail Island conducted under the terms of a Section

201 of the Water Pollution Control Amendments of-1972 (201 Plan).

Existing land use, dwelling unit density, and population estimates were

jointly derived. The CAMA sponsored planning in the Town was closely

coordinated with comparable activities conducted by the Pender County

Planning Board. No major conflicts between the county and municipal plan

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

the county plan shall govern, except in cases where the municipal plan

imposes greater restrictions upon land use or greater demand for new

development.

aTopsail Island has three political entities: Town of Surf City and Town of
Topsail Beach in Pender County and an unincorporated segment in Onslow
County.

1-6

SECTION I

CURRENT CQNDITIONS

POPULATION AND ECONOMY

Population

The population of Surf City was reported to be 166 in the 1970

U. S. Census of Population (U. S. Department of Commerce 1973). Earlier

Surf City population information is not available because Census data

for the Town were not.separated from Topsail Township prior to 1970.

The Census'population figure of 166 reflects only,the year-round

residents of the Town- The Corps.of Engineers estimated seasonal resi-

dency.in 1963 to be 1450 (U. S. Army Corps-of Engineers 1965).

Mr. Alva Wardfwho located his real-estate business on Topsail

Island in 1949, inventoried allstructures on Topsail Island in 1970 and

again in may 1975. The counts of dwelling units were recorded according

to single family, multi-family and motel unit categories, by political

jurisdiction.

As part of the 201 Plan preparationi the contractor, Henry von

Oesen and Associates, recorded and mapped the total number of structures

on Topsail Islandi including mobile homes and trailers. The number of

units in multi-family residential and transient accommodation structures

and the use of commercial structures, e. g., restaurant,- bank, were noted.'

In late June and early July 1975, a survey of dwelling unit:

occupancy was conducted cooperatively by Coastal Zone Resources Corpora-

tion, Henry von Oesen and Associates, and the Cape Fear Council of

Governments. Approximately 10 percent of all dwelling units in the Town

were surveyed. The primary purpose of the survey was to determine the

average number of:persons occupying the different kinds of dwelling units

on a year-round and seasonal basis. The number of dwelling units

reported for -Surf City in 1975 was multiplied by these average occupan cy

rates by category to yield the average seasonal and year-round population

of the town for 1975. Results of the survey show that, on the average,

24 percent of residential housing units in Surf City were vacant during

the summer of 1975. Peak summer population, or the maximum number of

people that could be accommodated in the existing units, was derived by

assuming all dwelling units were occupied at the appropriate occupancy

rates.

Survey results show that the average summer population in 1975

was 3,767.. Year round population was 729 (up 563 fr om 1970, a 339 per-
)a,
cent -increase overall and 67.8 percent increase per year seasonal

population was 3,038 (up 2,317 from 1963, a 160 percent increase overall

and 13.3 percent per year); on those days when all dwelling units were

occupied the peak population was 5,424. Sixteen percent of the summer

population was residing in motel units at the time of the survey, and

eighty-four percent in non-motel units (single-family cottages, duplexes,

mobile homes, or apartments). The data do not account for day-use visitors

or overnight visitors occupying space in campgrounds or parking lots

associated with fishing piers. Thus, on some days the total number of

persons in Surf City could be considerably gr eater than 5,424.

aThe year round population may not equate with the Census definition of
permanent resident. This is so because some family units are transient,
that is, they are regularly transferred personnel, e. g., military, who
may reside one or two years in Surf City but maintain a permanent resi-
dence elsewhere.

1-2

According to Ward inventory, there were in 1970, 1,027 dwelling

units in Surf City, 138 (13 percent) motel and 889 (87 percent) non-

motel; in .1975 there were 1,321 dwelling units, 208 (1 6 percent.), motel

and 1,113 (84 percent) non-motel.

Since 1973 the Town of Surf City has recorded the number of

building permits issued each year and submits yearly an "Annual Report

of Building Permits Issued for New Residential Buildings" to the U. S.

Department of Commerce, Social and Economic statistics Administration,

'Bureau of the Census. The Annual Reports show that 40 permits for new

building were issued in 1973 and 78 in 1974. In 1973, 36 of the permits

were for single family residences, two for duplexes, and two for transient

housing. In 197 4, 38 permits were issued for single family residences,

39 for mobile homes, and one for a 24 unit motel.

.The 1975 survey of dwelling units shows that average occupancy

of vacationers was 1.5 persons per unit in motels and 4.2 persons per

unit in non-motel residences; year-round population occupancy was lower,

3.7 persons per unit. At the time of the survey, 30 percent of the non-.

motel units were occupied by their owners, 46 percent.were occupied by

renters, and 24 percent were vacant.

Munici2al Finance

The Surf City Town Budget for fiscal year (FY) 1974-1975 was

based on a total property valuation of $10,427,882 and a tax rate of $.81

per $100 valuation. The property valuation in FY,1973-1974 was $5,273,537

and the tax rate was $1.35. The 98 percent increase in valuation was

substantially offset by th e 66 percent decrease in the tax rate; ad

valorem taxes produced a revenue of $20,000 in 1968, $68,345 in 1973, and

1-3

$76,019 in 1974.

Ad valorem taxes accoun. ted for 63 percent of the Gene ral Fund

revenues in both 1968 and 1974, 69 percent in 1973. State shared taxes,

such as Franchise, Intangibles and Beer and Wine, Powell Bill Allocations,

and the one percent of the four percent sales tax contribute to.the

total revenues of the town. The Cash on Deposit has increased over the

years from $11,647 in 1968 to $30,971 in 1974.
The cost of general government a as a percent of total expendi-

tures has de creased since 1968; expenditures for services have increased.

Table,1-1 lists the General Fund expenditures to service facilities and

general government as appear in the FY 1968-1969, 1973-1974, and 1974-1975

Town Budgets.

Economy

The economy of Surf City is dependent on its land and water

resources. The ocean and sound waters constitute the major attractions

for the swimming, fishing, and boating enthusiasts who visit the town in

summer. It is estimated that approximately.54 persons are employed year

b
round in Surf City, principally in fishing pier and tackle shop operations.

Many Surf City@residents work in areas off of Topsail island, commuting

mainly to Jacksonville, Camp LeJeune, and Wilmington. Employment oppor-

tunities in the town increase by as much as 50 percent during the summer

vacation season, with job openings in fishing piers, motels, restaurants,

and shops,

aFor the purpose of analyzing community service finance, general government
includes all expenditures except those cited here as service facility
expenditures.
bCon nie Morgan, Town Clerk; Personal Interview, May 20, 1975.

1-4

Table 1-1. Surf City General Fund Expenditures. a

Fiscal Year % F i scal Year % Fiscal Year %
Cause of Expenditure 1968-1969 Total 1973-1974 Total 1974-1975-@ Total

General Government 29,174 57 61,850 49 55,075 36
Police Department 8,815' 21 30,596b 24 40,060 26

Street and Related
Structures 2,948 7 3,384 3 17,820 12

Health and Sanitation C 6,450 15 29,858 24 32,560 22
Fire Departmentd 6,200 4

Total Expenditures 42,387 100 125,688 100 151,715 100

a
Source: Town of Surf City--(A4obted)-BudgO-ts;@1968,,---1973*,. 1974.

bIn 1973 includes expenditures for fire equipment.

cIncludes solid waste collection and pest control.

d
Includes expenditures for rescue squad.

In summer, Surf City commerce can supply theday to day needs

of vacationers, with grocery stores, tackle shops, and gift shops;

lodging, dining, and recreational facilities. Most year-round residents,

however, find.it necessary to do much of their shopping off the island.

The nearest professional services, such.as doctors, lawyers, and dentists

are found in Wilmington and Jacksonville, as are specialty shops, pre-

scription drugstores and the like. As noted, property tax collections

account for 63 percent of income to the Town Government. In July, 1975,

there were 815 taxpayers listed by the Town Clerk. At a rate of 3.7

persons per dwelling unit, year round population accounts for 197 tax-

payers.:: Assuming permanent residents holding more than one taxable parcel

balances with non-permanent, year round residents, 618 taxpayers are

absentee owners. Thus, the majority of property tax income comes from

absentee property owners. But serious problems have already been en-

countered as a resu lt of the great demand placed on the land and its

adjacent waters. A tremendous growth in tourism has occurred in Surf

City in.the last 20 years. The increase in disposable income, mobility,

leisure time and access, in the two decades between 1950 and 1970, has

resulted in an increase in outdoor recreation and vacation second-home

building in the Town. Home building and real estate services are major

employers. Unfortunately no measure is available for construction, sales,

and service employment associated specifically with homebuilding in

Surf City because the sector is made up of many small enterprises that

operate in all jurisdictions of Topsail Island and on the mainland.

1-6

EXISTING LAND USE

The Town of Surf City is located in the southern half of

Topsail Island on the east coast of Pender County. Topsail is a

barrier island stretching for approximately 25 miles in a NE-SW

direction between New Topsail Inlet in Pender County and New River

Inlet in Onslow County. It is bounded on the northwest by the Atlantic

Intracoastal Waterway (AIWW) and on the southeast by the Atlantic

ocean. The island is bisected by the Onslow-Pender County line, the

Pender County portion being comprised of two municipalities, Surf City
and Topsail Beach. Topsail Beach forms the southern 4.8 miles of the

island; Surf City extends for 6 miles between Topsail Beach and the

Onslow-Pender County line.

Until 1940, Topsail Island was deserted, totally undeveloped,

and inaccessible by automobile. In 1941, the U. S. Government estab-

lished Camp Davis as a temporary military reservation in the Holly Ridge

area, and leased Topsail Island for use as a missile testing range. In

order to facilitate military activities, a pontoon bridge was constructed

across the AIWW, barracks and observation towers were built, and a road

extending the full length of the island was developed.' In 1948, military

,activities ceased, Topsail Island facilities were abandoned, and land

that had.been leased was returned to its owners, complete with roads,

buildings, and most importantly,a bridge. Prompted by its newly estab-
lished accessibility, development of the island began immediately@; Surf

City was incorporated in 1948.

1-7

surf City is situated 22 road miles northeast of Wilmington and

26 road miles southeast of Jacksonville, the two population centers

closest to the Town. Access to the island from Wilmington is provided by

US 17 to NC 50 with a drawbridge connection to the mainland. Access from

Jacksonville.to the island is provided by US 17 to NC 210 with a fixed

span bridge across the waterway.
Owhership.prior@to@1941 of the majority of the island (including

some submerged land extending to the mainland) by a relatively few

individuals, development by the Army of the major@paved road close to the

frontal dune system, and rapid subdivision of land and sale of lots have

been and will continue to be the major determinants of land use in the

developable parts of Surf City. The military road, now NC 50, served

as the backbone for the.division of land; the subdivisions with or with-

out deed restrictions have been officially platted and recorded. Present,

subdivisions, with but one'exception, consist of rectangular lots

measuring-from 25 ft to 50 ft across and 60 ft to 100 ft deep. Thus,
some platted lots of 2,500 square feet (ft2 (1/16 of a commercial acre)

have been sold and built upon. Many people may have purchased more than

one lot, but the number of additional lots that were acquired to afford

protection for a large house as opposed to the number acquired to

accommodate one structure on each lot is not known.

.The few large parcels that are not subdivided have remained open

and natural through the will of owners or the condition of the money

markets.

Surf City is made up of beaches, dunelands, marine forest, and

1-8

salt water marshes, the distribution and extent of which vary throughout

the town. Estuarine waters and associated coastal marshes cover a large

area of the town whose jurisdiction extends westward to the centerline,

of the AIWW; throughout.most of.the town, a line of shrubs or woodland

separates the estuary from the,higher, developed land. Between the Surf

City-Topsail Beach town line and the fork.of NC 50, the maritime forest

extends from NC 50 to the-marsh. East of NC 50 in this area is a narrow

strip of duIneland with a cover of grass and low shrub. From the fork

in NC 50, north to the town limits, is an area of duneland characterized

by a foreduneand.nearly level grass covered land extending to a narrow

line of maritime forest. In the marshland north of the causeway, west of

New River Drive, several linear "islands" of higher.woodland are

oriented N-S. Some of these:"islands" have been connected to the dune-

lands by causeways and are being developed for urban uses.

The NC 210 causeway (Rowland Avenue) divides the town north and

south. The area@from Durham Avenue north to New Bern Avenue, from the

ocean,west across the causeway to the town limits, is zoned for commercial

uses. The Central Business District is.within this area, extending for two.

blocks on either side of Rowland Avenue, and along Rowland Avenue from the

ocean to the third-block west of New River Dri ve. The majority of the

shopping facilities of the town are found in this district, including

groceries, clothing stores, beach shops, fishing supplies, hardware, and

an ABC store. The Town Halland Volunteer Fire Department are located in

this district along with the post office and bank, barber and beAuty

shops, a service station, an appliance service, motels, restaurants,

business offices, and a fishing pier. The primary use of the land

1-9

immediately adjacent to the causeway is commercial recreation, with

numerous mo tel units, camper-trailer parks, and boating facilities.

From New Bern Avenue north to the town limits, land use is

predominantly mixed commercial-residential. This area is characterized

by a mixture of single-family cottages, motels, trailers, apartments

and duplexes; with a bait shop, a fishing pier, a tavern, a church,

and several restaurants. The Del-Mar Beach subdivision in this area

has deed restrictions limiting land use to single-family residential..

