CAMA Land Use Plan Update-1985

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Division of Coastal Management I
JACKSONVILLE
CAMA LAND USE
PLAN UPDATE
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City of Jacksonville Adoption
October 7, 1986
Coastal Resources Ccnmission
Certification
March 27, 1987
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The preparation of this report was financed in part through a grant
provided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as amended,
which is administered by the Office of Coastal Zone Management,
National Oceanic and Atmospheric Administration.

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

TABLE OF CONTENTS
I
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
I. Issues in the 1980 Land Use Plan Update . . . . . . . . . . . . . . 3
II. Goals and Objectives Reflected in the 1980 Land Use Plan Update. . . 5
III. Effectiveness of the 1980 Goals and Objectives. . . . . . . . . . . 7
A. Resource Protection and Management: New River . . . . . . . . 8
B. Economic Development . . . . . . . . . . . . . . . . . . . . . 10
C. Strip -Commercial Development . . . . . . . . . . . . . . . . . 10
D. Redevelopment of Developed Areas: Old Downtown 11
E. Redevelopment of Developed Areas: Other . . . . . . . . . . . 13
F. Recreational Lands . . . . . . . . . . . . . . . . . . . . . . 15
G. Planning Tools and Capacity 17
IV. Annexations/Existing Population . . . . . . . . . . . . . . . . . . . 19
A. ANNEXATIONS . . . . . . . . . . . . . . . . . . . . . . . . . 20
B. POPULATION . . . . . . . . . . . . . . . . . . . . . . . . . . 23
V. Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
A. Payroll and Retail Sales . . . . . . . . . . . . . . . . . . . 29
B. Employment . . . . . . . . . . . . . . . . . . . . . . . . . . 32
C. Income . 34
D. Camp Lejeune 35
IVI. Existing Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . 37
A.
B.
Residential.
Commercial
38
39
C.
Industrial . . . . . . . . . . . . . . . . . . . . .
. . . . . 41
D.
Vacant Land . . . . . . . . . . . . . . . . . . . .
. . . . . 41
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VII. Physical
Limitations/Constraints to Development. . . . . .
. . . . . 43
A.
Camp Le_ieune . . . . . . . . . . . . . . . . . . . .
. . . . . 44
B.
Streets Network . . . . . . . . . . . . . . . . . .
. . . . . 45
C.
Soil Limitations . . . . . . . . . . . . . . . .
. . . . . 47
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D.
Areas of Environmental Concern (AEC's) . . . . . . .
. . . . . 47
E.
Limitations on Water and Sewer Facilities . . . . .
. . . . . 52
VIII.Limitations on Water and Sewer . . . . . . . . . . . . . .
. . . 54
A.
Hydrologic Setting: . . . . . . . . . . . . . . . .
. . . . . 55
B.
Water Treatment: . . . . . . . . . . . . . . . . . .
. . . . . 56
C.
Water Supply Facilities: . . . . . . . . . . . . . .
. . . . . 59
D.
Water Storage Facilities: . . . . . . . . . . . . .
. . . . . 59
E.
Water Storage Capacity . . . . . . . . . . . . . . .
. . . . . 61
F.
Water Distribution System . . . . . . . . . . . . .
. . . . . 61
G.
Recent Water Usage: . . . . . . . . . . . . . . . .
. . . . . 63
H.
Adequacy of Water Supply System . . . . . . . . .
. . . . . 64
I.
Fire Flow Requirements . . . . . . . . . . . . . . .
. . . . . 65
J.
Onslow County Water System . . . . . . . . . . . . .
. . . . . 65
K.
Wastewater Collection and Treatment System . . . . .
. . . . . 67
L.
EPA "201" Facilities Plan . . . . . . . . . . . . .
. . . . . 67
M.
Jacksonville System - General . . . . . . . . . . .
. . . . . 68
N.
Sewage Collection System . . . . . . . . . . . . . .
. . . . . 69
0.
Other Wastewater Treatment Facilities . . . . . . .
. . . . . 71
P.
Stormwater . . . . . . . . . . . . . . . . . . . .
. . . . . 71
0.
Septic Tank Use . . . . . . . . . . . . . . . .
. . . . . 72
R.
Water Protection . . . . . . . . . . . . . . . .
. . . . . 72
Need;S. Water Problems and Nee . . . . . . . . . . . . . .
. . . . . 73
T.
Sewage Problems and Needs . . . . . . . . . . . . .
. . . . . 73
IX. Severe Storm: Mitigation and Reconstruction . . . . . . . . . . . . . 75
A. STORM HAZARD MITIGATION . . . . . . . . . . . . . . . . . . . 76
1. Composite Hazard Maps . . . . . . . . . . . . . . . . . . 76
2. Inve..cory of Existing Lots Within the Floodplain . . . . 76
3. Types of Risks . . . . . . . . . . . . . . . . . . . . . 78
4. Flooding and High Wind Policies . . . . . . . . . . . . . 78
a. residential construction . . . . . . . . . . . . . . 79
b. non-residential construction. . . . . . . . . . . . 79
c. mobile home . . . . . . . . . . . . . . . . . . . . . 80
5. Hurricane Preparedness Plan 81
B. POST DISASTER RECONSTRUCTION PLAN . . . . . . . . . . . . . . 82
a. emergency period . . . . . . . . . . . . . . . 82
b. restoration period. . . . . . . . . . . . . . . . 82
C. replacement reconstruction period . . . . . . . . . 82
d. commemorative, betterment, and developmental
reconstruction period . . . . . . . . . . . . . 82
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1. Emergency Management Response To Immediate Cleanup . . . 83
2.
Local Long Term Reconstruction Policies . . . . . . . . .
83
3.
Guidelines for Post Disaster Repairs and Reconstruction .
85
a. Timing and Completion of Damage Estimates. . . . .
85
b. Timing and Completion of Temporary Development
Moratoria . . . . . . . .
85
C. Development Standards - Post Disaster. . . . .
85
4.
Establishment of Schedule for Staging and Permitting
Repairs and Reconstruction . . . . . . . . . . . . .
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5.
Policy Implementation . . . . . . . . . . . . . . . . . .
86
6.
Policies for Repair and Replacement
66
X. Future Needs, Demands, and Community Facilities. . . . . . .
. . . 87
A.
Population Projections . . . . . . . . . . . . . . . .
. . . . 88
B.
Streets andHighwayNetwork. . . . . . . . . . . . .
. . . . B9
C.
Housing . . .
91
D.
Open Space . . . . . . . . . . . . . . . . . . . . . .
. . . . 92
E.
Undeveloped Land
93
F.
Services
93
G .
Water and Sewer . . . . . . . . . . . . . . . . . .
. . . . 93
H.
Schools . . . . . . . . . . . . . . . . . . . .
. 94
I.
Extraterritorial Jurisdiction (ETJ)/Annexations . . .
. . . 94
J.
Community Facilities . . . . . . . . . . . . . . . . .
. . . . 94
K.
Projected Land Use Needs 1995 . . . . . . . . . . . .
. . . . 95
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XI. Policies & Implementations: Community Issues. . . . . . . .
. . . 97
A.
RESIDENTIAL BLIGHT . . . . . . . . . . . . . . . . . .
. . . . 98
1. Description . . . . . . . . . . . . . . . . . . . .
. . 98
2. Policy . . . . . . . . . . ...............
9B
3. Implementation Strategies. ............
... 99
B.
DOWNTOWN REDEVELOPMENT . . . . . . . . . . . . . . . .
. . . . 99
1. Description . . . . . . . . . . . . . . . . . . . .
. . . 99
2. Policy . . . . . . . . . . ... . .........
3. Implementation Strategies.
100
100
.. ..... . ..
...
C.
RECREATIONAL LAND . . . . . . . . . . . . . . . . . .
. . . 101
1. Description . . . . . . . . . . . . . . . . . . . .
. . . 101
2. Policy . . . . . . . . . . . . . . . . .
. . . 101
1 3. Implementation Strategies . . . . . . . . . . . . . . . . 101
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D .
TRANSPORTATION . . . . . . . . . . . . . . . . . . . .
. . . 102
1. Description . . . . . . . . . . . . . . . . . . .
. . . . 102
2. Policy . . . . . . . . . . . . . . . . . . . . . .
. . . . 102
3. Implementation Strategies . . . . . . . . . . . .
. . . . 102
E.
INDUSTRIAL/ECONOMIC DEVELOPMENT . . . . . . . . . . .
. . . 103
1. Description......................
103
2. Policy. •........•.........
•., 103
3. Implementation Strategies . . . . . . . . . . . .
. . . . 103
rF
.
LAND USE PATTERNS . . . . . . . . . . . . . . . . . .
. . . 104
1. Description .......................
104
2. Policy ....... ............
...104
3. Implementation Strategies . . . . . . . . . . . .
. . . . 104
G.
PUBLIC PARTICIPATION . . . . . . . . . . . . . . . . .
. . . 105
1. Description . . . . . . . . . . . . . . . . . . .
. . . . 105
2. Policy . . . . . . . . . . .............
... 105
3. Implementation Strategies. ...........
. ..106
H .
RESOURCE PROTECTION . . . . . . . . . . . . . . . . .
. . . 106
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1. Description . . . . . . . . . . . . . . . . . . .
. . . . 106
2. Policy . . . . . . . . . . . . . . . . . . . . . .
. . . 106
3. Implementation Strategies . . . . . . . . . . . .
. . . . 106
I.
WATER AND SEWER EXTENSIONS . . . . . . . . . . . . . .
. . . 107
1. Description. . . . . . . . ... . . . . . . . . .
. . . . 107
2. Policy . . . . . . . . . . . . . . . . . . . . . .
. . . . 108
3. Implementation Strategies . . . . . . . . . . . .
. . . . 108
XII. Land
Classification . . . . . . . . . . . . . . . . . . . .
. . . . .109
A.
DEVELOPED AREAS . . . . . . . . . . . . . . . . . . .
. . . 110
1. Low Density Residential Developed. . . . . . . .
. ill
2. High Density Residential Developed: . . . . . . .
. ill
3. Mixed Density Residential Developed. . . . . . .
. 112
4. Business/Industrial Developed. . . . . . . . . .
. 112
B.
TRANSITION AREAS
. . . . . . . . . . . . . . . . . .
. . . . 112
a. Residential Transition Areas. . . . . . . . .
. . . 114
b. Mixed Transition Areas.
115
C. Business/Industrial Transition Areas. . . . .
. . . 115
C.
CONSERVATION AREAS . . . . . . . . . . . . . . . .
. . . . 116
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XI I I . Appendix . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
A. Public Participation . . . . . . . . . . . . . . . . . . . . .
B. Flood Damage Prevention Ordinance : : : :
C. Hurricane Response Plan .
D. Hurricane Evacuation Plan . . . . . . . . . . . . . . . . . .
E. Causes of Blight & Strategies . . . . . . . . . . . . . . . .
F. Community Facilities Plan Table of Contents ;
G. Soils •
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118
119
124
143
156
164
168
174

