synopsis of the Town of Surf City Land Use Plan

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

SYNOPSIS

OF THE

TOWN OF SURF CITY USE PLAN

Submitted To

North Carolina Coastal Resources Commission

May 21, 1976

HD
268
.S87 preparation of this report was financially assisted by grants
S96
1976 the State of North Carolina, the National oceanic and Atmospheric
Administration, and the Coastal Plains Regional

Commission

LAND USE CONDITIONS AND TRENDS

The Town of Surf City is located in the center of Topsail Island,

a barrier island composed of beaches, dunes, maritime forests, and

estuarine marshes and waterways. The economy and land use in the

Townhave traditionally been shaped by the outdoor vacation activities

occurring between May 1 and Labor Day. Surf City was incorporated in

1948 at the beginning of this nation's period of increased affluence

and leisure time. The wide beaches and waterways, scenic vistas

and recreation activities were the "calling card" used to@.encoura.ge

people to locate in the Town. The image was attractive and lots were

sold to where the Town now houses over 700 year-round residents and

as many as 5,000 vacationers at the height of the tourist season.

But the rapid, unplanned growth has resulted in problems that

now cause resident and non-resident property owners alike to question

the direction of development. Subdivision of land to accommodate

second home building and commercial support facilities occurred so

rapidly that few parcels of undeveloped land remain. The high de-

mand for beach area land has caused prices per acre to rise and

marketable lot sizes to decrease. The wide open spaces that attracted

people are diminishing and being replaced by traffic congestion,

beach litter, and high density development. Scenic vistas are ob-

structed by signs and utility poles, and waterways polluted from

malfunctioning septic tanks.

The economy of Surf City, as well as the land use, remains

strongly tourist-oriented. But with an increase in municipal services
and in employment opportunities near the iaSopptglftaej"136@g@erce
,WOAA Coastal Services Center Library
2234 South Hobson Avenue
L Charlestont SC 29405-2413

increase in commuting population as well as retired persons. As

much as half the permanent resident population now relies on the

tourist trade, and favors continued increase in population size and

economic development. The other half, however, moved there because

of the open spaces and natural resources and would prefer very

limited growth of commerce and more protection of the Town's areas

of natural and scenic value.

The land use patterns now found in the Town were initiated

somewhat by military activities which immediately preceded private

development. Military use of Topsail Island as a missile test

facility lasted less than 8 years; long enough for construction of

numerous buildings, a bridge, and a skeletal grid road system and

public water supply. The bridge, most importantly, gave access

to the mainland, and waterlines and buildings were adapted for public

and private use. The main road extending the length of the island

was located immediately behind the frontal dune system; it served

as the backbone for future land subdivision, and was adopted as the

Town's main thoroughfare. The road's location dictated the depth

of many oceanfront lots and to a certain extent, the location of

houses on those lots.

Development patterns that can safely be accommodated in Surf

City are limited by certain physical conditions of the land. With

the exception of some higher foredunes, the entire Town is designated

a Flood Prone Area, subject to inundation during severe hurricanes.

The risk of storm damage and loss of property to erosion is high

-2-

along barrier islands. But public and private losses can be minimized

by proper location of roads and structures and by care taken to pre-

vent damage to natural protective features such as sand dunes. The

effectiveness of septic tanks as a method of sewage disposal in beach

soils decreases with increasing population density. Sewage effluent

from poorly located and improperly functioning septic tanks poses a

threat to both underlying ground-water supplies and adjacent estuarine

waters and marshes.

The Town now has a zoning ordinance to guide development, and

has adopted the N. C. State Building Code as its standard for construc-

tion. But commercial and residential buildings, old and new, are

scattered and intermingled with motels and trailor parks. There is

little uniformity in size, design or quality to integrate these com-

ponents into a workable whole. There is concensus in the Town among

residents and non-residents alike that unsightly development is the

major problem at present and that a new image of clutter has replaced

the former image of natural beauty.

The purpose of the Surf City Land 'Use Plan was to assess the

land use problems now present in the Town, search for possible solu-

tions, ask of the Townspeople what changes they want in the future

and derive a process to achieve desired objectives. Behind the

clutter, much of the value of natural, economic and recreation re-

sources still remains; some of that which is lost can be regained.

The beauty of the island's maritime forest is unsurpassed on the N. C.

coast. The foredune system, where not destroyed by construction

activities, is solid and stable, offering at least temporary

-3-

protection to the property behind it. The beaches and waterways hold yet

undeveloped recreation potential for both permanent residents and vacationers,

and the relaxed atmosphere of an ocean resort still prevails among the

Townspeople.