The whole area from Durham Avenue south to thetown limits is

zoned for residential uses, with the exception of an ocean to sound

strip, 100 ft wide, located about 1/2 mile north of Surf City-Topsail

Beach line; this strip is zoned Commercial and permits the operation of

a fish house. The predominant use made of the land in this area is

single family residential, with two rows of housing, one row on either

side of NC 50. The housing density in this area is presently very low,

but throughout most of the maritime forest, individual homesite lots are

for sale. Boatchannels have been dredged along the marsh-forest interface

of much of this,.area, giving road-to-sound lots water frontage and access

to Banks Channel.

There are several mobile home parks in Surf City, located along

Rowland Avenue in the vicinity of the causeway, and in scattered locations

north of Rowland Avenue to the town line. The Town of Surf City has an

ordinance relating to mobile homes, trailers and campers, permitting their

location in an area north of Dolphin Avenue to the A. S. King northern

line, and north of New River Drive.

I-10

CIURR ENTPLANS AND REGUIATIONS

Current Plans Concerning Land Use in Surf City

Water and Sewer

1. Comprehensive Water and Sewer Program, Pender County, North

Carolina. F. T. Green and Associates, 1968.

[email protected]

a. Expand existing source of water supply and distribution

system. to serve new customers.

b. By mid-1980, Surf City expects to have a population

meriting asystem of sanitary sewage collection and disposal.

2. Water Supply System for Surf City, Henry von Oesen and Associates,

1968.

3. To wn of Surf City, Capital Improvements Program 1974-1979,

Town of Surf City and Cape Fear Council of Governments, June

1974. ;.Describes propos'ed Surf City capital improvements expendi-

tures necessary in the succeeding 5-year period in order to

implement:

a. The Surf City part of a Topsail Island sewage collection

system.

b. Water main extensions to serve areas of the Town of Surf City

that are presently drawing their wate r supply from individual

wells.

c. The Topsail Island Sewage Treatment Plant - a proposed

common facility with an estimated capacity of 1 mgd.

Transportation

1. Regional Development Guide Year 2000 Region "0", Cape Fear

Council of Governments, June 1972.

-Recommendations

a. Improveme nt and extension of the Coastal Corridor Highway

(U. S. 17) through Region "0".
b. Development of a new highway from Hampstead to Topsail Beach.

c. Improvement (four-laning) of U. S. 74 from U. S. 17 to the

Intracoastal Waterway.

2. Transportation Needs Study - Region "0", Cape Fear Council of

Governments, Traffic Planning Associates, Inc., 1971.

Recommendations

a. Provide a limited access facility, generally parallel to the

coast, serving the recreation and population centers.

b. From the above facility, provide additional connections to

the major beaches and inland recreation areas with high

type secondary roads.
3. Town of Surf City Capital Improvement Program 1974-1979, Town of

Surf.City and Cape Fear Council of Governments, June 1974.

Recommendations

a. Keep paving compatible with existing municipal thoroughfare

system.

b. Construct 4200 feet of asphalt roadway on Shore Drive in

order to improve traffic flow.

There are currently no utilities extension or open space and

recreation policies in effect in Surf City.

1-12

Existing Local,Regulations Affecting Land Use in Surf City

1. An Ordinance Providing for the Zoning of the Town of Surf City,

North Carolina

Effective Date: March 2, 1965

Application: Within the corporate limits of the
Town of Surf City

Summary of Provisions

a:. Four Districts are specified in order to regulate and limit

the height and size of a building, the intensity of use of

the lot, the areas of open spaces, and the location of

trades and industries.

1. R-1 Single Family District

.2. R-2 Multiple Family District

3. C-1 Commercial District

4. F-1 Fire District

b. The boundaries of Districts are established and shown on

the '@Zoning Map of Surf City."

c. Each District has specified uses permitted, building site

area, and yard areas required.

d. All structures erected, extended or modified shall comply

with the North Carolina State Building Code as amended in

1964.

A Board of Adjustment is to be appointed by the Town

commissioners for the purpose of hearing and deciding appeals

and authorizing variances in specific cases.

1-13

Each application for a Building Permit from the Building

Inspector is to be accompanied by a plat drawn to scale.

The Town Commissioners may amend, supplement, change or

repeal the regulations, restrictions or district boundaries

set out in this ordinance.

2. Ordinance of the Board of Commissioners of the Town.of Surf

City, North Carolina, Relating to Mobile Homes, Trailers and

Campers, Etc.

Effective Date: Deceinber 9, 1974

Application: Within corporate limits of the
Town of Surf City

Summary of Provisions

A. Trailers and mobile homes shall he permitted to remain where

located and now in use.

b. Mobile home trailers and campers may be located in specified

areas of Surf City.

c. Trailer and mobile home courts now in existence may replace

a unit only when a clearance of 15 feet on each side is left.
d.' A.-mobile home trailer may not be connected with lights or

water until a permit has been issued by the Building Inspector.

e. The Building Inspector shall be the sole judge of what is

ample and adequate concerning storage for garbage and other

facilities.

tocal land use regulations are limited to those listed above. There

-are currently no subdivision or nuisance.regulations, floodway, historic

district, or environmental impact statement ordinances in effect in Surf City.

1-14

CONSTRAINTS

There are certain areas of Surf City where development would be

either especially costly or likely to cause undosireable consequences

because of the inherent characteristics of the land and water. The perme-

ability of soils, their susceptibility to flooding, and their biological

productivity can and have exerted influence upon the choice of land areas

that can most economically, and with the leastrisk and uncertainty, be

put to various uses.

Physical

Flooding

The U. S. Geological Survey (USGS) is mapping Flood Prone Areas

of Surf City. The purpose of these maps, as stated on each map, is to

show administrators, planners, and engineers concerned with future land

developments, those areas that are.subject to flooding." The Flood Prone

Areas shown on these maps have a 1 in 100 chance on the average of being.

inundated during any year.

Flood Prone Area maps have been,completed by USGS to date at

1"=20001 scale for only parts of Surf City; flood areas mapped to date

indicate a flood elevation of between 10 and 15 ft msl. Virtually all of

the land surface of Surf City, with the exception of some high foredunes,

would fall within the Flood Prone Area.

soils

According to the U. S. Soil Conservation Service (SCS) "General

Soil Map for Pender County," th e only soil association present in Surf

City is the Capers-Newhan Association. This association is made up of the

Capers and Newhan soils, each with different physical characteristics and

I-:15

suitabilities for various purposes. The Capers soils are found mainly in

the marsh areas of the town, where the dominant vegetation is salt marsh

grasses such as Spartina. and rushes. This soil is characteristically

very poorly drained and subject to frequent storm and tidal overflow. It

was formed by both the deposition of silts, sands, and clays in the slowly

moving waters of the estuary, and by the build-up of organic debris that

is entrapped by vegetation growing in it. It is the wetness and regular

flooding of the Capers soils that render them generally unsuitable for

septic tank fields; the Capers soils also tend to have low traffic sup-

porting capacity and are poorly suited to supporting buildings, roads,

and streets.

The Newhansoils.are found on the dune and beachareas along the

coast. Deposited by both existing and past wind and water action, this

soil is often found forming inland sand dunes and ridges as well as

foredunes. It is a fine to coarse sand, excessively drained, with

varying amounts of marine life deposits. The sands of the Newhan soils,

characteristically excessively drained, are classed as having moderate to

severe limitations for septic tanks because of their inability to filter

wastewater in la rge quantities, as required in areas of high population

density. Further limitations of these soils are usually associated with

their proximity to the ocean and susceptibility to flooding.

Between.the foredune and marsh, underlying both dunelands and

woods, are soils that have a combination of the characteristics of Newhan

and Capers soils. The principal factor limiting the use of the soils in this

area is depth to the water table which on Topsail Island tends to be rela-

tively shallow, but can vary substantially locally. The action of trees

1-16

growing on these soils, by their transpiration of large amounts of moisture,

can keep the water table at lower levels than would be found were the trees

removed; the water table may change seasonally as well, being highest in the

winter months.

A factor sometimes limiting the use of the soil underlying sparse

herbaceous or shrub vegetation is its stability. Close to the ocean, the

vegetation type is often dictated by a tolerance for both salt and wind; a

lack of vegetative cover here may be indicative of moving sands.

The suitability of all three of these soils for developments

in which septic tanks are used as the sewage disposal method,is dependent

primarily on population density.

.;.Sources.of Water Supply -Recharge Areas

Ground water comprises the sole source of water supply for both

public and private systems in Surf City. Pender County is underlain by a

vast aquifer system, two strata of which are important in the Surf City

area as sources of ground water.

Pleistocene and Recent surficial sands cover the beach areas

of the county and constitute the principal water source for most private

wells. In the surficial sands, water usually occurs under water table

conditions within 15 ft of the land surface, but may be partially confined

by clay:,in the lower part of the aquifer (Layman 1965). The productivity

of this aquifer is limited primarily by its thickness; it is recharged

directly by rainfall and easily subject to contamination.

The Castle Hayne limestone is not extensively used for water

supply in the beach area, but is potentially valuable as a large, long term

supply. The formation begins at 35 ft below msl where its waters occur

1-17

under artesian conditions. Recharge to the Castle Hayne would, therefore,

not be expected to occur in the immediate beach area and its waters would

not be as vulnerable to contamination as those of the surficial sands.

The quality and quantity of water from the Castle Hayne vary
locally. In the Surf City Area, it is generally high in iron, low in
chlorides, with a pH of 7-8; at Holly Ridge, indications are that a specific

capacity of 50-70 gpm per ft drawdown can be obtained (Laym9n 1965). Most

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

area have proved unsuccessful thus far.

Fragile

Coastal Wetlands

Estuarine tidal marshes and mud flats are found covering.all but

the high sand ridges, dunelands and maritime forests of Surf City along the

entire length of the Town's sounds, creeks and bays.. The dominant soil

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

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

grass.

For the purpose of better defining their significance, tidal

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

marshes. Low tidal marshland is defined as that consisting primar ily of

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

and fall of lunar tides (N. C. Coastal Resources commission 1975). The

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

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

for various species of fish and shellfish, such as menhaden, shrimp, flounder,

oy sters, and crabs. The roots and rhizomes of the Spartina alterniflora

1-18

serve as waterfowl food, and the stems as wildlife nesting material. Low

tidal marshes also help to retard shoreline erosion.

High tidal marshland is subject to occasional flooding by tides,

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

including Juncus roemerianus and various species of Spartina. The high

marshes also contribute to the detritus supply of the estuarine system and

support a diversity of wildlife types; they function as effective sediment

traps and as a further deterrent to shoreline erosion.

Much private development has already occurred along the tidal

marshes of Surf City, particularly in places adjacent to higher land north

of the Causeway and west of New River Drive. The Intracoastal Waterway is

used extensively for water transportation, fishing, and related water

sports; the adjacent marshland has been used as sites for homes, piers and

recreational facilitie s supporting the Waterway activities.

The once common practice of channel dredging and adjacent marsh

filling has recently come under closer scrutiny of State and Federal authori-

ties; as a result, there is currently little development of the marshland

in Surf City.

Estuarine Waters

The estuarine waters that surround the coastal wetlands in Surf

City are one of the most productive natural environments in the county,

supporting many fish and shellfish species for part of all of their life

cycles. According to the statuatory definition /G.S. 113-229(n)(2)/.

estuarine waters in North Carolina include all of the water s of the Atlantic

ocean within its boundaries, and all the waters of the bays, sounds, rivers

and tributaries thereto seaward of the dividing line between Commercial

Fishing Waters and Inland Fishing Waters; the dividing line between these

1-19

waters has been established for each body of water by agreement between

the N. C. Department of Conservation and Development (now DNER) and the N. C.

Wildlife Resources Commission. All of the surface waters within the juris-

dictional boundaries of Surf City are classified Commercial Fishing Waters

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

Public Trust Areas

The State of North Carolina supports the traditional public

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

Areas for purposes including navigation, fishing and recreation. Public

Trust Areas include estuarine waters, navigable water bodies to their

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

allows appropriate private development within Public Trust Areas, pro-

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

Ocean Beaches and Sand Dunes

Surf City has approximately 6 miles of barrier island ocean

shoreline characterized by wide and sandy beaches with moderately high

foredunes. The ocean bea ches consist of unconsolidated sail material with-

out vegetative covering; they are characteristically of a larger soil

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

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

nature, responding to fluctuations in the forces which cause their deposi-

tion and erosion. Tidal action littoral currents, and storms cause a

continual movement of sand both along the beach and between the dunes and

deeper ocean waters. The resultant changes in beach morphology cause the

shoreline, theoretically demarking the confluence of land and water, to

shift to the point of being virtually undefineable.

1-20

The ocean beaches are the most valuable natural recreational

resource in Surf City, and are extensively utilized as such. Their dynamic

nature, however, precludes safe and cost effective structural development on

them without the use of sound engineering practices established for coastal

hazard areas.

The foredunes in Surf City have an average elevation of about 20 ft

msl. From the northern town limits south to Barnacle Bill's Pier the

duneline is virtually solid, with only isolated spots broken or built upon.

From.the pier south to the vicinity of High Point Road, the duneline has

been damaged and in some cases obliterated. From the High Point.Road

vicinity to about 3/4 of a mile south of the fork in NC 50 the duneline is

again in.good condition, its condition varying from good to damaged the

rest of the distance south to the town line.

Sand dunes are valuable both for their aesthetic appeal and for the

protection they afford the land behind them. Where stabilized by vegetation,

a foredune can act as a temporary buffer to the erosive effects of storm

wave action. For the most part, however, dunes are relatively unstable

land features over time and as such, are hazardous areas for the location of

permanent structures.

Excessive Erosion Areas

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

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

recently when increased development of beach front property has taken place"

(Knowles, et al. 1973). Knowledge of the patterns of coastal erosion is

e-ssential to the safe and productive development of a coastal region.