LIST OF TABLES
Page
Table 1 Jacksonville Corporate Land Area Increases
1960-19B5 . . . . . . . . . . . . . . . . . . . . . . . . .
. . 20
Table
2
Onslow County and Jacksonville Populations
1940-1985. . . . . . . . . . . . . . . . . . . . . . . . .
. . 23
Table
3
Natural Increases and Net Mitigation Within
Jacksonville - 1960-1985 . . . . . . . . . . . . . . . . .
. . 24
Table
4
Jacksonville Population By Age
1970-1980 . . . . . . . . . . . . . . . . . . . . . . . . .
. . 25
Table
5
Total Military: Their Dependents and Civilian
Employees By Selected Month and Year - 1980-1985 . . . . .
. . 27
Table
6
Estimated Annual Payroll Per Industry in Onslow County
1975, 19809 1984 . . . . . . . . . . . . . . . . . .
. . 29
Table
7
Retail Sales in Jacksonville and Onslow County
1970-1983 . . . . . . . . . . . . . . . . . . . . . . . . .
. . 31
Table
8
Jacksonville Civilian Employment
1960-1980 . . . . . . . . . . . . . . . . . . . . . . . . .
. . 32
Table
9
Source of Employment - 1980. . . . . . . . . . . . . . . .
. . 33
Table
10
Per Capita, Mean Family, Median Family, and Household
Incomes - Jacksonville and Onslow County . . . . . . .
. . 34
Table
11
Water Supply Capabilities . . . . . . . . . . . . . . . . .
. . 59
Table
12
Water Storage Capabilities . . . . . . . . . . . . . . . .
. . 61
Table
13
Water Consumption . . . . . . . . . . . . . . . . . . . . .
. . 64
Table
14
1984 ADT Counts Along Selected Routes . . . . . . . . . . .
. . 89
Table
15
1990-1995 ADT Counts Along Selected Routes . . . . . . . .
. . 90
Table
16
Projected Land Use . . . . . . . . . . . . . . . . . . . .
. . 96
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LIST OF MAPS
Page
Map
A
Onslow County . . . . . . . . . . . . . . . . .
. . . . . . . . . 2
Map
B
Recreational Lands . . . . . . . . . . . . . .
. . . . . . . . 16
Map
C
Annexations (1940-84). . . . . . . . . . . . .
. . . . . . . . 21
Map
D
Annexation Consideration Map . . . . . . . . .
. . . . . . . . 22
Map
E
Land Use . . . . . . . . . . . . . . . . . . .
. . . . . . . . 40
Map
F
Comparitive Traffic Counts . . . . . . . . . .
. . . . . . . . 46
Map
G
Thoroughfare Plan . . . . . . . . . . . . . . .
. . . . . . . . 48
Map
H
Floodplain Boundaries . . . . . . . . . . . . .
. . . . . . . . 53
Map
I
Water Supply System . . . . . . . . . . . . . .
. . . . . . . . 54
Map
J
Water Distribution System . . . . . . . . . . .
. . . . . . . . 62
Map
K
Pump Stations and Sewer Lines . . . . . . . . .
. . . . . . . . 70
Map
L
Lots in the 100-year Floodplain . . . . . . .
. . . . . . . . 77
Map
M
Land Classifications . . . . . . . . . . . . .
. . . . . . . . 117
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INTRODUCTION
The City of Jacksonville is located in the coastal plains region of
North Carolina and serves as both the county seat of, and largest city in,
Onslow County. As a municipality located within one of the twenty counties
regulated by the North Carolina Coastal Area Management Act, Jacksonville is
responsible for updating its land use plan every five years. This plan
represents the second update of the City's original 1975 C.A.M.A. Land Use
Plan. It is anticipated that this 1985 C.A.M.A. Land Use Plan Update will
be used by local governments, private entities, and other levels of
government as they make decisions concerning future development.
Great effort has been made to ensure that this Plan is a workable
instrument which addresses the problems and concerns of our area while
further exploring efficient use of public services, wise use of land, sound
economic policies, recognition of the ecological and aesthetic virtues of
planning protection, and the health and safety of our citizens. The
following plan represents the work of the Jacksonville City Council, the
Jacksonville Planning Board, the City of Jacksonville Planning Department,
and other citizens who are interested in Jacksonville's future.
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ONSLOW COUNN
NORTH CAROLINA