MAJOR LAND USE ISSUES AND PROBLEMS

The amount of population growth that can be accommodated, the extent

of changes in the quality and kinds of development that the Town will be

able to initiate, and the extent to which new policies can be implemented

in the future are limited initially by three major factors: 1) the land's

physical capacity for development, 2) the low tax base, and 3) the existing

land use and ownership patterns.

1. Within the town limits there are approximately 550 acres of non-

marsh or beach land suitable for development. About half of that land is

already built upon at densities which vary substantially in different parts

of the Town; much of the remaining land has been subdivided into individual

lots.

.Since public waterlines now extend throughout the Town (though an

undetermined number of structures still utilize private water supply wells)

the main limiting factor for future development is sewage disposal. The

soils in the Town have severe limitations for sept ic tanks. Problems with

septic tanks are already much in evidence; shellfish waters have been closed

to harvesting and groundwater sources found to be polluted. Some of the

pollution encountered can be attributed to sources outside the Town, and

there are many areas within the Town either undeveloped or developed at

such low densities that pollution problem s could not be attributed to them

without further study. Thus, if the existing population were distributed

more evenly and there had not been pollution coming from outside the

-4-

jurisdiction, the current pollution problems could possibly have been

avoided. For that reason, it is probable that some additional growth in

some parts of the Town could safely be accommodated with septic tanks if

maintained at sufficiently low densities. Solutions to the pollution

problems in already overcrowded areas, however, have yet to be found;

for that reason, population growth in these areas may have to be curtailed.

2. The low property tax base resulting-from non-industrial low

density development limits the revenues available to the Town to finance

implementation and enforcement of new policies and to develop new public

facilities to service its population. Federal and state grant monies can

sometimes be obtained to assist in development of major service facilities,

such-as sewer and waterl and to plan for--establishment of others, such as

public recreational areas; but currently the availability of outside

funding is uncertain at best. The Town in the end must manage and operate

municipal services, and management and operation require reliable sources

of financial support and professional manpower. New and improved municipal

activities, therefore, will depend on both the availability of financial

assistance and the amount that people are willing to pay to achieve desired

goals.

3. The existing land use and ownership patterns in Surf City dictate

to a certain extent future land use conditions, as existing densities, lot

sizes and construction techniques were legally approved at the time of

their establishment. Hindsite may teach that some public approvals were not

made in what now seems to be the Town's best interest; but hindsite does

not validate retroactive decision-making. Likewise, public adoption of

the existing grid road and waterline pattern, deemed the most cost effective

route to take at the time, may now be contributing to the unsightliness of

development. New construction, lot sizes, and building and road locations

can be controlled and non-conforming land uses can gradually be decreased

over time; but the visual impact of such changes may well be slow in

appearing.

In the course of the public participation program, numerous other land

use problems surfaced. The drawbridge connecting the Town to the mainland

is located at the center of Town. Traffic into and out of Surf City and

the adjacent jurisdictions must pass through the commercial area in order

to reach the bridge. Traffic congestion and hazards are augmented by

frequent opening of the bridge to allow for the passage of boats; on summer

weekends cars often line up waiting,for the bridge to close.

Recreation activities, though scattered, tend to concentrate toward

the center of Town; but there are no sidewalks to accommodate pedestrian

traffic and there are few parking areas near the beaches. Parking on road

shoulders, particularly N. C. 50, increases the risk of accidents, with

children darting across the road to reach adjacent beaches. The lack of

paved shoulders limits the feasibility of bicycle traffic, especially

during the tourist season when bicycle use would otherwise be heaviest.

Access to beaches is a problem for visitors and owners of inland lots

and usually necessitates trespassing by way of paths cut through the dunes.

Public access is provided on cross-island street rights-of-way, but rights-

of-way are unmarked and, even there, no structural pathways are provided.

There are no public boat launching ramps to facilitate use of the waterways,

and again, public access is limited and endangers the.value of the marsh.

The use of motor vehicles on the beaches is an issue on which the

Town's population is divided. Surf fishermen often drive along the beach

to find the best spots to fish. Their use of the beach is only a real

-6-

problem during summer when it conflicts with swimming. But to some people,

driving along the beach is a recreational activity itself, often ac-

companied by continued dune crossing to test the ability of a vehicle. For

whatever use is involved, there are no ramps for crossing the dune, and

severe erosion damage can be initiated by destruction of vegetative covering..