The continual erosion and acretion occurring along a beach result

in a gradual change in the locati on of both the high water and dune lines

1-21

over time; excessive erosion and acretion, as accompany large storms, can

affect a change in the location of these lines very rapidly. In the course

of a large storm, great quantities of beach and dune sand can be eroded

from a site and replaced by subsequent acretion, with no net erosion re-

sulting. Structures situated on these sands, however, once removed, are

seldom replaced intact. Planning for safe development of beach front property

must take into account both long term erosion trends, established from

historical records, and the probability of extensive shorter term erosion

losses predictable by scientific study.

A comparison of mean annual erosion and acretion rates occurring

along Surf City beaches between 1938 and 1972 reports relatively minor

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

Over the 34 year period, the high water line in Surf City has been eroding

at a rate of .1 ft per year and the dune line has accreted at the rate of

.5 ft per year (Wahls 1973).

The amount of dune erosion that will take place during a storm of

a given frequency depends'on several factors, primarily the storm surge

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

from the mean water line (Knowles et al. 1973). Along Surf City beaches,

the calculated recession from the toe of the dune during a storm with an

expected frequency of once in twenty-five years is approximately 112 feet

(Knowles et al. 1973).

Erosion and acretion occur normally along the watercourses of

estuarine marshland in Surf City, but generally to a much lesser degree than

along its beaches. Erosion in the sound and along the Intracoastal Waterway

1-22

is often accelerated by the wake of motor boats; accretion in these

waters is accelerated when sands and silts, carried by streams from the

mainland, settle out in t he calmer waters of the sounds. Costly bulk-

heading of sound front property and maintenance of navigation channels

are often required for developments in these areas.

Resource Potential

Archeologic.

Two types of archeological resources have been recognized on

the North Carolina sea coast: remnants of earlier dwellers and sunken

vessels offshore.

Remains of prior cultures may be on dry land; the most common

are the shell mounds marking the scene of major fishing expeditions.

There is always the possibility that people of the Area during the

pleistocene perio d occupied areas now beneath the sea. There has been

no systematic inventory of such sites or indications of areas where

there is a high probability of finding evidence of ancient settlement.

The second resource is the wrecks of vessels sunk naturally

or by acts of war. Recent sub-surface exploratory work located a

blockade runner, the Phantom, off New Topsail Inlet. No evidence of
valuable wrecks is indicated in the uniform sea bottom off Surf City. a

Historic

Topsail Island was the scene of early rocket tes t facilities.

The test range was constructed and operated by the military establish-

ments. Work conducted from Camp Davis.and the missile range on Topsail

aGeorge Feehney, Personal Communication, October 28, 1975.

1-23

island was the forerunner of National Aeronautics and Space Administra-

tion's widely acclaimed achievements at Cape Canaveral.

Many of the key facilities were located in what is now.Surf

City,-- the island terminus of the pontoon bridge to the mainland. The

remaining evidence of the missile test range are an historic resource

of state and national importance.

Community Facilities

Community facilities in Pender County are operated some on a

county@wide basis, and some by individual communities and municipalities.

Many of the facilitie s and services that are offered on a county-wide

basis are operated out of the town of Burgaw located centrally in

Pender County. Road networks in the part of the county west of the

Northeast Cape Fear,River are integrated and distributed in such a

manner as to make the delivery of services out of Burgaw efficient,for

that area. A rule-of-thumb" is that all of this part of Pender County

is within a 30 minutes drive of Burgaw. Surf City, however, located on

the east coast of Pender County, is well beyond a 30 minute drive from

Burgaw, being.isolated from the bulk of the county by the vast Holly

Shelter swamplands with their complete lack-of throughroads. As a

result, some of those services offered by the county, including the

rescue squad and solid waste collection, do not serve the Town of Surf

City. Other County .. servic es, such as the health clinics, hospital,.and

library, while available to Surf City, are little used by town residents.

By virtue of U. S. 17's N-S orientation many services can be obtained

more readily by Surf City's residents in Wilmington or Jacksonville.

1-24

Health Service

Health services in Pender County are maintained primarily by the

Pender County Health Department, with headquarters in Burgaw. Health

services include Pender Memorial Hospital and Pender County Health Clinics.

However, most residents of Surf City, when in need of medical facilities,

use those facilities in New Hanover or Onslow County. There are no

doctors or dentists operating medical practices in Surf City.

Under the direction of a non-profit organization, the Penslow

Foundation, a new health center complex is being planned for the coastal

area of the County. The plans call for completion in 1976 of a health clinic

in Holly Ridge to house three doctors offices, one dentist office, a

pharmacist, waiting room, six treatment rooms, an.X-ray room, and a labora-

tory. The clinic would be operated on a 24-hour basis to serve residents

of the area from the Ocean west to Maple Hill and from Hampstead north to

Verona in Onslow County.

The Town of Surf City operates its own rescue squad equipped

with one ambulance and all volunteer personnel. Rescue squad vehicles

presently take emergency patients to hospitals in either Wilmington or

Jacksonville, but will in the future use emergency facilities of the Penslow

Clinic.

Fire Protection

Surf City has a 25 member volunteer fire department, equipped

with two trucks and one 750 gpm tanker. Fire calls from Surf City and

throughout the county go to a central dispatcher in Burgaw who activates an

alarm button to alert that fire department closest to the endangered area.

1-25

The Surf City Volunteer Fire Department has been given a fire pro-

tection insurance rating of 8 by the North Carolina Insurance Rating Bureau.

A rating of 8 indicates that the department equipment is in excellent condi-

tion, personnel are adequately trained, and the water supply and fire

hyd rant systems are reliable.

Education

Pender County has a con solidated school system with 12 schools' lo-

cated throughout'the County. Surf City resident school.. children attend,@grades

:K-3.;at Topsail.iHigh Hampstead, 4,7at Topsail.Middle.School.iri

Annandale, and B-12 at Topsail High School. Both of these schools are

located on U. S. 17 and require an eleven to thirteen mile trip each way

from Surf City. A county school bus system is available for all students

grades K-12.

Solid Waste Disp sal

There are at present two solid waste collection and disposal

systems in operation in Pender County. The whole inland area of the county

is provided with garbage' pickup and disposal by a county system begun in

February, 1973. There is one landfill for the area, located on SR 1640, 4

miles west of Burgaw. Garbage collection trucks, operated by the County,

make collections at designated locations, with subsequent deliveries to the

landfill.

The Topsail Township Landfill opened on July 7, 1975, to provide

a waste disposal site for the Beach areas of the county. Garbage collec-

tion'in Surf City is operated by the municipality; the landfill is operated

by the county. Garbage is collected 4 times-each week in Surf City. The

collection equipment is small, consisting of one dump and one pickup truck,

1-26

as the town cannot afford a large compactor type truck. Personnel include

3 men. In the winter months when the population is low, few trips to the site

west of the.Surf City Bridge on N. C. 50 are needed each collection day. In

summer, however, with the greatly increased tourist population, facilities

and manpower are required to work long hours in order to keep up with the

increased loads.

Water.and Sewer

As of June, 1973, there were a total of nine public water systems

in operation in Pender County; three of these systems are municipally owned,

the remaining six serving mobile home parks (Wiggins-Riiner and Associates.

.1973). Of the three municipal systems, only two, in Burgaw and Surf City,

actually have wells. The third, Topsail Beach, buys its water from Surf

City, but operates its own distribution system.

The Surf City water system was established in May, 1968, with the

financial assistance of the Federal Housing Administration. At the time of

the new system's installation, there were waterlines running N-S along

NC 50, and a storage tank located in the center of town, lef t from former

military activities. The new system, wherever feasible, incorporated the

existing lines and storage, adding new lines, drilling two new wells, and

installing an underwater pipeline across the AIWW. The water system was

designed to have an ultimate capacity of 2.5 mgd by the addition of up to

four more wells.

The two existing wells are located on NC 50-210 just west (one,

about 1/2 mile, the other, about 1 mile) of the AIWW; the wells have a

.combined rated capacity, based on State Board of Health criteria, of 516,000

1-27

a
gallons per 12 hour pumping day. According to Mr., Benson, there are ap-

proximately 500 customers connected to the system in each of the two towns

(Surf City and Topsail Beach), with a combined peak use of about 375,000

gallons per day in summer; peak'@use averages 140 000 gallons per day in Top-.

sail Beach.'and 235,000 gallons per'day in Su*rfcCity@@ .,The greater amount of

commercial activity in Surf City, including trailer parks, motels, and

restaurants probably accounts for the Town's@larger water consumption per

customer.

Waterlines in Surf City are located along the three N-S streets

with additional lines on major E-W streets. Anywhere in the developed part

of town, connection to the water system is economically feasible, and few

private wells remain in use. in the southern maritime forest area of town,

where there are no major E-W streets, a single N-S waterline runs along

NC 50. Future development in the maritime forest may require more extensive

line inst allation, which should be planned so as to destroy as little of the

forest resource as possible.

In 1973, approximately 93% of the population of Pender County

was served by private waste water dis posal systems, most of which serve

individual single-family residences and rely on subsurface disposal methods.

The problems with waste water disposal in Surf City are widespread, and

relate to three major characteristics of the area: a high water table,

poor soil conditions in some areas, and a population density which cannot

support public waste-water collection and disposal systems.

aRobbie Benson, Henry von Oesen and Associates, Personal Communication.

1-28

In Surf City, the development on small lots has created over-

crowded conditions for the septic tanks in use. The Town of Surf City, in

cooperation with Topsail Beach and Onslow County, is presently sponsoring a..

201 Plan to determine the feasibil ity of developing a waste water treatment

facility to serve all of Topsail Island.

Because of limited data, no other types of area with resource

potential, fragile or hazard areas, or other physical constraints on

development have been identified at this time.

In general, land uses-now present in Surf City have not resulted

in problems of compatability; residential/recreational land use is sup-

ported by commercial and institutional facilities. There are no

agricultural, industrial or forestry activities in conflict with the above

uses nor are any foreseen in the near future. Rather, land use problems

beginning to surface in the town and likely to be augmented in the future

involve more the intensity of various uses and the accommodation of

future growth on the limited amount of developable land in the town.

1-29

SECTION Il

ISSUES, OBJECTIVES,-AND STANDARDS

MAJOR ISSUES-AND GENERAL ALTERNATIVES

Since 1963, the Surf City summer population has increased by 160

percent; the year-round population increased by 339 percent between 1970

and 1975. Land prices have escalated accordingly. ocean front lots that
in the early 1950's sold for $1,500 are now asking $15,000. a

As vacation homes have increased in number, so have commercial

support facilities such as restaurants, motels and shopping areas. Through-

out the town and adjacent jurisdictions, single-family detached dwellings

abound, each utilizing sub-surface sewage disposal methods in soils with

moderate to severe limitations for septic tanks. The clo sing of Virginia

and Bekkie Creek shellfish waters to harvesting, traffic congestion, and

more crowded living.conditions have already resulted, threatening the

quality of those resources on which the town is based. Yet the demand for

living space, water, and services continues to rise.

Responses to a questionnaire sent to all property owhers.(see

Appendix,A),.indicate,that the open space and abundant'nitural'recreation

resources of Surf City,providing a variety of outdoor activities,are the

primary atractions.of the Town for both permanen t and vacationing popula-

tions. The quality of the beaches and waterways and their high recreation

value warrants the high price of beach area land. Existing employment

opportunities, public services, indoor entertainment, and cultural and

shopping facilities of the area do not offer sufficient incentive for either

permanent location or vacationing in the Town.

aMr. Alva Ward, Personal Interview, October 21, 1975.

There is some division in Surf City as to whether future growth

in the Town should occur slowly or rapidly. Tabulations of the question-

naire show that 45 percent of those responding desire slow growth of the

tourist trade and seasonal residents in the future, 42 percent want

rapid growth. There were 66 responses to the questionnnaire rec eived

from permanent residents and 113 from absentee property owners; 60 percent

of the permanent residents opted for rapid growth, 57 percent of the

absentee owners for slow growth. The majority of permanent residents,

many of whose livelihoods depend upon the tourist trade, could benefit

financially from increased commercial activity in the Town, including

an increase in shopping areas open year-round. Many absentee property

owners, as well as some permanent residents, see rapid growth as a

threat to the uncrowded living conditions and.clean air and water that

drew them to the town in the first place. Both resident and non-resident

property owners agreed that the main.problem in the Town at present is

unsightly development; over 80 percent of both segments stated that

future growth of commercial activity in the town should be regulated. The

lack of shopping areas septic tank problems, poor construction, and lack

of beach access were cited as the next four major problems. (Tabulated

results of the questionnaire survey are shown in Appendix A.)

Past Development Activities

The demand for land, particularly ocean and sound waterfront

land, continues to increase, but the supply remains constant. The develop-

ment industry of Surf City has responded to the increases in demand over

11-2

the years by increasing the intensity to which the existing land is

used. Most land use problems that have occurred in Surf City such as

the closing of shellfish waters to harvesting, extensive hurricane

damage, and the degradation of the scenic value of the land are the

direct result of attempts to develop the existing land surface beyond

its inherent capacity for that development. Development does not cause

hurricanespollution, erosion or siltation; but inappropriate develop-

ment activities can accelerate the damage caused by these natural

phenomena and create new problems such as overcrowding and the general

degradation of the natural resources on which the town is based.