Issues
in
the
1000 Land Use
Plan
Update
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ISSUES DISCUSSED IN THE 1980 LAND USE PLAN UPDATE
For existing development:
1. To expand public utilities and services.
2. To improve the public streets network.
3. To encourage industrial employment opportunities.
4. To improve the nature of neighborhoods.
5. To implement a downtown redevelopment effort.
6. To discourage strip commercial development.
For future development:
1. To continue orderly growth.
2. To make good use of all available technical and natural resources.
3. To utilize future growth plans based on sound decisions that would
reflect the highest and best use of the land and which would reflect
community needs and desires.
4. To protect the New River from development encroachment.
5. To ensure adequate public park facilities.
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R
C-;-o
ls
UDIOctives
a .. and
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GOALS AND OBJECTIVES OF THE 1980 LAND USE PLAN UPDATE
1. Goal - Land Use Planning
Objective - To evaluate the effectiveness of the 1975
C.A.M.A. Land Use Plan and to devise a system to evaluate the
effectiveness of on -going planning programs in the future.
2. Goal - Policy Development
Objective - To develop specific policy statements that are reasonable
and achievable.
3. Goal - Public Involvement
Objective - To increase public awareness of the planning process for
the C.A.M.A Plan Update and future planning and to increase public
participation in the planning process.
4. Goal - Education of Elected and Appointed Officials
Objective - To provide accurate information about existing natural
resources within the Jacksonville area and their potential uses over
the next ten years; to suggest methods of exchanging information with
appropriate state and federal agencies to provide a constant flow of
information to the local elected and appointed officials.
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Seven goals and objectives were set forth in Chapter VII of
' Jacksonville's 1980 C.A.M.A. Land Use Plan Update. The following sections
quote those goals and objectives and describe actions taken by the City,
over the past five years, which address each goal specifically.
A. Resource Protection and Management: New River
It shall be the policy of the City of Jacksonville to
advise all interested local governments, the State of
' North Carolina, and the U. S. Government that the City
has determined through the C.A.M.A. Land Use Plan Update
ithat there are potential recreational and economic uses
for which the New River is not presently being used due
to its polluted state. The City shall participate with
' local, state, and federal agencies to determine existing
sources of pollution and methods of preventing such
pollution of the New River in the future.
1 In 1981 the City of Jacksonville and Onslow County jointly applied for
'
a C.A.M.A. grant: 1)
to assess coliform distribution
in the waters of the
New River to a distance
of approximately
10 miles
north and south of
Jacksonville, North
Carolina, 2) to define
point and
non -point sources of
pollution in the New
River estuary should
they exist,
3) to demonstrate
'
seasonal changes and
geographic changes in
coliform counts
in the New River
' estuary as an indication of pollution, 4) to present information of the
socio-economic consequences of coliform in the estuary, and 5) to evaluate
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and present rational alternatives to the present discharge systems. This
grant was approved, and the University of North Carolina at Wilmington was
contracted to prepare the study. The study was completed in the spring of
1982. It contained a description of identified causes of pollution and
recommended methods of abatement.
Since the adoption of this C.A.M.A. policy, the City also adopted the
"City of Jacksonville Flood Damage Prevention Ordinance" on February 5,
1985. (Appendix Page ) In addition to helping limit pollution of the
New River and its associated fragile areas, the objectives of this ordinance
are: 1) to protect human life and health, 2) to minimize expenditure of
public money for costly flood control projects, 3) to minimize the need for
rescue and relief efforts associated with flooding and generally undertaken
at the expense of the general public, 4) to minimize prolonged business
interruptions, 5) to minimize damage to public facilities and utilities such
as water and gas mains, electric, telephone, and sewer lines, streets, and
bridges located in flood plains, b) to help maintain a stable tax base by
providing for the sound use and development of flood prone areas in such a
manner as to minimize future flood blight areas, 7) to insure that potential
homebuyers are notified that property is in a flood area, and 8) to minimize
harm to natural plant and animal life.
The City is currently reviewing the subdivision ordinance in an effort
to determine what changes within that ordinance may help alleviate the
pollution of the New River.
9

B. Economic Development
It shall be the policy of the City of Jacksonville to
cooperate and participate with the Onslow County
Economic Development Commission and the Jacksonville
Chamber of Commerce to identify potential industrial
sites, thereby encouraging location of new industries in
the Jacksonville area. The City shall extend utilities
to identified industrial sites where engineering
feasibility studies prove such extensions to be
financially feasible.
' As discussed in the chapter entitled "Existing Land Use", there are
approximately 150 acres of available vacant land in the vicinity of the
tJacksonville Industrial Park. This area is already served by utilities and
is well situated for industrial plant sites. In an effort to improve the
tstatistical base, upon which prospective industries depend for valuable
' information, the City has scheduled the "Jacksonville Economic Base Study"
for completion during fiscal year 1987-1988.
C. Strip -Commercial Development
It shall be the policy of the City of Jacksonville to
discourage strip -commercial development along any future
' or existing arterial, collector, or minor streets within
the planning jurisdiction of the City. Such
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discouragement will be in the form of appropriate
revisions to the City's zoning ordinance requiring
various types of control -of -access to major roads and
streets and through zoning decisions.
As described in the chapter entitled "Existing Land Use", the City of
Jacksonville does not have a traditional downtown area, but instead, has a
series of strip -commercial developments along major highways. Since the
adoption of the above stated policy in the 1980 C.A.M.A. Land Use Plan
Update, the City Council has become more aware of the negative aspects of
strip -commercial development and has utilized this awareness in its handling
of rezonings which might be conducive to such development. -
D. Redevelopment of Developed Areas: Old Downtown
It shall be the policy of the City of Jacksonville to
participate in the investigation of the feasibility
and/or desirability of redeveloping the original
downtown area in cooperation with merchants and property
owners of that area, as well as with other interested
groups, such as local, state, and federal agencies.
Further, the City shall cooperate with public and
private organizations in preserving structures in the
old downtown area and the rest of the City which have,
or may be identified as having, historical significance.

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As is evident from the above stated policy, the City has long
recognized the value of the old downtown area and the need to improve it.
In an effort to learn more about the downtown revitalization efforts of
other communities, the Jacksonville City Council and selected staff members
visited Tarboro, Fayetteville, and Wilmington for a first hand observation
of their efforts and successes. As a result of these fact finding trips,
the City Council, on July 3, 1984, passed Resolution 1691 which established
a local "Downtown Redevelopment Task Force." As stated in this resolution,
the purpose of the task force was "to make preliminary findings and
recommendations with regard to the redevelopment and revitalization of the
City's downtown area and adjoining waterfront areas, including those methods
and organizations needed to implement and sustain its recommendations."
Acting on the recommendation of the Task Force (as contained in a
report entitled "Jacksonville Downtown Redevelopment Task Force: Final
Report") the City Council of Jacksonville contracted with a consulting firm,
Land and Community Services, on June 28, 1985 to prepare a preliminary
redevelopment plan which includes the following elements: a) Resources
Analysis. An assessment of the natural, physical, historic, human, and
economic resources of the area, b) Problems and Needs Assessment. An
assessment of problems and needs in the area, _including condition of
properties, public facilities, land use patterns, public safety, appearance
and aesthetics, investment characteristics, and economic health, c)
Direction: Role Selection. Examination of potential role definitions for
this area within the community, including discussion of various action
alternatives and recommendation of a preferred role option for this area, d)
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Implementation Strategies. Inventory and recommendation of resources and
strategies for implementation of downtown redevelopment and of the
'
recommended action alternative. Further issues addressed included:
financial resources, planning and studies, organizations and agencies,
'
private sector involvement, laws and regulations, public facilities
improvements, historic preservation, investment incentives, marketing and
promotion, special activities, zoning, public services, special service
'
districts, protection and utilization of natural resources, and nearby
neighborhoods involvement, and e) Concept Plan. Preparation of a conceptual
'
plan, including maps and drawings, graphically illustrating preliminary
recommendations for redevelopment of the area.
'
In addition to contracting
for a plan of the area, the
City has, in
cooperation with Onslow County,
applied for and received a
$50,000 grant
'
from The Land and Water Conservation Fund, and the Ocean
and Estuarine
Access Program to construct a
waterfront park along the New
River in the
'
downtown area.
' E. Redevelopment of Developed Areas: Other
1
It shall be the policy of the City of -Jacksonville to
redevelop developed areas of the City which contain
' either housing units that are determined to be
substandard and therefore unsafe for human habitation,
' or areas where the preponderance of incompatible land
uses have developed in the past due to unplanned growth.
13