DEVELOPMENT OF GROWTH GOALS

While formal land use planning activities in Surf City were initiated

by State passage of the Coastal Area Management Act, many Townspeople were

already active in trying to solve municipal problems. A citizens' group

had been organized to work for the betterment of the Town, and became involved

in the planning pro cess as one representative of public opinion.

But the majority of the Town's taxpayers are absentee property owners,

unable to attend many local public meetings. In order to evaluate the

widest possible range of public sentiment, the Town formulated questionnaires

and mailed them to all taxpayers on.record. Questions concerned problems

and advantages of the Town, desired growth rates and means of accommodating

growth, and possible means of achieving goals in the future. Responses to

the questionnaire were received from about 25 percent of the taxpayers.

There was a large degree of unanimity concerning problems in the Town; un-

sightly development ranked highest, followed by lack of shopping areas and

septic tank problems. The availability of natural recreation resources was

considered the major advantage including closeness to beaches, clean air

and water, uncrowded living conditions and outdoor activities. Unanimity

dissolved, however, in the desires for future growth, with virtually an even

split between those wanting slow and those wanting rapid growth. Annexation

of additional land was proposed to accommodate increased population, and

effective regulations were suggested to control commercial activity.

-7-

There was concensus among the taxpayers, resident and nonresident

alike, that future growth be planned to achieve a family-oriented resort

area. Respondents stated a need for better enforcement of the Town's

zoning regulations and building code, and for better municipal facilities,

particularly water supply and public recreation areas.

In order to evaluate what was meant by "slow growth" and "rapid

growth," development alternatives were presented at public meetings. Five

models of development, each feasible in light of physical and economic

restraints, with associated density distributions and population levels

were formulated. Densities ranged from only 3 units per acre throughout

the Town to as much as 15 to 30 units per acre over 30 percent of the

Town. The associated peak summer populations ranged from about 6,500 to

10,200. In light of questionnaire responses Town government chose to

recommend a mixture of low to medium density with an ultimate peak summer

population of about 7,700. All -future planning for service facilities in

the Town and land use ordinances.and regulations will be aimed at achieving

that ultimate population in 2000. Also in light of questionnaire responses

and public meetings, the Town adopted the following Objectives and Standards

to guide future growth.

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.

-8-

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,

duplex, apartmentf motel and condominium) will be en-

couraged, in order to accommodate residents and

vacationers with differing economic resources and needs.

4. In order to meet the demand for increased shopping

and recreational areas, the Town will consider annexation of

land needed between the A1WW 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 bethe policy of Surf City to promote that quality of

development which will offer the maximum reasonable en-

hancement 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 windstorm) and will establish ordinances

necessary to protect the esthetic and protective nature of

the dune system.

-9-

2. In order to alleviate any possible pollution of estuarine

or ground-waters, the Town will promote the development

of a regional public sewage 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 ordinance will 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 a 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 cross-island

street rights-of-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.
a
Standards: 1. The Town favors establishment of a balanced recreational

pr ogram for 'residents and vacationers. In order to promote

recreational 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.

_10-

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

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 Town, 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.

AREAS OF ENVIRONMENTAL CONCERN

The Town of Surf.City has identified certain areas in the Town whose

particularly fragile, scenic or hazardous nature warrants special care

taken in their use and development. For this reason, specific standards

for development in each of these Areas of Environmental Concern have,been

established, and are summarized as follows:

The Estuarine System

(The estuarine waters, marshes and mudflats, as defined by G. S. 113-

229 and G. S. 113-230)

The only kinds of new development that may be allowed in the estuarine

system 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 shown to be the

most suitable alternative.

The Esi@uarine System category includes all islands within the marsh
com@l&; however, since some of these islands could acc date some degree
of development, proposed development.of any of them will b reviewed on a

case by case basis.'

The Beach-Foredune Syr

Because of the dynamic natun@6 of the beach-foredune complex, the
construction or location of si'@uctures on it will not be permitted. Allow-

an ill be made, however, for the provision of structural accesswAys

across the dune provided that utmost/care is exercised in their location
and construction to prevent damage/to the dune and t
@16 vegetation growing

on it. Allowances will also be made for th6,ereqtion of safety facilities
0 d
1@b

such as lifeguard chairs, and for necessari@@y'wat@r-oriented recreational

structures such as fishing piers.
-12-,

Hazard Areas

Oceanfront property with a high probability of incurring excessive

erosion is considered an unsuitable location for the placement of structures

used for housing, institutional purposes, transportation or commerce, and,

therefore, of too high a risk to warrant further public investments into

roads, sewer and water lines and other such facilities. In this area,

as in coastal flood prone areas, any construction will be required to meet

at least the minimum standards of the N. C. Building Code and conform

to the standards of the Federal Insurance Administration for coastal high

hazard areas.