The highest demand in beach areas (therefore the highest doll ar

value).has long been placed on the oceanfront acreage. The post WWII

increase in affluence, mobility, and second home building in this country

had already begun when private development of Surf City was initiated; as

aresult, developed oceanfront acreage in Surf City has always been

relatively expensive. In order to offer for sale to the general public,

the limited amount of land, the narrow oceanfront lots were developed

(generally 25 ft to 50 ft wide).

The military-built road extending the length of th e island was

included in the North Carolina road system by N. C. Department of Trans-

portation (NCDOT) as NC 50, and became the Town's main thoroughfare.

The proximity.to the duneline of NC 50 and Shore Drive in most cases

dictates the depth of lots and,to a certain extent, the location of houses

on.those lots. The esthetic and protective nature of the foredune we re

often disregarded. In some cases the dunes were considered an obstacle

11-3

'to land use; some areas of dunes were obliterated to make way for a

building while other dune areas were simply stripped of natural veg eta-

tion to accommodate construction. In most cases, the foredunes were

left intact by the elevating of houses over the dune and storm wave

attacks.

Storm and Erosion Protection

In October 1954, Hurricane Hazel hit Topsail,:I�land causing

severe damage to the existing buildings and destroying the pontoon

bridge to the mainland. Hazel p roduced a high tide of 9.6 feet above

mean sea level (msl), inundating virtually the whole island, whose

average elevation is 8-ft msl. The storm removed 850,000 cubic yards of

sand from the'beac hes of Topsail Beach and surf City,'.depQsiti.ng much of it

in the@central:part'of the'island .,(U. S. Army Corps of-Engineers..1965).

Many of the demolished buildings were rebuilt after the storm and a new

bridge was constructed; emergency crews returned much of the deposited

sand to the beach but the net elevation of the beach was lowered by two

feet causing future storm waves to break even closerto the remaining and

new structures. The Surf City area has not received severe hurricane

damage since "Donna" in 1960; historical records of hurricane occurrence,

however, indicate a high probability of hurricane recurrence in the near

future.

There are risks inherent in the ownership of beach property due

to weather patterns and the changeable nature of the environment. Some

degree of shoreline erosion must be expected to occur over time, new

inlets open where once there was solid landf and the high winds and waves

of hurricanes cannot be avoided. But to a certain extent, damages from

11-4

these forces can be reduced by the proper design and location of roads

and structures and by care taken to avoid the destruction of natural

protective features.

To be successful, storm and erosion protection measures must

be practiced throughout a hazard area, as one man's efforts to protect
his property can be thwarted by the negligence of neighbors. The
elevation of buildings on pilings to a level above the level of breaking
waves can prevent storm wave damage; but the erosion of sands on which
the building is situated can cause the collapse of a structurally sound
building that is located too close to the moving water. Homes can be
situated sufficiently far inland to be safe from actual wave and erosion
damage, but may remain susceptible to the battering-ram action of flying

debris from the breaking up of other structures not so well situated. A

gap in the duneline on one lot can initiate flood and erosion damage on

adjacent lots.

The health and safety of human life, the protection of property,

and the preservation of those natural resources which make beach areas
both attractive and economically productive must be primary matters of

local public policy. To be appropriate, development of beach areas must
consider not only the immediate return on the private investment dollar,

but also, the long range impact on community resources, values, and

welfare.

Visual Quality of Development
Responses to the questionnaire indicate that the people of
Surf City consider unsightly development to be the major pro blem in the
town. Former military activities left the town with an assortment of

11-5

buildings in a variety of sizes and shapes, all designed to meet military

specifications of visual quality; many of these structures have since

been adapted for private commercial or residential use.

Over the last twenty-five years, a variety of real-estate

firms has been involved with the subdivision of land and the platting of

lots in Surf City; only rarely did the development process include the

design of structures. Individual buildings were erected to meet

individual tastes and needs with little regard for uniformity of style

or quality. The extreme variation in building density is accentuated by

the grid road pattern, with squared-off empty blocks adjacent to full

ones. In the dunelands of the town there is little natural topographic

or vegetative relief to limit visibility; that which is unsightly is

unsightly for some distance.

The southern end of Surf City is graced with a narrow but lush

band of maritime forest beginning just west of NC 50. The forest canopy

begins at ground level as a shrub zone, and curves gently upward assuming

the form of a large dune. much of the forest land is developed only on

its periphery as a single row of houses along NC 50. Most dwellings

located deeper in the woods are secluded single family detached homes,

placed on large lots with only minimal damage done to the forest. In

isolated instances, bulldozers were used to scalp lots prior to construc-

tion. But for the most part, the integrity of the forest has so far

been maintained and large parcels with tremendous potential for high

quality development remain.

At present, many undeveloped single lots in the woods are for

sale, and the risk of the forests being carved into individual homesites

11-6

is high. In some areas, restrictive covenants limit the haphazard use of

bulldozers for clearing vegetation, but a grid pattern of driveways and

streets could well result from the sale of single rectangular lots.

The special scenic value of the maritime forest calls for an

alternative development approach that minimizes clearing and leaves a

maximum amount of solid forest stands. The clustering of housing in the

area, with common driveways and parking facilities, could result in a

sufficiently high gross density of families to be profitable to the

developer, while retaining the integrity of the land for the mutual benfit

of property owners and townspeople.

In the grass covered dunelands in the center of town, the per-

centage of land actually occupied by buildings is relatively low; many-

platted blocks,between Charlotte Avenue-and the-fork.,of NC'50.,are,virtually

undeveloped.

In the northern part of town, starting near New Bern Avenue,

structural density is extremely high with at least as many as 35-40 trailers

per acre. Some owners, rather than subdividing and selling individual

lots, rent trailer spaces. Septic tanks are the-sole method of sewage

disposal in the town despite the severe limitations for septic tanks

characteristic of the Capers-Newhan soils. Some trailer parks are situated

immediately adjacent to estuarine surface waters at elevations everywhere

less than 10 ft msl. Some of the estuarine waters in the vicinity, in-

cluding Bishop, Virginia and Bekkie Creeks, were closed to shellfish

harvesting by the Division of Shellfish Sanitation in January 1974. The

concern of local residents over the degradation of their environment and

the potential threat to human health prompted the U. S. Environmental

11-7

Protection Agency, and the NC division of Planning and Evaluation and

Water Quality to undertake a study to determine the source of the area's

pollution.

Providing Community Fa cilities and Services

Surf City has been developed as an ocean resort; resort communi-

ties have.the particularly troublesome problem of meeting with a small
permanent population the needs of a population that is seasonally four or

five ti mes as large. Much of the year-round population relies upon the

spending of the seasonal (vacation) population for its livelihood; con-
versely, the seasonal population relies upon the year-round population to

provide the-commercial services@it demands, such as shopping, dining,

and lodging, and to operate public servicessuch as police and fire pro-

tection. The unevenness of the population throughout the year limits

expansion of commercial facilities (causing questionnaire respondents

to select lack of shopping areas as a problem) and is-a major problem for

providing community facilities and ser vices. Facilities and personnel

sized to meet the demand of seasonal residents and visitors exceed by far

what is necessary to meet off-season demand. Specific issues are:

(1) Central Water Supply. The public water system in Surf

City was designed to be expandable to meet increasing demand. -_'The two

existing wells with a combined rated capacity of .516 mgd (with pumps
operating only 12 hours per day) are adequate to serve the present demands
of.Surf City and Topsail Beach, or an average of about .375 mgd in summer.a

a
The Town of Topsail Beach presently buys water from Surf City.

As explained in the description of present public facilities, the average
per capita use of the public water system is 47 gallons per day in Topsail

Beach and 100 gallons per day in Surf City. The projected combined peak

population of the two Towns in 1985 is nearly 17,500.
Assuming the per capita quantity of water use in the future to.be

the same as at present and that all units will be connected to the public

water system, at least 1.5 mgd will be required to supply peak population

demands in 1985. The capacity (2.5 mgd) of the waterline connecting

the mainland well field with the island would remain adequate. If the

existing wells were pumped on a 24 hour per day basis,.they:could produce

1.032 mgd. Additional wells will be required in the near f uture if Surf
City is to continue supplying water to meet both Surf City and Topsail

Beach needs. Secondary issues are: (1) whether the Surf City system should

become a regional system to meet island-wide demand or..be limited to Surf
City thus forcing.Topsail Beach and Onslow County to independently seek
.and distribute water supplies and (2) insuring that all dwelling units and

businesses in Surf City are connected to the central system.

(2) Sewage Collection and Treatment. The soils of the area

cannot accommodate the quantity of sewage that is produced by residential

densities as high as thirty units per acre. As noted earlier, the possi-
bility that current volumes of effluent discharged through individual
septic systems have saturated the permeable soil mantle and is moving
laterally into Class SA estuarine waters is under active study by state
and federal agencies. Even if the results of the study do not conclusively
show that present septic systems pose a clear threat to water quality
standards, new N. C. Department of Human Resources regulations governing

11-9

new septic systems will preclude new construction in much of Surf City.

The basic issue is the choice between continued reliance upon individual

systems or installations of a municipal sewer system. Required con-

nection to the sewer lines would not only allow for high density popu-'

lation in the.future, but would relieve problems caused by presently mal-

functioning sewage systems. The natural biological activities and

filatration capacity of the soils and estuarine waters can be expected

to eliminate the existing pollution in surface and gr ound waters over

a period of years if the sources of those pollutants are eliminated or
reduced to tolerable levels. If the issue is resolved by choice of a

sewer system, the concommitant water system issue will remain: separate

systems for each jurisdiction or a regional system.
(3) Police requirements. The cost of the Surf City Police

Department accounted for 26 percent of the 1974-75 Town budget. Yet the

size of the force is not commensurate with the summer population, traffic

flow, and the special attitudes and mores of people when they are away

from home. Vacant houses and closed-up businesses must be patrolled

during the off-season. The issues are (a) determining the level of pro-
tection required, (b) the level of year-round/seasonal population that,
will dictate a major expansion in police service demand, and (c) whether

Surf City should maintain an independent department, or rely upon

county provided service.
(4) Fire protection. Fire equipment is now housed in a

single, central fire station. Equipment and personnel are adequate for
prIesent conditions, but increased population and visitation may impose
stresses on the system. The issues are (a) finding ways to maintain

II-10

personnel in the station to accelerate responses to alarms and (b)

whether specialized equipment will be needed if structures suitable

for accommodating higher population densities are constructed.

.(5) Solid waste requirements. Pender County government recog-

nized the need for more intensive solid waste disposal service by opening

and operating a sanitary landfill to serve the area of the County be-

tween the ocean and U. S. 17. Two issues are emerging: (a) Land that

will meet specifications for a sanitary landfill anywhere in the strip

between U. S. 17 and the AIWW is scarce And in high demand for development.

Disposal of solid wastes wi 11 become a serious problem if the existing

landfill should prove to be inadequate for future needs and (b) equipment

to collect wastes from urban density summer populations is too expensive

to remain idle for the majority of the year.

(6) Beach and dune maintenance. The issue of beach maintenance

is closely related to the issue of access to Public Trust Areas. Eleven

questionnaire respondents listed beach litter as a main problem. Other

related problems are: (a) provision of lifeguard service and the

relation.@hip of such service to the Surf City Rescue Squad; (b) control

of motor vehicles on the strand and crossing the dune line (the Town now

prohibits vehicular use of the beach between May l,and Labor Day); and

enforcement of state dune protection ordinances and prohibitions against

removal of natural vegetation, and correction of gaps in the dune line.

.(7) Recreation facilities and programs. There are pres ently

no public recreation facilities or programs in Surf City. The in-
creasing of seasonal population and day visitors, consisting largely of

family units with children, will require increasingly diverse recrea-

tion activities. Open water for motorboating and water skiing and

land for tennis courts and game fields will be desired as year-round

and seasonal populations increase and become more sophisticated. Diverse

year-round recreation services will also become necessary as the number

of retired people increases. This has been true in all communities

that have attracted sizeable numbers of retirees. The issues

involved are (a) determining priorities for recreation facilities to

be developed, (b) acquiring suitable land for recreation areas and

.(c) scaling the size of facilities for year-round or seasonal populations.

(8) Traffic. Surf City is the main point of entry to Topsail

Island. All traffic to and from the Town of Topsail Beach must pass through

Surf City, as must traffic-from the south going to the Onslow County portion

of the island. Through traffic is confined to NC 50 and 210 which also

serve as the paved thoroughfares for all local traffic. Four issues

present themselves: (a) Separation of local traffic from through

traffic; (b) increasing the capacity of the through roads; (c) alleviating

the bottleneck caused by the frequent opening of the bridge over the AIWW;

and (d) facilitating the use of bicycles and other off-road'vehicles.

(9) Utilities. Electric service is provided by the Jones-

Onslow Electric Membership Corporation and telephone service is provided

by Carolina Telephone and Telegraph Company. The lines are aerial. As

structures are added, the number of poles, all very visible on a barrier

island, will increase apac e, and detract further from the present visual

amenities of Surf City.

11-12

Financing_Service Facilities

The major issue in financing the services enumerated is

determining an equitable distribution of the costs. The participants

are developers and commercial interests in the Town, visitors to the

Town,.dnd.:taxpayers.of Surf City, Pender County, North Carolina and

the Nation.

A principle of equity is that beneficiaries should pay a

proportion of costs equal to the proportion of benefits received.

Unswerving application of that principle poses problems and implica-

tions for public policy.