Redevelopment of such areas will be contingent upon the
availability of local and federal funds and the
' financial feasibility of such projects.
' The City has been active in the redevelopment of older developed areas.
Since the adoption of the 1980 C.A.M.A. Land Use Plan Update, the City has
rehabilitated 42 residential units, 5 commercial structures, and demolished
' or cleared
30 other properties.
All rehabilitation projects and clearances
occurred in
older parts of town
which would be generally classified as
"depressed".
IIn addition to direct improvements in housing, infrastructure
'
improvements have also been made throughout these depressed areas. Since
1980, the City has paved Spargo Street, Shoreline Drive, Loyola Street, E.
'
Railroad Street, Wardola Street, Wantland Street, Marine Plaza, Maypatch
Road, Texie Lane, 5th Avenue, Annie Street, and Miracle Drive. All of the
'
were unpaved. In addition, the City has
aforementioned streets previously
'
constructed over a mile of sidewalks (5,376 linear feet) and made
substantial improvements in, and increased the availability of, both water
'
and sewer lines throughout the economically disadvantaged areas of the City.
It is felt that the rehabilitation and clearance of existing structures and
'
the extensive infrastructure improvements that have been made have
'
effectively implemented the City's adopted policy from the 1980 C.A.M.A.
Land Use Plan.of "Redevelopment of Developed Areas".
14
t

ll
u
[I
F. Recreational Lands
It shall be the policy of the City of Jacksonville to
locate and acquire recreational lands and facilities so
as to meet the recreation needs of the citizenry. These
needs shall be determined through development of a
detailed recreation and open space plan.
The above policy has been a guiding force in the City's effort to
expand recreational opportunities for local citizens. In 19819 the City, in
cooperation with the Regional Development Institute of East Carolina
University, drafted the "Jacksonville Recreation and Open Space Study" which
noted that the City owned only 25 acres of public recreation land.
A primary recommendation of the "Jacksonville Recreation and Open Space
Plan" and the aforementioned C.A.M.A. policy was the acquisition of
additional recreational lands. In order to acquire additional recreational
facilities, the City, in 19839 amended the City's subdivision ordinance so
as to require developers to donate recreational land, or fees in -lieu -of, -to
the City for all residential subdivisions. As a result of this action, the
City has acquired a 4.8 acre neighborhood park in Foxhorn Village
Subdivision, a 2 acre park in Acorn Forest Subdivision, and a 3.9 acre park
in the Branchwood Subdivision and has reserved a 2.2 acre park in Ellis Park
Subdivision.for future acquisition. Approximately $25,000 in a capital
reserve property acquisition fund has been received as fees -in -lieu -of land
donations from developers. The City has also acquired two community parks
15

1
ESTABLISHED PRIOR TO 1980
1 ESTABLISHED SINCE 1980
1 �
m
x j
m
A � m
1 D� 70
0
1 DI
-c
(I
U S. 258 - N.C. 24 1'
n
i � ✓�ti
i
1
i vs
16
RECREATIONAL LANDS
�•.. lQfUNE
BLVD.
THE CITY OF
JACKSONVILLE • NORTH CAROLINA
PLANNING DEPT.
a
m
Z
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH. A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZOM
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION:
G,pFFN
Rp
J-

to provide needed recreation facilities to area residents. The first park
was acquired from the Westminster Company in order to satisfy recreation
' needs in the 8rynn Marr and Country Club Hills subdivisions. This 82 acre
community recreation park, which is known as Northeast Creek Park, is under
'
active development. The site plan for this waterfront park was financed
through a 1983-84 C.A.M.A. grant. The other community park has only
recently been acquired, and is in the Northwoods area adjacent to Parkwood
'
Elementary School. This 32 acre park was partially acquired through
utilization of fees -in -lieu -of land that had been donated to the City to
'
fulfill subdivision development requirements within the general area. As a
result of the City's policy to acquire additional recreation land, the
'
City's land has by 608% from-25 152
overall recreational grown acres to
'
acres. Although this is a substantial increase in total recreation area,
the recreation land per person is not growing as fast, having increased by
'
545% from .0011 acres per person in 1980 to .0060 acres per person in 1985.
G. Planning Tools and Capacity
'
It shall be the policy of the City of
P Y
Jacksonville to
'
improve its capacity and potential to
guide community
growth and land use by developing
a .full range of
comprehensive elements by 1985.
These elements
plan
'
should include a detailed land use plan,
an economic
base study, a housing study and plan,
a recreation and
'
open space study, a community facilities
plan, a capital
improvements program, a historic survey
and inventory.
17

The City shall also explore the extension of its
planning jurisdiction up to two miles from its corporate
boundary and will consider uniform administration of its
development regulation codes throughout its
jurisdiction.
Since 1980; the City has completed "The Jacksonville Recreation and
Open Space Plan", "The Jacksonville Community Facilities Plan", "The
Jacksonville Housing Action Plan", "The Northeast Creek Park Site Plan", and
this land use plan update. The City has also instituted an ongoing capital
improvements program which is being used to fund major purchases. An
economic base study has not yet been completed but has been scheduled for
completion during fiscal year 1987-1988.
The City has also taken steps toward increasing the City's
extraterritorial planning jurisdiction from one to two miles as recommended
in the 1980 C.A.M.A. Land Use Plan Update. In the fall of 1983, the City
conducted a detailed study of extraterritorial expansion. This study
included land use surveys within the proposed expansion area and a survey of
other cities' extraterritorial jurisdiction limits, to which 41 cities
responded. This two mile expansion effort culminated in a joint meeting
between the Onslow County Commissioners and Jacksonville City Council at
which time Jacksonville's expansion request was denied.
18

Existing Population
19

ANNEXATIONS
As indicated on Map Attachment C, the City of Jacksonville has
maintained an aggressive annexation policy since the opening of Camp Lejeune
in the mid-1940s. Since 19809 the City has annexed an additional 29437
acres increasing the area within the corporate limits from 8.15 square miles
to 11.97 square miles. The City, additionally, boasts a one mile
extraterritorial planning jurisdiction. Future annexation considerations
are reflected on Map Attachment D as adopted by the Jacksonville City
Council.
Table 1 below illustrates corporate land area increases resulting from
annexations between 1960 and 1985.
TABLE 1
JACKSONVILLE CORPORATE LAND AREA INCREASES
1960-1985
Year Corporate Area (in square miles)
1960 3.56
1970 4.86
1980 8.15
1985 11.97
Percent Increase
Source: City of Jacksonville Planning Department.
37%
68%
46%

THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM,
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION
PRE 1940
1940 - 1949
i1950 - 1959
1960-1969
197C -1979 0
' 1980 -1985
i
U.S.258-N•C•24
' N1
JS•
ANNEXATIONS 1940-1985
Az

THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION
U.S.258 N.C.24
dW
22
JACKSONVILLE URBAN AREA
ANNEXATION CONSIDERATION MAP 1965
ADOPTED BY CITY COUNCIL APRIL 18. 1985
�O
THE CITY OF
JACKSONVILLE , NORTH CAROLINA
PLANNING DEPT.
SCHEDULED FOR ANNEXATION /
AUGUST 30. 1986

POPULATION
The City of Jacksonville has experienced forty-five years of rapid
growth. It has grown from a population of 873 in 1940 to an estimated 1985
population of 25036. These figures represent a 2779% increase over a
period of less than five decades.
TABLE 2
ONSLOW COUNTY AND JACKSONVILLE POPULATIONS
1940-1985
Year
Onslow County
Jacksonville
1940
17,939
873
1950
42,047
3,960
1960
82,706
13,411
1970
103,126
16,021
1980
112,784
1% 237
1985
118,373
25,136
Source: U.S. Census Bureau, Office of State Budget & Management
23

The establishment of Camp Lejeune in Onslow County is a primary reason
for Jacksonville's sustained population growth rate. Table 3 delineates the
rates of natural increase and net migrations for the years 1961-1980.
TABLE 3
NATURAL INCREASE AND NET MIGRATION WITHIN JACKSONVILLE
1961-1985
Natural Increase (Birth Rate)
1961-70
5,609
1971-BO
4,171
1981-85
5,460
Net Migration
11,309
5,484
N/A
Source: 1983 City Data Base and North Carolina Dept. of Natural
Resources and Community Development
As Table 3 indicates, the number of individuals living in Jacksonville
is more proportionately affected by those moving to _the area rather than by
those being born in the area. Net migration increases are directly tied to
the number of former military and their dependents retiring in the area, as
well as to the number of people moving to Jacksonville to join the goods and
services industry.
24

The following table offers a comparison of Jacksonville's population
between 1970 and 1980 by age groups as provided by the U.S. Census Bureau:
TABLE 4
JACKSONVILLE POPULATION BY AGE
1970-1980
Age
1970
1980
Under 5
1,624
1,547
5-9
1,698
1,298
10-14
1,873
1,240
15-19
1,585
1,597
20-24
2,150
2,458
25-29
1,274
1,955
30-34
1,025
1,248
35-44
2,000
1,771
45-54
1,570
1,767
55-59
438
2,886
60-64
306
529
65-74
316
609
75-84
127
215
85+
35
69
Source: U.S. Census Bureau
25
Change
5
- 31
- 51
+ 1
+ 14
+ 53
+ 22
- 13
+ 13
+558
+ 73
+ 93
+ 69
+ 97

The largest age group increase between 1970 and 1980 was experienced by
the 55 to 59 age group. It should further be noted that all age groups 45
' and over have experienced extensive growth since 1970. This growth
indicates that a large number of retired military and their dependents are
choosing to remain in Jacksonville.
' Though Marine Corps Base Camp Lejeune exists as an entity separate from
the City of Jacksonville, its population has a significant bearing on the
development and economy of the City. Table 5 depicts the actual military
' presence found both on base and in surrounding communities with Jacksonville
clearly being the community most profoundly affected.
71
�l
I
26

TABLE 5
TOTAL MILITARY (ACTIVE AND RETIRED); THEIR DEPENDENTS AND
CIVILIAN EMPLOYEES
BY SELECTED MONTH AND YEAR 1980-1985
Active Ret.
Month/Year Milit. Depend Depend Civil. Total
November
1980
359446
23,478
22,549
3,905
859378
November
19B1
367297
23,571
21,788
3,808
85,464
November
1982
39,358
24058
30,360
4,211
98,Ob8
November
19B3
39,877
24,645
31,710
4,497
100,729
November
1984
40,477
33,297
31,493
4,392
1059522
June
1985
43,304
33,351
31,674
4,489
112,818
Source: Assistant Chief of Staff, Manpower - USMC, Base Camp
Lejeune
These totals indicate that the total military (as defined in Table 5)
grew more than thirty-two percent between November 1980 and June 1985. It
is anticipated that this growth trend will continue at its present rate over
the coming ten years.
27

co
[U

ECONOMY
The economic base and structure found within the City is quite
different from those found in most comparably sized cities within North
Carolina. The following sections serve to identify economic factors which
differentiate the nature and scope of Jacksonville's economy from most other
economies found on the State's coast.
Payroll and Retail Sales
Table 6 depicts the five major industries within Onslow County and
further estimates the annual payroll of each industry during the noted
years.
Table 6
Estimated Annual Payroll per Industry in Onslow County
1975, 1980, 1984
Source 1975 Payroll 1980 Payroll
Camp Lejeune $244,000,000 $355,000,000
Industry 22000,000 32,000,000
Agriculture 20,000,000 289000,000
Tourism 129000,000 26,000,000
Seafood Industry 8000,000 13,000,000
Source: Onslow County Economic Development Commission
1984 Pavroll
$408,935,000
50,000,000
38,361,541
43,624,000
9,653,640
29

L
IWhile these figures pertain specifically to Onslow County, it should be
' noted that a large segment of the overall Camp Lejeune monies remain within
the Jacksonville Urban Area.
1
30

Table 7 serves to contrast retail sales in both Jacksonville
and Onslow County between 1970 and 1983. These figures highlight
the constant increase in overall retail sales while specifically denoting
the tremendous amount of overall retail sales which take place within
Jacksonville.
Table 7
Retail Sales in Jacksonville and Onslow County
1970-1983
Year
Jacksonville
Onslow County
1970
$10559805116
$138,717,657
1971
108,640,669
147,325,204
1972
1229544,924
167,139,528
1973
140,476,403
194,066,574
1974
149,622,399
213,290,728
1975
160,1335124
232,299,799
1976
176,974,662
261,858,203
1977
196,284,346
285,192,011
1978
210,103,409
311,938,794
1979
224,459,502
3379755,974
1980
250,193,547
364,909,567
1981
309,248,814
406,957,094
1982
361,297,285
462,355,522
1983
428,511,780
539,007,283
Source: Onslow County
Economic Development Commission
31

1
1
1
1
1
1
1
1
1
1
1
1
1
1
Employment
Employment within Jacksonville continues to grow at a high rate. Table
8 indicates the total number of employed civilians from 1960 to 1980 while
Table 9 depicts the sources of employment in 1980.
Table 8
Jacksonville Civilian Employment
1960-1980
Year Number Employed
Percent Increase
1960
3105
1970
4933 5B%
1980
67BB 37%
Source: U.S. Census Bureau
32

Table 9
Source of Employment
1980
FIELD
NUMBER
WOMEN
MEN
1. Agriculture
15
10
5
2. Mining
6
0
6
3. Construction
351
55
296
4. Manufacturing
- nondurable goods
255
200
55
- durable goods
319
147
172
total
574
347
227
5. Transportation, communication
and other public utilities
505
120
385
6. Wholesale Trade
126
49
77
7. Retail Trade
- general merchandise
307
200
107
- food, baker, dairy
197
70
127
- auto dealers, gas station
169
25
144
- eating, drinking places
473
280
193
- finance, insurance, real estate
540
308
232
- banking and credit agencies
242
160
82
- insurance and other finance
298
148
150
total
1588
742
846
B. Services
- business service
102
43
59
- repair
71
4
67
- private households and other personal service
270
208
B2
- entertainment, recreation
100
23
77
- professional and related services
1362
1010
352
- health care and hospitals
1050
295
755
- education
713
544
169
- social service, legal, Professional
279
171
108
- public administration
603
243
360
total
1925
1288
637
Source: U.S. Census Bureau
33