Public Trust Areas

To the degree authorized by statute, the town will require some pro-

vision for public access in new developments in Public Trust Areas and

will prohibit any development which unduly restricts public access to and

use of these areas.

-13-

LAND USE PROGRAM

The land use program for future development in Surf City can be

divided into the following three components:

1. Land Classification

The Surf City Land Classification map defines those

areas of the Town suitable for development (Transitional) and those

of a particularly hazardous nature or with special natural and scenic

resource value where development would run contrary to the goals and

objectives of the Town (Conservation). Public facilities including

water and sewer lines and street maintenance operations will service

only those areas of the jurisdiction within the Transitional area

(and areas annexed in the future that warrant the Transitional'De-

signation). The Land Classification map also defines those areas of

Transitional land where particular kinds of development (i.e., Planned

Unit Development, recreation, shopping, residential) will be encouraged.

The Town will aim for the eventual distribution of popu-

lation within the Transitional area at the following overall densities:

Low density (3 units per acre) - 50 percent

Medium-low density (5 units per acre) - 25 percent

Medium density (10 units per acre) - 25 percent

The Town will encourage more creative land subdivision

techniques, such as clustered housing, but will prohibit the erection

of high rise (over 3 stories from grq
und level) structures.
2. Public service provi@o \ion

Priorities have been set for new and improved public

services. The municipal water supply is being analyzed and its

-14-

quality and adequacy for future populations studied; the water distribution

system will be revamped toward the end of allowing and requiring connection

to the public system of all new and existing sanitary facilities. The

feasibility of establishing a regional sewerage system is currently under

study with participation in such a system actively supported by the Town

Board.

The Town will seek development of new public and improved com-

mercial recreation facilities, as requested in questionnaire responses, as

soon as financially feasible. Assistance from the State Department of

Archives and History will be requested in determining the historic sig-

nificance of old military observation towers.

3. Implementation

The Town recognizes the need for revision of existing

municipal ordinances and wider circulation of their requirements to the

public. New ordinances will be established where necessary to implement

the plan, assure better protection of natural resources, and reduce storm,

and erosion damage. In particular, the density of development, the pro-

tection of the esthetic and protective nature of sand dunes and the maritime

forest, safe and enjoyable public use of the beaches, the provision of

adequate structural access to Public Trust areas, and the quality of

construction will be subject to municipal regulation in the future.

The Town of Surf City will request permission from the Coastal

Resources Commission (CRC) to be the permit-letting authority for minor

development permits that will be required in Areas of@Environmental Concern.

The Town will prepare a Local Management Program, as required by the CRC,

describing the methods that will be used to coordinate existing municipal

permit-letting procedures with those that will be necessary to implement

the Plan. The Town will also seek to coordinate its permit-letting authority
-15-

with that of Pender County.

The Surf City Land Use Plan has been closely coordinated with

provisions and policies of the Pender County 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. Surf City will continue to coordinate its plan-.

ning efforts with the County, especially those concerning the establishment

of new land use regulatory bodies, service facilities and economic

development.

This Synopsis of the Surf City Land Use Plan is being mailed to All

property owners in the Town. Copies of the full plan, which addresses

each of the items included here in detail.are available for study in

the Town Hall and can be,obtained at cost upon written request. Addi-

tional copies of the Synopsis and its maps can be obtained from the

Town Hall free of charge upon request.

In the final analysis, improvement of the overall image of the Town

will require conscientious cooperative efforts on the part of all

residents and property owners. There are no easy solutions to some

problems, especially where Town opinion is divided on desired courses of

action. But all Townspeople stand to benefit from better visual, health

and safety quality and from public efforts to provide to residents and

vacationers an enjoyable, prosperous resort community.

Addendum

The Town of Surf City's commitment to distribute the Synopsis and

make copies available upon request is based on the assumptions that

1) The N. C. Department of Natural and Economic Resources will bear the

cost of printing the Synopsis and 2) some financial assistance will be

available to the Town to cover the cost of mailing. Should either of

the above assumptions prove invalid, the Town will be forced to re-

evaluate its commitment.

3 6668 14104 0032