For instance:

(1). In resort communities such as Surf City, the vacationing

population comes from various parts of the state and country and enjoys

the use of beaches and waterways with no "admission fee" charged by

the Town. The commercial activity created by vacationers directly

benefits the Town financially, but does not provide adequate revenue to

support major s ervice facilities such as sewage treatment plants and

public water supplies. The local estuarine waters and marshes are a

valuable resource of the Town, supporting sport fishing and boating

activities; but they are also of value to the nation, contributing to

commercial fishing activities and resultant food supplies. The responsi-

bility for the health of vacationing populations (as well as year round

residents) and for the preservation of the productivity of estuaries

must be shared by local, state and federal governments.

(2) The State of North Carolina's Public Trust policy supports

11-13

the public's right to use the State's beaches and waterways, and

requires the provision of public access to Publ ic Trust Areas. It
may be the responsibility of developers to provide access for the

residents of subdivisions, and the responsibility of the town to assure

access for the townspeople; but the state must assume some degree of
responsibility for the provision of access to the general public, if
the state requires the provision of that access. Public use of beaches

and waterways necessitates public sanitation facilities and parking

areas. For vacationers using the lodging and dining facilities of the

town, sanitation facilities and parking areas can be required of the

commercial establishments. But the responsibility for "day-visitors",

with the rig ht to use the town's resources, is again a public responsi-

bility, to be shared by State and Town goverment.
(3) There is concern on the part of resident and non-resident

taxpayers alike that the visual quality of the Town be improved

and that future development and the use of resources be carefully

planned., But plans must be implemented, just as codes and ordinances
must be enforced, and professionally trained personnel are required to

do either job well. The establishment of a municipal body charged with

coordination and implementation of future planning, permit issuance,

and ordinance provision would help to insure adherence to the standards

for future development that have been set by the taxpayers, but the

benefits of such action extend far beyond the limits of the Town. The

list of examples could cover each of the public facility issues. The

fundamental issue is: Who pays.

11-14

OBJECTIVES AND STANDARDS FOR SURF CITY

The Coastal Area Management Act of 1974 requires local juris-

dictions who choose to formulate land use plans under the Act to base

those plans on publicly derived goals for future development.

The Town of Surf City mailed questionnaires to all taxpayers of

the Town to ascertain their views on future development goals.and standards.

On July 29, a public meeting, sponsored jointly by Onslow County and the

Towns of Surf City and Topsail Beach was held on Topsail Island. In

this meeting, development alternatives for each jurisdiction, with the

projected population expected to accompany each alternative, were sub-

mitted to the people in attendance. In a Planning Board-Advisory Council

meeting held in...Surf City on September 16, the tabulated results of the

returned questionnaires were discussed-in-conjunction with the development

alternatives. In its.meeting on January 12, 1976, the Surf City Town

Board and interested citizens reviewed the citizen questionnaire responses

and comments received from the floor in public meetings. These acti vities

have resulted in-the following statement of Objectives and Standards for.

Surf City.

Objective: It is to be the policy of Surf City to encourage continued

development of the Town as a family beach.

Standards: 1. Community services, including facilities for water supply

and sewage treatment, road construction and maintenance,

and police and fire protection will be planned for a peak

summer population in 1985 of 6,570 and a year-round

population of 960.

11-15

2. The development of a variety of commercial recreation and

shopping facilities will be encouraged in the business

district and along the causeway in order both to meet

the demands of vacationing and permanent populations and

to increase employment opportunities for permanent

residents.

3. The construction of a variety of housing types limited to
3@stories-from ground level @(including.single family:'.du lex,

apartment, motel@and'condominium) will be encouraged, in

order to accommodate residents and vacationers with differing

economic resources and needs.

In order to meet the demand for increased shopping and

recreational areas, the Town:will consider annexation of land

needed between the AIWW and US 17.

5. The Town will approve the establishment of a Chamber of

Commerce to promote the Town as an enjoyable recreation

center.

Objective: It will be the policy of Surf City to promote that quality of

development which will offer the maximum reasonable enhancement

of the natural and economic resources of the Town.

Standards: 1. The Town will require strict adherence to the zoning ordinance,

the minimum standards of the State building code (with wind-

storm) and will establish ordinances necessary to protect the

esthetic and protective nature of the dune system.

2. In order to alleviate any possible pollution of estuarine or

ground-waters, the Town will promote the development of a

11-16

regional public sewerage system and will require connection

to the system upon its establishment.

3. In order to maximize the value of the maritime forest, special

land use regulations such as a Planned Unit Development

be enacted for the forested parts of the Town.

4. The Town will seek assistance in defining the historic value

of observation towers left from military activities and in

developing one tower into an historic museum.

5. In order to alleviate traffic congestion and hazards, the

N. C. Department of Transportation and the Corps of Engineers

will be requested to establish regular intervals for opening

the drawbridge.

6. Parking.@areas will,.be established along.@cr6ss-i�land.street@

rights-ofn@way and.parking will be prohibited along NC 50.

Objective: It will be the policy of Surf City to promote the safe and enjoyable

utilization of.the Town's recreational resources.

Standards: 1. The Town favors establishment of a balanced recreational program

for residents and vacationers. In order to promote recrea-

tional use of its waterways, the Town will seek development of

boat launching ramps and a marina along the causeway. Other

recreation needs will be met as feasible by developing a

municipal park complex and an active recreation service program.

2. The use of motorized vehicles on the beach strand will be

regulated by ordinance; the crossing of dunes by motor

vehicles will be restricted to a specially constructed ramp.

3. Efforts will be made in road alignment and construction

11-17

to accommodate safe bicycle and pedestrian traffic

particularly in the vicinity of recreation facilities.

4. The Town will make efforts to reduce the incidence of

beach litter and will establish a beach clean-up program.

5. It will be a function of the Town to ensure that reasonable

access to the ocean and sound waters of the Town be

available to the public. The developers of new subdivisions

will provide rights-of-way and adequate structural access to

adjacent watercourses. Such structures and rights-of-way when

acceptable to th&Tow-h, will thereafter@be maintained by the

Town, and designated as public accessways by appropriate

signs. When the number of accessways becomes adequate to

serve the public, public access will be restricted to those

designated areas.

11-18

SECTION III

AREAS OF ENVIRONMENTAL CONCERN

INTRODUCTION

Section I of the Land Use Plan describes physical characteristics

of the land and water in Surf City and specific areas of the Town in which

many kinds of development would be either especially costly or likely to

cause undesirable consequences. Some of these characteristics, such.as

the soils' high water table, susceptibility to flooding and low bearing

strength, constrain development primarily because of the high costs in-

volv6d in adapting the land for use. In many parts of the Town, intensive

development, as for urban, transportation or recreational use, would not

necessarily endanger the inherent value of the resource, but would require

excessive public or private expenditures for construction, maintaining

access, disposing of waste products, or assuring adequate drainage.

In some parts of the Town, however, the.undesirable consequences

that could result from uncontrolled or inappropriate development are not

limited to monetary costs. In particularly valuable or fragile areas,

misuse of the land or water can cause degradation of a site's biological,

visual, or economic resource value. In particularly hazardous areas, poorly

located, designed or constructed development can increase the risk of

property loss or endanger the health and safety of people using it.

The Surf City Objectives and Standards cite the land use policies

which will be used to guide the location and quality of development in the

future in order to protect and manage the Town's resources and reduce

service costs to municipal government. Private citizens are encouraged to

solicit the professional advice offered by county, state, and federal land

management agencies on methods of reducing private costs of land use. But

for the particularly fragile and hazardous areas of the Town, stricter

control of land use activities is necessary in order to assure that

development proceeds in a manner consistent with the capability of the

land and water to sustain it. In these areas, designated Areas of

Environmental Concern, the Town is establishing specific standa rds for

use and development of each area category.

Ultimately, as required by the 1974 N. C. Coastal Area Management

Act, the N. C. Coastal Resources Commission (CRC) will designate Areas of

Environmental Concern throughout the coastal counties and will designate

a permit letting authority to regulate land -use within these areas. The

following categories and standards are to serve both as guidelines for Town

Plan implementation and as recommendations.to the CRC for consideration as

State Areas'of Environmental Concern.

The Estuarine System

The estuarine.waters, marshes and mudflats, as defined by G. S.

113-229 and G. S. 113-230, are of primary importance to the Town and the

North Carolina coastal area because of their economic, scenic and recrea-

tional resource value. The tidal marshes and surrounding estuarine waters

cover extensive areas of the municipal jurisdiction; serving as a primary

food source for numerous fish and shellfish species, they contribute tre-

mendously to the biological productivity of the area. As a scenic resource,

the marshes are unsurpassed, supporting a diversity of waterfowl and subtle

vegetation patterns characteristic of the coastal area. The waterways function

as transportation corridors for commercial and sport boating activities and

provide for hunting and fishing of a variety of wildlife.

The authority for regulating the use and modification of the

estuarine resources has for a number of years rested with state and federal

111-2

permit letting agencies. But until recently,the degree of regulation

exercised was slight and the criteri a for permit letting did not include

consideration of the ecological balance of the estuarine system. Approvals

for marshland dredging and filling were often as not a mere formality and

sometimes granted after the fact. The increasing awareness of the damage

caused by these activities, however, has resulted in much stricter review

now of permit applications.

The people of Pender County recognize the importance of the

estuarine system and accept the regulation of its use and development as

a.necessity. many in the immediate coastal area, however, are now being

denied permits to maintain existi ng access canals. Because of siltation

in both natural and artificial channels, access from the island out into

the AIWW is severely limited; thus the use of some of the recreational

resources people moved to the area to enjoy is impaired. For this reason.,

the Town will work with state and federal authorities in managing and, where

necessary, preserving the natural state of the estuarine system, but will

seek to have established and maintained sufficient public navigational

channels to allow reasonable use and enjoyment of its water resources.

The only kinds of new development that can conceivably be

justified in the estuary are those that require water access and cannot

function anywhere else. Piers, docks and marinas, for instance, connecting

water-oriented with upland activities, may be considered appropriate if their

need in the area can be demonstrated and their specific location and design

can be shown to be the most suitable alternative. The Town recognizes,

however, that while a pier or dock itself does not necessarily cause

degradation of the productivity of the estuary, the activities involved in

111-3

constructing it may. For that reason, the highest reasonable standards of

construction will be required for any construction in the area.

Beach-Foredune Syst

The Atlantic shoreline of Surf City is characterized by wide

and sandy beaches, backed by a moderately high foredune. The beaches are

the primary attraction of the outer banks for the residents and thousands
vacationers who visit in the summer. The foredunes are a valuable scenic

attraction and,a buffer to the erosive effects of storm-induced wind and

w&ves@ The dynamic nature.of the beach-foredune complex, however,

precludes safe structural development on it since that development and

the construction activities involved endanger both the scenic and pro-

tective value of the resource and the roads and building situated inland.

Because, however, of the recreational use of the beaches and the

necessity for adequate access to them'.allowances will be made for the
provision of structural accessways across the dune provided thatutmost

care is exercised in their location and construction to prevent damage to

the dune and the vegetation growing on it. Allowances will also be made

for the erection of safety facilities such as lifeguard chairs, and for

necessarily water-oriented recreational structures such as fishing piers.

Nazard Areas

The estuarine system, ocean beaches and sand dunes, though

inseparable from the rest of the Town, have been addressed. separately,be-

cause of their particularly.fragile nature'and high resource,value. But the

municipal jurisdiction as a whole is an area of environmental concern because

of the importance of protecting the health, safety and rights of the people

who live, visit and own property there.

111-4

The North Carolina outer banks, as a marketable piece of real

estate, is the most valuable area of the coast, sought after for second

homes, residences and vacation sites, and for business enterprises to

support these uses. But the outer banks as a geologic feature is a

dynamic, perhaps transient, -land form. The same forces of wind, water

and time which caused the creation of the banks' various features con-

stantly modify these features both in location and extent. Problems

are encountered when the man-made structures developed to accommodate

their use and enjoyment are built to be static and permanent despite

their location.i.in an ever-changing environment.

@Exce.ssiveErosion Areas

The only realistic compromise between expensive, fruitless

combat with the forces of nature and complete surrender to their supremacy

is development of only the more stable parts of the whole in a manner which

those parts can accommodate. For that' reason, any new development in the

particularly hazardous area of.the Town will be strongly discouraged and,

unless demonstrated to be directly in the public interest, will not be

supported by public funds. In particular, oceanfront property with a high

probability of incurring excessive erosion is an unsuitable location for

the placement of structures used for housing, institutional purposes,

transportation or commerce, and is considered of too high a risk to warrant

public investments into roads, sewer and water lines and other such

facilities.

Because of limited data and some inconsistencies in available

data, the inland extent of areas subject to excessive erosion in Surf

111-5

City is unknown. For that reason, only a dynamic zone (referred to on AEC

map as ocean Erodible) can be established at this time to warn prospective

buyers of oceanfront property of its hazardous location. All construc-

tion in this dynamic zone will be required to meet at least the minimum

standards of the North Carolina Building Code and conform to the standards

of the Federal Insurance Administration for coastal high hazard areas.

.,.Coastal' Flood Plains

Virtually all of the county's outer banks and some of the

adjacent mainland are within a U. S. G. S. designated Flood Prone Area,

susceptible to inundation during severe storms. Ho wever, in order to

reduce both flood insurance, all c onstruction in coastal flood prone areas

will be required to meet the Federal Insurance Administration standards for

coastal high hazard areas.

Public Trust Areas

Surf City supports the traditional public rights of access to

and use of lands and waters designated Public Trust Areas for purposes in-

cluding navigation, fishing and recreation. The Town both supports and

encourages the development of commercial recreation.facilities, especially

those that promote the use and enjoyment of its waterways. But to the degree

authorized by statute, the Town will require some provision for public access

in new subdivisions in Public Trust Areas and will prohibit any develop-

ment which unduly restricts public access to and use of these areas.