Income
The following table depicts, per capita income, mean family
income, and household income in both Jacksonville and Onslow County for
the listed years.
Table 10
Per Capita, Mean Family, Median Family, and Household Incomes
Jacksonville and Onslow County
Per Capita
Year Jacksonville
1970 $2,866
1980 6,333
Onslow County
$2;205
5,114
Mean Family 1970 9,702 7,491
1980 1B,791 15,763
Median Family 1950
2,582
1,312
1960
.5,091
3,729
1970
8,225
6,471
1980
16,389
13,210
Household Income 1980
$17,33B
$14,804
Source: U.S. Census Bureau
34

1
r]
Camp Lejeune
Camp Lejeune Marine Corps Base occupies approximately 166 square miles
in the southeastern portion of Onslow County, or approximately 22% of the
county's land area. The base, since it is under no county or municipal
jurisdiction, is controlled completely be the military.
With 43,304 military personnel stationed at Camp Lejeune and living on
base, as well as throughout the county and neighboring counties, the
economic impact is both broad and far-reaching. In 1984, 31,674 dependents
of military personnel also lived in or near Onslow County, 11,524 on base,
20050 off base. Over 41489 civil service workers from a multi -county area
commuted to Camp Lejeune daily to work. Over 1500 non -civil service workers
commuted to work daily on various base construction projects at the base.
With an annual payroll now exceeding $408 million, the effect of Camp
Lejeune on the entire region is obvious. It is estimated that the
government spent $155 million for goods and services at Camp Lejeune in
1984, including utilities, travel, supplies, repair, and construction, much
of that locally.
Camp Lejeune is virtually a self-sufficient city within itself. It
supplies the majority of its own community facilities and purchases
electricity through an exclusive contract with Carolina Power and Light
Company. Most living requirements can be purchased directly from the
commissary or the post exchange which this past year (1984) had combined
retail sales of over $65 million.
35

Along with the population at Camp Lejeune come many vehicles. In
addition to more than 57,000 registered vehicles in Onslow County, we must
plan on over 59,100 unregistered vehicles (out of state and military
vehicles) to get the entire traffic picture.
E
1 36

Ci
F
g
Exl"stl'n Land Use
P�
1
37

fi
EXISTING LAND USE
Since the advent
of Camp Lejeune in the
mid-40s7 the City of
Jacksonville has grown
rapidly and haphazardly. It
was not until 1980 that
the City, with the aid
of a Coastal Area Management
Act Grant, established a
professionally staffed
planning program. With the
continued expansion of
' personnel at Camp Lejeune, the City strived to meet the demand for
additional services and housing. The City's original Central Business
' District (CBD) became too small to meet the increased demand for commercial
goods and services. Being confined from expansion to the south by Camp
Lejeune, to the west and north by the New River and associated fragile
' wetlands, and to the east by established residential areas, commercial areas
began to grow linearly along major thoroughfares. Before this trend of
' strip commercial development came under control, practically the entire
length of U.S. Hwy 17, N. C. Hwy.24, and Western Boulevard were filled with
' commercial land uses. Outlying residential areas were also developed so as
to take advantage of the expanded business areas and the thoroughfare -like
access that was provided to the Camp Lejeune employment center. Within the
' City Planning area there are no identified archeological sites, publicly
owned gamelands, or prime agricultural sites which could be easily damaged
' or destroyed by inappropriate and poorly planned development.
1 Residential
The Jacksonville area offers a wide variety of housing types,
' densities, and locations. The major employment center in Jacksonville is
1
38

iCamp Lejeune and most housing areas have been situated so as to have quick
' and convenient access to that center. However, because of the sheer volume
of traffic associated with commercial and residential development along the
' City's thoroughfares, access to Camp Lejeune has often become burdened with
traffic, traffic signals, and access points.
' The 1983 City of Jacksonville C.A.M.A. Housing Action Plan details the
number and quality of housing units within the City. In order to provide a
' variety of housing types to service the needs of a highly transient
population, the City contains a large percentage of small lot and rental
type housing.
According to the 1983 C.A.M.A. Housing Action Plan, 61% of the City's
housing units are detached single family, 27% are apartment type units, 7%
are mobile homes, and 4% are duplex/townhouse type units. The majority of
' multi -family type units can be found in close proximity to existing
thoroughfares while single family detached units are "buried" deeper into
' residential development with the multi -family units serving as transition
Iareas.
ICommercial
As mentioned in the
introduction to this
chapter, the Jacksonville CBD
became stifled by physical
constraints, and
the desire to make commercial
areas readily accessible
to new residential
areas. As a result of this
desire to bring retail
areas into close
proximity to new residential
1 39

7
L
IF
RESIDENTIAL "
�:'•� ,S
E77^ OFFICE /INSTITUTIONAL •J.�_!�J �•'' .!"� �•'�•� 'a
J ' rJ J1
EXISTING LAND USE
OPEN SPACE
J,✓ ... i, J .J �y 1 J ,SJ J J
i� .,J J J J! l ,�,J �J J - J-' J J� 1 j ., t J . J �.J JJ •f J.- _
BUSINESS'
t t 1, t{ •> Jj J J J.
INDUSTRIAL /r,-_
f J •!. / t_.J �1� '-�:r J'�J
VACANT
. � J 1. � J J� = 'J J .,� J l � �� •.
pe✓••` .n- :� J `� - J + r ~ J J .¢ _� ;'JCS j J ., j �� J J JJ
r•'V I•yI J.�� �c}:% �1.-J .. 1�� '� �.. ✓� - JJ-j tJ J
l j.. JJ�� / -T�— JJ,J:•,i I.J J j JJ�='� 7 }J -i J.� J ✓- J� // J.
\. _ ,ti J wry '/ > :7G. .ii ^�J.q J -�� �� •. jig,
1 16
v'-,J
�v y � .-JJ •fig=J� ./ �j�.
FYI
t
i
M
e c,
J,.
K9
4 � v
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM,
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.
OF ^-
o
o
lz
I
44
__;
THE CITY OF
JACKSONVILLE . NORTH CAROLINA
PLANNING DEPT.

developments, and the lack of an "effective" planning program, commercial
' growth surged down major thoroughfares as strip commercial development.
Jacksonville currently has no "traditional" downtown. It, instead, has an
intensely developed series of roads highlighted by U.S. Hwy. 171 N.C. Hwy.
249 and Western Boulevard which intersect in such a manner as to form a
triangle, serving residential areas which are both within its confines and
' its exterior. As can be seen by viewing the existing land use map, there
are only scattered commercial areas, particularly along Gum Branch Road,
' Bell Fork Road, and Hargett Street which provide commercial service to
surrounding residential neighborhoods.
I
Industrial
' The City of Jacksonville has only a minimal amount of land used for
industrial purposes. The Jacksonville Industrial Park is located along
' White and Center Streets and was originally established in 1975. The park
is the site of Stanadyne, Mine Safety Appliance, Progressive Services, and a
' speculative shell building which was constructed in 1980 and remains
' vacant. Within the area of the industrial park there are nearly 150 acres
of vacant land which are well suited and situated for industrial
' development.
IVacant Land
The majority of land within the City's extraterritorial planning
' jurisdiction is currently vacant. However, as is noted by information
1 41

contained earlier in this report regarding population and annexations, the
City has experienced tremendous growth over the last 40 years. It is
anticipated that the City will continue to grow and that urban development
will encroach into these vacant areas. The large vacant areas in the
eastern section of the City (east of Western Boulevard) are expected to be
developed for residential purposes as major subdivisions within the area
(Brynn Marr, Country Club, and White Oak Estates) continue to expand in a
well planned manner. The majority of the vacant lands within the center of
the City (Bell Fork Road, Hargett Street, Country Club Road, and U.S. Hwy.
17) are expected to be developed during the planning period into a mixture
of commercial and residential land uses. The large vacant areas to the
north and west of the City should continue to see residential encroachment
as the City continues to grow northward along an expanded Gum Branch Road
and the proposed Western Boulevard extension. Flood hazard areas are the
only identified fragile areas having resource potential within the City of
Jacksonville; these areas remain vacant.
42

�L]
7
1
1
1
f
Physical Limitations/Constraints to Development
The list of physical limitations and constraints to development is both
lengthy and, in some cases, particularly unique to Jacksonville. Major
components of this list include: 1) the presence of Marine Corps Base Camp
Lejeune; 2) the inadequacy of the present streets network to accommodate
current and anticipated traffic loads; 3) soil limitations prohibitive of
most types of urban development; 4) barriers created by the New River and
its associated fragile areas; and 5) special limitations on the existing
water and sewer facilities. There are no helicopter landing areas, chemical
storage locations or roads identified for the transportation of explosives
within the Jacksonville Planning Area that have been' identified as
constraints to development. The following sections discuss each of these
limitations/constraints and, further, discuss both current and anticipated
methodologies specifically addressing each issue.
1. Camp Lejeune
While the economic benefits derived from the presence of Camp Lejeune
can hardly be overstated, that presence also serves as a barrier to the
private development of approximately five miles of property adjacent to the
southernmost Jacksonville city limits. The Base essentially functions as a
self contained city. It supplies its own power and community facilities
thereby remaining autonomous. Comprised of one hundred seventy three square
miles, the Marine Corps Base owns approximately twenty two percent of Onslow
County. It is anticipated that this large land area will remain under the
44

' ownership of the United States government and that no private development
' will ever take place within its realm.
' The City and the Base have long enjoyed a good working relationship
and, while the Base does indeed represent a barrier to private development
south of the City's corporate limits, it must be noted that base facilities
' continue to expand according to recommendations handed down annually by
Headquarters Marine Corps in the form of a "Facilities Support Requirements
IJ
r
Plan." This Plan depicts decisions made after environmental, land use,
transportation, and related issues have been thoroughly evaluated.
2. Streets Network
Demands made on several major thoroughfares through Jacksonville
continue to increase. The steady growth of the City has outstripped its
transportation facilities and created an urgent need for transportation
system improvements to keep pace with this development Map Attachment F
depicts average daily trip counts, as provided by the North Carolina
Department of Transportation, at selected locations. (Top figures represent
1980 counts, while bottom figures depict 1984 counts.) As indicated by
these traffic counts, the volumes of traffic carried along major routes has
jumped substantially at each count location during this four year period.
It is anticipated that volumes will continue to climb, thereby rendering
many existing roadways obsolete. Beyond the capacity problems facing the
existing streets network, further development north and northwest of the
city limits is currently impossible due to a complete absence of streets
45

1980 A DT
1984 ADT
N/A - NOT AVAILABLE
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED 1.\
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.
rn
O
D
Z
D
-c
ti•
U S. 2M - N.C. 24 .i
.
4 •'••., 41, 20
15,100 ,---� 47.
COMPARATIVE TRAFFIC COUNT MAPS
AT SELECTED LOCATIONS 1980/1984
N/A
14,20Q'
.700% .
.200
,p
18.000
29.200
•
o
10
R:
7, 0
NIA ,' z
�6,100•.,
6
0
C�,
RD •:
N /A
t110,200
Y•�' � • 1 urve
a 8Wp_
�� '• `� •rL 19.400
�S. 17200 ••• 24,20C
25.20046
THE CITY OF
JACKSONVILLE , NORTH CAROLINA
PLANNING DEPT.
N/A
10,15,00
IN
23.700
if 1 I 00
Fy
Rp

F
n
0
within these areas.
In recognition of both traffic load problems and the amount of property
to which no access to a public street exists, the Jacksonville City Council
adopted the Jacksonville Urban Area Thoroughfare Plan Update in 1985 (see
Map G). Further discussion of suggested improvement and construction
projects can be found in the chapter entitled "Future Needs, Demands, and
Community Facilities" on page 79 of this Plan.
3. Soil Limitations
The U.S. Soil Conservation Service, in cooperation with the Onslow Soil
and Water Conservation District, completed a soil survey of Jacksonville in
1975. The study concludes that majority of soils within Jacksonville are
either unsuitable for building, or can be made suitable only by improving
drainage and related soil problems. More detailed information may be
obtained from the U. S. Soil Conservation Service.
4. Areas of Environmental Concern (AEC's)
The New River flows through, and borders on, the western city limits.
Growing concern about pollution prompted the City and County to jointly
sponsor a study of the river. Completed in 1983, the "Pollution -Related
Microbiology of the New River Estuary Study" determined that the New River
is in a partially polluted state resulting from a combination of
agriculture, stormwater, landfill and wildlife runoff. The study further
47

THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
rF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.
X
A
1
11
48
I
lz�le�
Ac
♦ p'k
00
4 a i
o
a
� \-- �•0'
THE CITY OF
JACKSONVILLE . NORTH CAROLINA
PLANNING DEPT
JACKSONVILLE THOROUGHFARE PLAN
APRIL 17. 1985
S 170 OCAT!ON
!Ow
_ice r

J
suggested that improvements in sewer hook-up controls and steps slowing
runoff would considerably lower the pollution level of the River.
There are a number of AEC's in the Jacksonville Planning area
associated with the New River Drainage Basin. These areas include public
trust waters, estuarine waters, and estuarine shorelines.
Public trust waters are defined as all waters of the Atlantic Ocean and
the lands thereunder from the mean high water mark to the seaward limit of
state jurisdiction; all natural bodies of water subject to measurable lunar
tides and lands thereunder to the mean high water mark; all navigable
natural bodies of water and lands thereunder to the mean high water level or
mean water level as the case may be, except privately --owned lakes to which
the public has no right of access; all water in artificially created bodies
of water containing significant public fishing resources or other public
resources which are accessible to the public navigation from bodies of water
in which the public has rights of navigation; and all waters in artificially
created bodies of water in which the public has acquired rights by
prescription, custom, usage, dedication, or any other means.
The public has rights to public trust waters including navigation and
recreation. In addition, these areas support valuable commercial and sports
fisheries, have aesthetic value, and are important resources for economic
development. The New River is an example of public trust waters.
49