It is obvious from the outset th at protection of Areas of

Environmental Concern in the Town cannot be accomplished without some

consideration of land uses in areas immediately adjacent. The estuarine

system along the S urf City coast, for instance, is only part of the system

111-6

extending northward into Onslow County and southward into Topsail Beach.
Surf City's regulatory authority to prevent pollution and siltation can
be extended only throughout its political jurisdiction. Circulation
patterns in the water that transports silt and pollution, however, function

without regard to political boundaries.
Plate 2 delineates the approximate location of various categories

of municipally designated Areas of Environmental Concern. It must be
emphasized, however, that these delineations are not sufficient for most
regulatory purposes because of the necessarily small map scale and becausel
in most cases, on7site evaluations will be necessary in order to determine

the precise boundary of a particular category of land or water. But the
Town encourages anyone involved in or contemplating a change in land use

in the Town to use this map as a guideline for interpreting municipal and

state policy and for predicting the possible effect of public policy on

particular parcels of land.

111-7

SECTION IV

FUTURE LAND USE

THE DEMAND FOR LAND

The 1975 Surf City peak seasonal population was estimated to be 5,424;
the year-round population was 729. The growth goal for the future calls
for an ultimate peak population of 7,700 in 2000 with 1,200 permanent
residents. The peak population expected to be reached in 1985 is 6,570 with

960 permanent residents.

Factors Influencing Growth
Projections for continued growth in Surf City over the next 25 years
are based heavily on the rate of growth the town has incurred over the
last 20 years. That growth, especially of seasonal population, resulted
at least partially from.nationwide affluence and increased disposable
income. The long-term effects the current economic.recession and the
rising price of gasoline will have on the town's future development cannot
be predicted at this time An island-wide Chamber of Commerce has been
established to attract tourists to the area; but it can be assumed that
the general economic slowdown will at least temporarily continue to affect

second home building and tourism in Surf City.
Surf City is not located in close enough proximity (by existing road
mileage) to metropolitan growth centers to be strongly susceptible to
suburban spillover in the near future; but the island's northern bridge
in Onslow County links Surf City, if only loosely, with growth in the
Jacksonville area. What is more, Pender County has initiated an economic
development program which could promote more ermanent residential develop-
p

ment in the town,if employment centers were developed nearby. The completion

of the Penslow Health Clinic in Holly Ridge could encourage permanent

location of more families and retired persons.

IV-1

The primary limiting factor for continued growth in Surf City relates

to the availability of sewage disposal facilities. The soils of the

island have severe limitations for septic tanks which are currently the

only method of sewage disposal utilized in the town. Shellfish waters

adjacent to high density development in Surf City have been closed to

harvesting, and ground water supplies in the area are contaminated from

subsurface wastewater disposal systems' malfunctioning in supersaturated

soils. Some of the problems can be attributed to sources of pollution

outside Surf City, and there are parts of the town either undeveloped

or developed at such low densities that they are not considered sources

of pollution at this time.

Some of the major pollution problems occur where marshland was

filled to accommodate residential development; the compaction of under-

lying soils created a layer of soil virtually impervious to the downward

flow of water,..includi ng septic tank effluent. With downward flow

impeded, effluent-flowed laterally, draining almost directly into

estuarine waters.

The major pollution problems are located in or adjacent to the most

densely developed parts of the island, which are also the parts of the

island furthest from an inlet. An inlet's,strong water circulation patterns

tend to diffuse contaminants and promote faster biological reduction;

toward the center of the island, water circulation is reduced, allowing

contaminants to build up beyond the water's inherent ability to reduce

them.

With the above factors taken into account, it is conceivable, if

not probable, that if the existing population of the area were distributed

more sparsely on soils more suited,for development using properly

iv-2

installed and maintained septic tanks, the current pollution problems

could have been avoided. The ye ar-round population of the town (as well

as the rest of the island) is low; peak seasonal us e of the area is

short. For these reasons, it-is also possible that some additional growth

held to sufficiently low densities in parts of the town could safely be

accommodated with@properly installed and maintained septic tanks.

The total amount of residential and commercial land use which could

be distributed throughout Surf City and safely accommodated by septic

tanks cannot realistically be determined at this time. In some parts of

the town development already exceeds the capacity of the land and water

resources to support it; remedies for the polluti on in these areas have

yet to be found. It can be assumed, however, that some of the anticipated

growth could be accommodated in other parts of the town without causing

further degradation of the quality of ground or surface waters, or ex-

tending the pollution beyond its present location. For these reasons, any

increase in population in some parts of the town may temporarily have to be

curtailed; in the rest of the town the density of development will have to

be strictly controlled. Eventually, however, failure to find means to

install an adequate sewerage system could not only delay but perhaps pro-

hibit the rest of the growth which has been projected.

Accormnodating Future Growth

Residential Land

The projected population increase by 1985 consists of both permanent

residents and vacationers. There are currently (1975) 16 motels in the

town with a total of 208 units. Housing is in the form of single family

detached dwellings (50 percent.), multifamily structures such as apartments

IV 3

and duplexes (12 percent), and mobile homes (38 percent). In order to

accommodate residents and vacationers with differing financial resources

and needs, construction of a larger variety of housing types including

condominiums will be encouraged. However, in order to remain within the

capacity.of firefighting equipment and to prevent one structure's blocking

the view of another, the height of buildings will be limited to three

stories from the ground level.

Approximately 86 percent of the 1975 peak summer population was housed

in the (1113) non-motel units. Assuming that that percentage will..remain

constant in the future, the re -should be a demand for enough housing to

accommodate approximately 5,650 people in 1985. At an average occupancy

rate of 4.2 persons per uniti approximately 235 new housing units would

be required.

There are 355 acres of developable land in the town zoned for resi-

dential use; of these 355 acres, approximately 230 are now actually in

residential or other use, i.e., have structures on them. There are,

therefore, approximately 125 acres of residential land in the town available

for future development.

There are numerous lots which have not yet been built upon in existing

residential subdivisions; but neither the total number of these lots re-

m,ining nor the number of them that have already been sold to prospective

homebuilders is known. It can be assumed that the Zoning Ordinance's mini-
mum lot size requirementa would allow for many of the additional residential

2
aMinimum lot sizes vary from 800 ft /dwelling unit for 12 family structures
to 5000 ft2/dwelling unit for single family structures depending on the
residential district; there are no minimum lot sizes for mobile homes in
mobile home parks.

IV:-4

units-to be constructed within existing subdivisions; but no reliable

estimate of the number of units that could be constructed in any particular

subdivision has been made at this time, since some subdivisions have deed

restrictions attached to them with minimum lot size requirements which

exceed those of-the Zoning ordinance.

The largest parcels of undeveloped residential land in Surf City

are located in the maritime forest. The future development of the forest-

land is of particular concern to the townspeople because of the forest's

special scenic value and its potential for high quality development. The

town's zoning regulations were established partially for the purpose of

regulating density so as to prevent the overcrowding of land and to

facilitate adequate provision of public services. The traditional forms

of regulation, though potentially effective means for limiting density

and assuring that certain standards of quality are met, allow little

flexibility in the design of subdivisions and tend to promote grid road

patterns. For this reason, the town will attempt to amend its zoning and
-enact subdivision regulat.ions to allow for Planned Unit Development (PUD )a in

undeveloped parts of.town. -Overall density under PUD or other sub-

division regulations will probably be lower than is now provided for in

the zoning regulations; but the clustering of housing, more creative road

alignment, common open spaces and the like will be encouraged in order

to retain the maximum value of the forest and dune lands. The allowance

of clustered housing@in the future could also facilitate more economic

installation of "package" sewage disposal systems, should such systems

become necessary.

aPUD is a method of controlling land use that is designed to work on a
project by project basis, adjusting rigid regulations to the needs of a
proposed development when such adjustment would be in the mutual interest
of the town and developer. iv-5

Commercial and Public Institutional Land

While the existing motel units represent 16 percent of the total

number of residential units, they accommodate, on the average, only 14

percent of the peak summer population. Assuming that that percentage

too, will remain constant in the future, there should be a demand in 1985

for enough motel units to accommodate 920 people. At an average oc-

cupancy rate of 3.6 persons per unit, approximately 48 new motel units

will be required.

It has not been determined at this time how much of the 181 acres

(34 percent of the total developable land in the town) zoned for commer-

cial uses is built upon to its fullest extent and how much remains

developable. From. aerial photography and ground work the number of

business and public buildings (57 in 1975) can be counted. The amount of

that land.surroundi ng.buildings that.is already being used for business

purposes (for parking, solid waste disposal, advertising, etc.), as

opposed to the amount on which additional-commercial structures could be

built, however, has not yet been determined. There are no minimum lot or

yard size requirements for commercial structures from which to estimate

the "developed" status of land.

The town's property owners have stated a desire for more shopping

facilities in the future. what is more, Surf City functions as the

major shopping area on Topsail Island, with the island's only shopping

center, bank, hardware store, gas station and the like. Some increase in

commercial activity is being encouraged in the Onslow County portion of

the island, but Topsail Beach's reliance on Surf City's commercial facilities

will probably continue in the future.

IV-6

'The demand for increased shopping and commercial recreation facilities

in the future probably involves a demand for more land. Because of the

high demand on immediate beach area land for private and commercial housing

and recreational use, the town is considering annexation of additional

land west of the AIWW to supply the demand for general shopping areas. In

order to determine the kinds of businesses to encourage to locate and

the amount of land their location will require, the town will initiate in

the future a commercial need study. The study will assess, as the same

time, the need for additional governmental and institutional land; in par-

ticular, the town is seeking development of municipal government complex

to house municipal offices and service facilities as appropriate. (A

location for the planned sewage treatment facility has not yet been pro-

posed but would likely be in the Surf City area.)

Public Recreationa 1 Land

The people of Surf City recognize the need for some publicly-owned and

operated recreational areas, with adequate parking, sanitation and safety

facilities. The high cost of beach area land, however, will limit the

amount which the town will be able to purchase. In order to promote

recreational use of its waterways, the town will seek development of boat

launching ramps and a marina along the causeway. The town will coordinate

its promotion of waterway recreational development with county efforts to

maintain adequate access canals and to establish boat launching ramps on

the mainland. The town will encourage the development of commercial

recreation facilities to complement and support whatever public facilities

can be established.

There are numerous structures in the town remaining from former

military use of the island. Since the island was the forerunner to the

IV-7

missile and rocket program relocated at Cape Kennedy, many of these

structures may have historical significance. The town will seek assist-

ance from the N. C. Department of Archives and History in defining the

historic value of these structures and will study the feasibility of

incorporating some of these structures, in particular an observation tower,

into a municipal park complex.

!V-8

LAND CLASSIFICATION SYSTEM

The North Carolina Land Policy Council has established a Land

Classification System for localities to use to identify the most appro-

priate general uses of various kinds of land. The town's Land

Classification Map (LCM) produced from the classification system will

serve as a local government tool for informing state and federal authorities,

as well as local residents and property owners, on where and at what

density growth is desired, and of areas for which new or amended land use

regulations will.soon be established.

The Land Classification System categories would perhaps be more

applicable to more urbanized places with more diverse land uses than Surf

City. Moreover, the system was established to deal with projected in-

creases in permanent population, rather than seasonal population which in

Surf City is much higher. The population density needed.to warrant the

"Developed" or "Transitional" category, for instance, though applicablefor

the summer season, exceeds the hig hest densities found in the town in

winter. Strict application of the defined criteria for each category,

thereforel is impossible; but the system, when adapted to the town's needs,

can be used for its intended purpose.

The Land Classification System includes the following five categories

of land:

1. Developed Lands where existing population density is moderate

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

necessary public services,

2. Transitional- Lands where local government plans to accommodate

moderate to high density development during the following ten-

year period and where necessary public services will be provided

to accommodate that growth.

IV@9

3. Community - Lands where low density development is grouped in

existing settlements or will occur in such settlements during the

following ten-year period and will not require extensive public

services now or in the future.

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

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

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

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

maintain a healthy natural environment and necessary to provide

for the public health, safety, and welfare.

The two categories of land most applicable to Surf City are Transitional

and Conservation. The Conservation class includes the estuarine areas of

the town and the beaches and foredunes; the Conservation designation

indicates the municipal policy determination that services, including water

and sewer lines and paved streets, will not be extended into Conservation

a
areas.

The Transitional class covers the remaining parts of the town where

densities in the future are likely to necessitate public service extension,

and appropriate development will be supported as necessary.by public funds.

Obviously, the key to the designation of this part of the town as Transitional

lies in the assumption that public sewerage facilities will be available.

Failure to obtain such facilities in the future may necessitate redesignation

of.the area as Community, with revision of land use ordinances to require

sufficiently low densities that public sewerage will not be necessary.

aAnywhere, however, that these services have already been extended into
Conservation areas they may remain.

IV7-10

SECTION V

PIAN ADOPTION AND IMPLE24ENTATION

PLAN ADOPTION

As authorized by the Town Board of Com missioners, the Surf City Land

Use Plan was prepared by the Town with technical assistance provided by

Coastal.Zone Resources Corporation. Current economic, social, and en-

vironmental:conditions in the town were assessed; the major land use issues

were addressed; and alternative policy measures which could be used to

solve existing and deter potential problems were studied. During this

process, public opinion was solicited, obtained and evaluated, and used

as a primary determinant of future objectives, standards and policies.

In order to-ensure that the Surf City.Plan would be compatible with

provisions and policies.o f the Pender County Plan activities of the re-

spective planning groups were coordinated. The agenda for town planning

meetings often included reports of planning progress in adjacent Topsail

Beach and the county. on may 20, 1975, a meeting of elected officials

and Planning Board members from each planning jurisdiction in the county

was held in Burgaw to discuss mutual problems encountered. On October 30,

1975, a joint county-municipal Planning meeting was held in Burgaw in

order for.each jurisdiction to present to the others planning progress to

date. On.June 10, 1975, a meeting sponsored jointly by Onslow County,

Surf City, and Topsail Beach was held in Surf City to coordinate 201 Plan

and CAMA planning activities in the three jurisdictions. Representatives

of planning firms involved and of the Cape Fear Council of Governments

were in attendance at each of the three meetings.

The preliminary draft of the Land Use Plan, including recommended

policies, was submitted in January 1975 to the Town Commissioners for review.

The elected officials discussed at length the issues involved and their

implications for future growth and land use in the town. From this review

V-1

session and further studies of alter natives, the proposed plan and policies

for future development of the town were developed.

In order that the essential elements of the Plan, including its land

use policies, objectives and standards, be available to all interested

persons, a Synopsis of the Plan is being prepared. The Synopsis will in-

clude the Land Classification Map and examples of the Existing Land Use

delineations, with an explanation of how additional information can be

obtained upon request.

The sequence of events yet to come, before final adoption and

implementation of the Plan, includes:

1. Municipal Public Hearing On May 9, 1976, the Town of Surf City

will hold a public hearing in order to receive comments from

residents and property owners on the proposed Land Use Plan and

Synopsis. Comments and suggestions made in the public hearing

will be carefully reviewed; necessary changes in the Plan and

Synopsis will be made before their formal adoption by the town.

2. Joint City/County Public Hearing -- On May 10, 1976, a joint

public hearing, in which.the Pender County and all municipal

plans will be presented and comments on them received, will be

held in Burgaw. The purpose of the joint hearing is to assure

compatibility among the various plans compiled within the county.

3. Transmission to the Coastal Resources Commission -- By May 21,

1976, a certified copy of the Adopted Plan will be sent to the

Coastal Resources Commission for its review and approval.

At least 30 days before.the town's public hearing, a copy of the

completed Plan with maps will be placed in the Town Hall and the County

V.-2

Courthouse for public review and inspection. Notice of both public

hearings and of the availability of the Plan for review will he made in

newspapers distributed locally,

Following adoption of the Plan and its approval by the Coastal

Resources Commission, copies of the full Plan will be available for study

in the Town Hall and County Courthouse. Copies of the Plan and/or of any

of its maps can be obtained-from the Town Hall, at cost, upon written

request. The Synopsis will be mailed to all recorded property owners of the

Town; additional copies of the Synopsis will be made available free of

charge upon written request.

V-3

PLAN IMPLEMENTATION

The second phase of the CAMA planning process involves implementation

of the Land Use Plan. The town's adoption of its Plan constitutes a

formal declaration of land use policies; but many of the standards pro-
posed for meeting objectives require either some revision of existing town
ordinances or enactment of new ordinances in order to become effective.

Related planning activities, as for a parks and recreation program, are

also involved in plan implementation
The major elements of the implementation phase of the Land Use Planning

process in Surf City are summarized as follows:

Revision and Enactment of Town Ordinances

In order.to carry out policy objectives, some revision of the town's

Zoning Ordinance and Building Code will be necessary. In addition, sub-
division and septic tank regulations and a sand dune protection ordinance

will be enacted. Specifically, provisions will be made for:

1. effectively regulating the density of development,

2. allowing a larger variety of subdivision designs including

Planned Unit Development,

3. assuring that all construction will meet applicable Federal

Insurance Administration standards,

4. assur ing that development and construction activities will minimize

damage to the town's natural and scenic resources,

5. establishing a method of advising prospective property buyers of

the municipal policy of service provision to hazard areas and

Conservation lands,

6. requiring connection to the town's water system (and sewer system

if installed),

V-4

7. assuring provision-of adequate structural accessways to Public

Trust areas,

S. regulating the use of motor vehicles in the beach strand, and

9. restricting public parking to designated areas.

Coordination of Permit-Letting Authorities

The 1974 Coastal Area Management Act provides for local permit-letting
agencies to be established for minor development a permits required in Areas

of Environmental Concern (AEC's). In order to qualify for AEC permit-

letting authority, a local jurisdiction must first declare its intent, then

prepare a Local Management Plan acceptable to the Coastal Resources

Commission (CRC). The CRC is currently establishing criteria for local

implementation an d enforcement programs including elements that will be

required for approval of a Local Management Plan.

The CRC emphasizes the value of coordinating, the activities of various

local regulatory authorities, such as building and septic tank inspections,

subdivision plat Approvals, and sedimentation and erosion control program

approvals, with the AEC minor development permit-letting authority. Such

coordination could simplify the permit-letting process for both the juris-

diction and applican ts involved and could reduce local governments cost s

of reviewing various kinds of applications. The CRC criteria being

developed will also allow-for City-County coordinated permit-letting

aThe term: "Minor Development" means any development other than a major
development. The statutory definition of Major Development is "any
development which requires permission, licensing, approval, certification
or authorization in any form from the Environmental Management Commission,
the Health Services Commission, the State Departments of Natural and
Economic Resources or Conservation and Development, the State Department
of Administration, the North Carolina Mining Commission, the North Carolina
Pesticides Board, or the North Carolina Sedimentation Control Commission;
or which occupies a land or water area in excess of 20 acres; or which
contemplates drilling for or excavating natural resources on land or under.
water; or which occupies on a single parcel a structure or structures in
excess of a ground area of 60,000 square feet."
V,5

authorities.

Therefore, part of the implementation phase of planning in Surf City

will be development of the aforementione d Local Management Plan,

Related Planning Activities

As called for in the Objectives and Standards of the Plan, the Town

will study'the feasibility of establishing a municipal park and recreation

program and municipal office@complex, of developing bicycle lands es-

pecially in the vicinity of recreation facilities, and of annexing

additional land west of.the AIWW.

The town will augment its efforts (201 Plan) to have a regional sewage

disposal facility established and to obtain adequate outside funding to

alleviate excessive costs to the town and property owners.

Section 208 of the Federal Water Pollution Control Act Amendments of

(PL 92-500), as well as other sections of this law, is de signed to

achieve water quality which "provides for the protection and propagation of

fish, shellfish, and wildlife and provides for recreation in and on the

water" by July 1, 1983. Section 208, more specifically, is designed to

plan ways to reduce all types of pollution in specially designated areas to

the 1983 level and to set up a management agency to guarantee achievement

and maintenance of the 1983 water quality level. Areas in North Carolina

having complex water quality control problems have been designated by the

Governor as priority 208 Plannin g Areas.

The Pender County coastal area was includedin the Governor's designa-

tions. Participation in the 208 Planning program,with adequate federal

funds appropriated to the program, could allow Surf City a means for

studying its water quality situation in conjunction with plans for the

V-6

public sewer system,

Periodic Review and Revision of the Plan

In order to make land use planning in Surf City an on-going, effective

process, the Town Board, at its regular monthly meetings and at special

meetings as needed, will consider orderly and prompt upgrading and revision

of the Land Use Plan.

v-7

SECTION VI

REFERENCES CITED

Knowles, C. E., Jay Langfelder and Richard McDonald. 1973. A preliminary
study of storm-induced beach erosion for North Carolina. Center for
marine and Coastal Studies Report No. 73-5. North Carolina State
University.

Laymon, Leland L. 1965. Ground-water exploration at Surf City, North
Carolina. N. C. Dept. of Water Resources Ground-Water Circular
No. 7. Raleigh, N. C. 14 pp.

N. C. Coastal Resources Commission. .1975. State guidelines for local
planning in the coastal area under the coastal area management act
of 1974. N. C. Coastal Resources Commission. Raleigh, N. C. 72 pp.

U. S. Army Corps of Engineers. 1965. Bogue Inlet to Moore Inlet, North
Carolina -- Interim survey report of hurricane protection. U. S.
Army Engineer District. Vilmington, N. C.

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

Wahls, H. E. 1973. A survey of North Car olina beach erosion by air photo
methods. Center for marine and coastal Studies Report No. 73-1.
North Carolina State University. Raleigh, N. C. 31 pp.

Wiggins-Rimer@and Associates, Inc. 1973. Inventory of facilities
regional water supply and wastewater disposal study. Cape Fear
Council of Governments. Wilmington, N. C.

APPENDICES

APPENDIX A. PUBLIC PARTICIPATION PROGRAM.

The Surf City Planning Board, with the concurrence and support

of Mayor D. E. Medlin and the Board of Town Commissioners, actively sought

and utilized public views in preparing the land use plan. The planning

process was open to all persons with an interest in Surf City.

The Public Participation program consisted of:

1) Appointing a Planning Board and an Advisory Committee.

representing the interests of the community. The-Planning

Board members are:

Herbert Williams, Chairman Realtor

Lewis Williamson Pier operator

George Thomas, Jr. Tackleshop operator

The Advisory Committee members are:

(Mrs. Donald) Helms

Alva Ward

Roland Batts, Jr.

D. C. Lanier

Clifton Howard.

2) Conducting public information meetings.

A public information meeting, open to all property owners in

Surf City, was held on May 7, 1975.

.On June 10, 1975, Surf City, Topsail Beach and Onslow County

jointly sponsored a public meeting on Topsail Island for the presentation and

discussion of alternative growth and development models. The meeting

A-1

offered a unique opportunity for the public to choose a future population

in keeping wit h their perception of a desirable life style. The descriptive

material distributed at the meeting is part of Appendix B which is devoted

to population forecasts and density of development.

Two public information meetings open to all persons in

terested in Surf City were sponsored by the Surf City Improvement Association

on May 17, 1975 and September 20, 1975.

3) Distribution of questionnaires and tabulation of responses:

Significant issues to be addressed in the questionnaire were

drawn from the May 17 public information meeting, the experience of the

'Planning Board and Advisory Committee, and the requirements of the CAMA.

The issues were framed as questions with multiple optio n answers. (The

questionnaire is Exhibit A-l".) The questionnaire was reproduced and mailed

by the Town Clerk to the 815 taxpayers on record@ 208 (.26,percent)

questionnaires were returned. The responses were tabulated by Mrs. Donald

Helms of the Advisory Committee. The raw tabulations and a ranking of

responses are shown as Exhibits A-2 and A-3.

A-2

Exhibit A-1.

SURF CITY CITIZENS QUESTIONNAIRE

The Surf.City Planning Board and the City Commissioners are preparing

the Coastal Area Management Plan for Surf City. Your Planning Board and

Commissioners are vitally interested in the comments and suggestions you and

other citizens have and are inviting you to become involved in preparing the

plan. Your help will aid us in making a plan for Surf City's future which

is based on your own goals and interests.

This questionnaire is the first step in the continuing process of,gettinq

the citizens involved. You will be kept informed of the progress we are

making and will be invited to other meetings as they are scheduled.

Please take the.time to fill out this brief questionnaire and hand it in

at the end of the meeting or mail it to:

Herbert Williams

P. 0. Box 566

Su.rf City, N. C.

328-8481

1. What do you think are the four major problems in Surf City today? (Indicate

priority by numbering 1, 2, 3, and 4.)

Lack of housing, especially during the summer

Poor ly constructed housing

Lack of year round employment opportunities

Poor roads and traffic control facilities

Lack of good shopping areas

Inadequate educational opportunities

Poor access to beaches

A-3

Lack of public beach areas

Lack of community recreational facilities (parks, golf courses, tennis

courts, boat access points)

Lack of cultural opportunities (drama, cultural arts, etc.)

Problems with septic tanks

Beach erosion

Unsightly development

Flooding or drainage

Inadequate parking

Other (explain)

2. What do you think are the four maj-or advantages to living in Surf City today?

(Indicate priority by numbering 1, 2, 3, and 4.)

Good supply of quality housing

Low taxes

Good opportunities for business

Lack of crowded living conditions

Closeness to beaches

Attractiveness of outdoor activities

Good schools

Low cost of living

Clean air and water

Tourist support economy

3. In the next 5 to 10 years would you prefer to see the permanent Surf City

population? (Mark one)

Incr ease rapidly

A-4

Increase slowly

Remain the same

Slightly decline

Decline significantly

4. In the next 5 to 10 years, would you like to see the tourist trade and

seasonal residents (as measured by.numbers of motels, restaurants, camping

areas, recreation areas, and summer homes)to? (Mark one)

Increase rapidly

Increase slowly

Remain the same

Slightly decline

Decline significantly

5. If the permanent and summer populations do increase, would you prefer the

increase to be? (Mark one)

Inside the existingtown

In new communities or subdivisions outside existing towns and communities

6. If the population of Surf City increases, there will be an increase in

pressure for commercial areas. Do you think that this growth should be

regulated? es, no- If yes, how

7. What wo uld you like Surf City to be like next year, five years from now,,

or 10 years from now?

A-5

S. Please make any additional comments or suggestions which would help us to

plan for the future of Surf City.

Thank you

Herbert Williams

Surf City Planning Board

A-6

Exhibit k-2.

TABULATION OF RESPONSES TO TAXPAYER QUESTIONMIRE.

Question #1: What do you think are the four major problems in Surf City
today? (Indicate priority by numbering 1, 2, 3, and 4.)

Number of respondents ranking problems:
Problem ist 2nd 3rd 4th
PR NPRb PR NPR PR NPR PR NPR

Lack of housing 10 4 2 4 1 12 9

Poor construc-
tion @@16 3 13 2 4 3 6

Lack of
employment 6 4 6 9 2 15 6 6

Poor roads
& traffic 4 3 4 11 12. 3 12

Lack of shop-
ping areas 14 11 7 15 7 9 9 13

tion
Educa 6 3 2 8 3

Beach access 3 7 4 7 3 3 11 11

Public beach 2 l' 1 4 3 7

Recreational
facilities 5 3 5 4 13 11 20

Cultural
opportunities
3

Septic tank
problems 9 11 8 15 2 4 3 3

Beach erosion 1 4 5 7 6 3 6

Unsightly de-
v6lopment 7 43 9 16 6 9 4 7

Flooding 1 1 8 2 5

Inadequate
parking 1 2 4 1 5 5 6

Note: Other problems noted by respondents were: city government, beach
litter, building and zoning codes, inadequate police protection,
pollution, and lack of medical services.

aPermanent Resident Taxpayer. Non-Resident Taxpayer.
A-7

Exhibit A-2 (Continued)

Question #2: What do you think are the four major advantages to living in
Surf City today? (Indicate priority by numbering 1, 2, 3,
4.)

Number of respondents ranking problems:

Advantage lst 2nd 3rd 4th
PRa NPRb PR NPR PR NPR PR NPR

Quality housing
supply 2 1 1 2 2 3 1 4

Low taxes 11 2 3 2 7 4

Business
opportunities 11 8 2 4 4 4 16 9

Living conditions 13 27 2 20 3 9 6 13

Beach closeness 20 27 24 43 7 16 8 16

Outdoor activities 2 3 16 7 7 26 6 16

Schools 3 1 1

Low living cost 1 7 3 4 5 10

Clean air & water 4 22 8 16 15 22 15 23

Tourist economy 4 2 5 5 8 5 18 25

Note: Other comments noted by respondents were: no-advantages@,no answers,
and family oriented.

aPermanent Resident Taxpayer.

b
Non-Resident Taxpayer.

Question #3: In the next 5 to 10 years would you prefer to see the permanent
Surf City population? (Mark one)

Rate Choice by those answering the question

PR NPR .,Total

Increase rapidly 45 38 83

Incre ase slowly 21 60 81

Remain the same 8 13 21

A-8

Exhibit A-2 (Continued)

Question #3 (continued)

Rate Choice by those answering the question
PR NPR Total

Slight decline 0 4 4
Significantly decline 2 1 3

Question #4: In the next 5 to 10 years, would you like to see the tourist
trade and seasonal residents (as measured by numbers of
motels, restaurants, camping areas, recreation areas, and
summer homes) to? (Mark one)

Rate Choice by those answering the question
PR NPR, Total

Increase rapidly 52 40 .92

Increase slowly 17 72 89

Remain the same 6 18 24

Slight decline 1 0 1

Significantly decline 1 3 4

Question #5: If the permanent and summer populations do increase, would you
prefer the increase to be? (Mark one)

Location Selected by those answering the question

PR NPR Total
Inside existing Town 24 52 76

Annexation 46 64 110

Both 9 8 17

A-9

Exhibit A-2 (Continu ed)

Question #6a: If the population of Surf City increases, there will be
an increase in pressure for commercial areas. Do you
think this growth should be regulated?

Choice Selected by those answering the question

PR NPR Total

Yes 66 109 175

No 9 14 23

Question #6b: If yes, how?

Methods Offered

Building code

Zoning ordinances

Planning

Question #7: What would you like Surf City to be like next year, five
years from now, or 10 years from now:

PR NPR Total

1 Zoned & Planned Growth 25 45 70

2. Family Oriented 16 49 65

3. Tourist, Resort Area 15 37 52

4. Better Municipal Facilities

a. Recreational 4 24 28

b. Water 5 30 35

C. Sewage 10 9 19

d. Educational 2 0 2

A-10

Exhibit A-2 (Continued)

(2uestion #7 (Continued)

PR NPR Total
e. Medical 1 3

f. Sanitation 16 36 52
(general cleanup)
9. Police 3 3

5. Population Size
a.. Double 2 2
b. Triple 11 11
c. Myrtle Beach 4 1 5
d. Boom 6 2 8
e. Wrightsville Beach 1 1 2

6. Miscellaneous
a. Better Shopping Area 10 11 21

b. Preserve Natural Env ironment !.,l 5 6

c. No Amusement Areas
(Commercial) 4 4 8

d. Stop Beach Traffic 2 2

e. Growth 2 2

Question #8: Please make any additional comments or suggestions which
would help us to plan for the future of Surf City.

PR NPR Total

1. Better City Government 15 41 56

2. Building, Zoning, Planning
Codes 7 38 45

3. Improved Municipal F acilities

a. Recreation

1. Beach Access 4 7 11

A-11

Exhibit A-2 (Continued)

Question #8 (Continued)

PR NPR Total

2. Sound Access 2 1 3

3. Tennis Courts,
Bike Trails,
Swimming Pool 3 3 6

b. Water 6 2 8

c. Sewage 9 6 15

d. Sanitation

1. General Cleanup-Fixup 1 7 8

2. Beach Cleanup 7 10 17

3. Trailer Cleanup-Fixup 6 11 17

e. Police 5 2 7

f. Taxation Equalize &
Collect Delinquent 1 2 3

9. Roads 3 3

4. Miscellaneous

a. Improve Image (overall,
fishing villAge.bad
publicity 7 10 17

b. Increase Tourist Trade 2 2

c Retain Present Atmosphere 1 1

d. Grow 4 4

e. Public Coastal Hearings 2 2

f. Encourage Industrial
Development 1 1

A-12

Exhibit A-3.

Weighted ranking of problems Weighted ranking of advantages

316 Unsightly Development 459 Beach Closeness

220 Lack of Shopping Areas 288 Clean Air & Water

167 Septic Tank Problem 269 Living Conditions

146 Poor Construction 177 Outdoor Activit ies

113 Beach Access 135 Business opportunities

.106 Lack of Employment 123 Tourist Economy

103 Recreation Facilities 58 Low Living Cost

98 Poor Roads and Traffic 56 Low Taxes

89 Lack of Housing 36 Adequate Housing

70 Beach Erosion 9Schools

47 Inadequate Parking

46 Education

32 Public Beach

29 Flooding

12 Cultural Opportunities

A-13

APPENDIX B: POPULATION AND DENSITY

1975 Survey

It became obvious early in the planning process that the limited popula-

tion information available for towns with less than 2500 year-round residents

was inadequate to describe the current population of Surf City. Accurate

counts of both permanent and seasonal residents from which to project future

populations were needed not only for the land use plan but for 201 facilities

plans and regional Council of Government studies as well.

in June 1975i Coastal Zone Resources Corporation (CZRC),,Henry von Oesen and

Associates (von Oesen)f and the Cape Fear Council of Governments (COG)

cooperatively formulated a door-to-door survey of Topsail Island. The sur-

Vey, a sampling of ten percent of all dwelling units, was conducted by COG

employees between.June 23 and June 29, 1975. The questionnaires used to obtain

information are shownas Exhibit B-1 and B-2. Results of the survey in Surf

City, tabulated by CZRC, are shown as Exhibit B-3.

Average summer figures in the tabulated results denote the number of

people found (multiplied by 10) at the time of the survey. Peak summer

figures were derived by allocating to units vacant at the time of the survey

the appropriate number of persons per unit; i.e., peak summer-counts assume

full occupancy.

B-1

EXHIBIT B-1 COTTAGES-

N OF DATE APPROXIMATE .-HOUSE
NAME OF TOWN SECTIO VACANT
TOWN TIME OF DAY
South A.M.
Center Afternoon-
North Evening Name of Surveyor

QUESTIONS

How many people are in the party presently occupying this cottage?

-No. of Persons

Are you t1hi@! owner of the cottage or are you renting it?

Own -Rent

RENTER

Are you a resident of the town 1. Where did you come here from?
year round or are you.here on
vacation? Town, State

Year Round Vacation 2 Why did you choose this town
for your vacation?

1. What is the size 1. For how
of the family many weeks
living here year of the year
round? is the cott-
for rent? 3. How long is your intended visit
here?
-No. Parsons -No. Weeks
-No. of Days

2. Are you em.-
ployed In'the
town?

Yes No

EXHIBIT B-2

MOTELS

NAME OF TOWN SECTION OF DATE APPROXPMAT-E TTIMEE
TOWN OF DAY
South A.M.
Center Afternoon
North Evening Name of Surveyor

QUESTIONS

How many people are presently registered in the motel?

--No. of Persons

2, How many units are in the motel?

-No. of Units

3. How many persons do you allow to occupy each unit?

No. of Persons

4. During what months is the motelopen?

From To
Day/Mo. Day/Mo.

B-3

Exhibit B-3, TABULATED SURVEY RESULTS: SURF CITY POPULATION 1975

Total Population Population P ccupancy Rates;
Population Makeup_ Distribution Persons Per Unit

In Motels 1.5
312 (8%)
Vacationers

Average 3038 In Non-motel 4.2
Unitsa
2726 (72%)

Summer

3767

Permanent In Non-motel 3.7
Residents Units
729 729 (19%)

In Motels 3.6
749 (14%)
Peak Combined
Total

Summer
5424

In Non-motel 4.2
5424 Units
4675 (86%)

aIncludes single and multi-family units and mobile homes.

B 4

Growth Goals

The CRC guidelines emphasize that residents and property owners of

municipal jurisdictions be allowed to voice opinions on what level of

growth they desire. But terms such as "slow growth", "rapid growth",

"low density", and "high density" mean different things to different

people. In order to allow choices of more concrete growt h alternatives

to be made, five development models were formulated, with different

ultimate population levels and densities. The models were based on the

following assumptions:

1. Marshes, beaches, and foredunes are not developable.

2. The developable residential land (planimetered from the Town's

zoning map) could be developed at various densities.

3. The new Division of Health Services septic tank regulations would

allow, on the average, 3 dwelling units per acre for develop-

ment with septic tanks.

4. Development at densities greater than 3 units per acre would

require public sewerage facilities. (Thus, Model I below relates

the residential population.that could conceivably be supported with

continued use of septic tanks).

5. The population associated with each model depicts the ultimate

population to be achieved - that is, full development. The

desired rate of growth toward full development is not in question

here.

6. Low density = 3 dwelling units (DU's) per acre.

Medium-low density = 5 DU's per acre

Medium density = 10 DU's per acre

Medium-high density 15 DU's per acre

High density = 30 DU's per acre

B-5

7. The number of motel units.would remain a constant percentage (20

percent) of the total number of dwelling units.

The five development models (shown as Exhibit B-4) were submitted

for public inspection at a meeting sponsored jointly by Onslow Countyr

a
Surf City, and Topsail Beach on July 29, 1975 . The importance of the

choice was emphasized, as the choice of ultimate population was to be used

for all future planning in the Town, most immediately for the 201 facilities

plan currently being compiled.

on February 16, 1976, after much discussion and review of the question-

returns, the Town Board chose Model III with an ultimate peak population

of 7,716. The growth goal projects the peak population to occur in the year

2000. Forthe purpose Pf planning municipal services, the population pro-

jected for 1985 is 6,570; for 1990, 6,952; and for 1995, 70,334.

aAt the time of this meeting, only preliminary tabulations of the June
survey were available. Final tabulations showed different population
figures which resulted in different populations associated with each model.
The models themselves and density alternatives submitted in July, however,
are the same as appear in Exhibit B-4, submitted at subsequent Town
meetings.

B-6

Exhibit B-4

SURF CITY

Existing Population

Peak Seasonal

Non-Motel Residential 4675

Motel 749

Total 5424

Year Round 729

Existing Land Use*

Residential 355 acres

Commercial 181 acres

Total Developable 536 acres

Total Developed Residential 230 acres

Total Developable
Residential 125 acres

*From zoning Map

MODEL I

Peak Seasonal Development/Population

Residential 125 x 3 x 4.2 1575

Motel 375 x 16 x 3.6 216

Existing (from above) 4675

Total peak seasonal 6466

Non Seasonal Development/Population

Residential 375 x 3.7 per/unit x .19 = 264

Existing (from above) = 729

Total non-seasonal 993

B-7

MODEL II

Peak Seasonal Development/Population

Residential

low density - 125 ac x .75 x 3 un/ac x 4.2 1181

med-low 125 ac x .25 x 5 un/ac x 4.2 656

motels 437 un x .16 x 3.6 252

Existing 4675

Total peak seasonal 6764

Non Seasonal Development/Population

Residential

low density 281 x .19 x 3.7 198,

med-low 156 x .19 x. 3.7 110

Existing 729

Total non-seasonal 1037

MODEL III

Peak Seasonal Development/Population

Residential

low density 125 x .5 x 3 x 4.2 = 798

med low 125 x .25 x 5 x 4.2 = 656

med 125 x .25 x 10 x 3.9 1219

motels 657 x .16 x 3.6 378

Existing 4675

Total peak seasonal 7716

B-8

MODEL V

Peak Seasonal Development/Population

Residential

low density 125 x .3 x 3 x 4.2 475

med-low 125 x .2 x 5 x 4.2 525

med 125 x .2 x 10 x 3.9 975

med-high 125 x .2 x 15 x 3.9 1463

high 125 x .1 x 30 x 3.6 1350

motels 1238 x .16 x 3.6 713

Existing 4675

Total peak seasonal 10176

Non-Seasonal.Development/Population

Residential

low density 113 x .19 x 3.7 79

med-low 125 x .19 x,3.7 88

med 250 x .19 x 3.7 176

med-high 375 x 19 x 3,1 221

high 375 x .19 x 2.6 185

Existing 729

1478

B-10

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