Estuarine waters are another valuable resource in need of protection.
' The waters of the New River below the bridge carrying U. S. Highway 17
traffic are classified as estuarine waters. Estuarine waters are defined as
' all the waters of the Atlantic Ocean within the boundary of North Carolina
and all the waters of the bays, sounds, rivers, and tributaries thereto
' seaward of the dividing line between coastal fishing waters and inland
' fishing waters, as set forth in an agreement adopted by the Wildlife
Resources Commission and the Department of Natural Resources and Community
' Development found in 15 NCAC 3F .0200 and the most current revision of the
North Carolina Fisheries Regulations for Coastal Waters.
' Estuarine waters are the dominant component and bonding element of the
entire estuarine system, integrating aquatic influences from both the land
' and the sea. Estuaries are among the most productive natural environments
of North Carolina. They support the valuable commercial and sports
' fisheries of the coastal area which are comprised of estuarine dependent
species such as menhaden, flounder, shrimp, crabs, and oysters. These
' species must spend all or some part of their life cycle within the estuarine
' waters to mature and reproduce. Of the 10 leading species in the commercial
catch, all but one are dependent on the estuary.
This high productivity associated with the estuary results from its
unique circulation patterns caused by tidal energy, fresh water flow, and
' shallow depth; nutrient trapping mechanisms; and protection to the many
organisms. The circulation of estuarine waters transports nutrients,
' propels plankton, spreads seed stages of fish and shellfish, flushes wastes
1
50

from animal and plant life, cleanes the system of pollutants, controls
salinity, shifts sediments, and mixes the water to create a multitude of
habitats. Some important features of the estuary include mud and sand
flats, eel grass beds, salt marshes, submerged vegetation flats, clam and
' oyster beds, and important nursery areas.
Secondary benefits include the stimulation of the coast economy from
' the spin off operations required to service commercial and sports fisheries,
waterfowl hunting, marinas, boatyards, repairs and supplies, processing
' operations, and tourist related industries. In addition, there is
considerable nonmonetary value associated with aesthetics, recreation and
education.
tThe third Area of Environmental Concern found within the Jacksonville
' Planning area are estuarine shorelines. Although characterized as dry land,
estuarine shorelines are considered a component of the estuarine system
because of their close association with the adjacent estuarine waters.
Estuarine shorelines are defined as those non -ocean shorelines which
are especially vulnerable to erosion, flooding, or other adverse effects of
wind and water and are intimately connected to the- estuary. This area
extends from the mean high water level or normal water level along the
estuaries, sounds, bays, and brackish waters for a distance of 75 feet
landward.
51

All areas of environmental concern are directly associated with the New
River and are found throughout the City. Attached Map H depicts areas,
designated by the Federal Emergency Management Agency in February 1985,
which lie within floodplains. These areas are, of course, prohibitive of
standard type development and encompass floodplains, public trust waters,
estuarine waters and estuarine shorelines.
5. Limitations on Water and Sewer Facilities
In discussing limitations to development, water and sewer availability
and system capacities are of paramount concern. The City recognizes the
importance of this issue and addresses it in detail in the following
chapter.
52

FEMA FLOODWAY BOUNDARIES
THE Pkt.PAkAT10N OF THIS MAP *AS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM,
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
Y.HICH IS ADMINISTERED BY THE OFFICE
— COASTAt RESOURCE MANAGEMENT
•.ATIONAL OCEANIC kNO ATMOSPHERIC ADMINISTRATION
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US 258-N.rC-.24
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THE CITY OF
JACKSONVILLE , NORTH CAROLINA
PLANNING OEPT

Limitations an
Water and Sewer
Facilities
54

I
L
LIMITATIONS ON WATER AND SEWER FACILITIES
In discussing limitations to development, water and sewer availability
and system capacity are important considerations. In the following
paragraphs these water and sewer factors are presented. Included are
details on hydrologic setting, fire flows, and water consumption, as well as
information on the actual physical facilities.
Hydrologic Setting:
The hydrologic setting represents the water availability
characteristics of the various rock formations and aquifers found in the
area that can be used for potable water. In the Jacksonville area, several
hydrologic units exist. The Castle Hayne Aquifer is the most prolific
aquifer of the area. However, because of a high iron and sulfur content,
treatment is required prior to introduction into the potable water supply.
The Cretaceous Upper Sand Aquifer yields small quantities of potable water;
insufficient for a consistent supply to serve the City. The Cretaceous
Middle Sand Aquifer produces the majority of the City's water supply. The
water is of high quality and requires only chlorination prior to
consumption. At present, the overall capacity of the cretaceous middle sand
aquifer to accommodate future demands is unknown, however, the City, Onslow
County, Richlands, and Jones County are participating with the USGS and
DNRCD in developing a ground water computer model which will aid in making
this determination.
55

J
' Water Treatment:
The quality of water in the Wells Fields is such that the only
' treatment required is chlorination for disinfection purposes. Fluoridation
is not required as it occurs in near optimum concentration naturally in the
' water.
1 Water Supply Facilities:
'
Jacksonville obtains its water from two major well fields: the 258 Well
'
Field
and the Gum Branch Well Field. The 258 Well Field is located six
miles
west of Jacksonville off U.S. Highway 258 on Old Tram Road. The 258
'
Well
Field was installed during the early 1960's and contains six wells
having
a total water production capacity of 1370 gpm or about 2 mgd. Water
'
from
the wells is pumped into a 16 inch diameter water main which discharges
'
into
a 500,000 gallon underground clearwell at the water plant. Chlorine is
added
to the water at a control house located on U.S. 258 near the well
'
field
and at its water plant.
Gum Branch Well Field is
located Jacksonville
The
nine miles"from
on
Gum Branch Road (SR 1308). The
Gum Branch Road Well Field was installed
during the 1970's and consists of
five wells having a total
water production
'
capacity of 2000 gpm or 2.9 mgd.
The wells discharge into
a 500,000 gallon
clearwell at the well field site.
The Gum Branch Pumping
Station contains
'
two high service pumps having a
combined pumping capacity
of approximately
56

m
RIaa�Ia
M BRANCH WELL FIELD
(SEE nW*t 1-3 rat DETAILS)
`1
258 WELL
3 FIELD
• (SEE rl"E I-1:
`j rat DETAILS) �.
to -INCH l
DIAMETER
WATER SUPPLY
MAINS
(JI
.44
LLE
v
WATER
--v PLA
CA
r IE,eV� SA S•
JACKSONVILLE
A WATER SUPPLY
SYSTEM
N
0 I t S 4
SCALE IN MILES M
�M�
FIGURE 1-1 „�

2700 gpm. Chlorination occurs at the Gum Branch Control House and is pumped
directly into the distribution system via a 16 inch water main on Gum Branch
Road.
An important element of the water supply system is the water plant
located on West Railroad Street. The water plant was initially used to
aerate and chlorinate water produced by the Old City Well Field. (Aeration
has not been necessary since development of the 258 Well Field due to
improved water quality.) Currently, this facility provides ground storage
and high service pumping for the 258 Well Field and a central monitoring
location for the operation of the water supply and water distribution
systems. Water is pumped from the water plan clearwell into the
distribution system.
58

TABLE 11
WATER SUPPLY CAPABILITIES
WATER SUPPLY PRODUCTION
258 WELL FIELD GUM BRANCH WELL FIELD
Well #1
300
gpm
Well #1
850
gpm
#2
300
gpm
#2
50
gpm
#3
170
gpm
#3
150
gpm
#3A
100
gpm
#4
500
gpm
#4
200
gpm
#5
450
gpm
#5
300
gpm
2000
gpm = 2.88 mgd
1370
gpm =
1.972 mgd
TOTAL PRODUCTION 3370 gpm = 4.9 mgd
Source: City of Jacksonville Utilities Department
Water Storage Facilities:
Prior to 1972 the City had three elevated and one ground storage tanks
with total capacities of 900,000 gallons elevated and 500,000 in ground
59

1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
storage at the water plant.
Following the 1972 Water Report, an additional 19000,000 gallons of
elevated storage was added, half in the Northwoods Area near the junior high
school and the other half on Ellis Boulevard approximately one-half mile
north of Lejeune Boulevard. An additional 500,000 gallon ground storage
tank was also added at the Gum Branch Well Field.
The May 1980 annexation also brought into the system the 4009000 gallon
elevated tank in the Brynn Marr area.
Table 12 details the existing storage capacities and locations in the
Jacksonville water supply system.
60

TABLE 12
WATER STORAGE CAPABILITIES
Water Storage Capacity
Clearuells
Gum Branch Wellfield
Water Plant
Tanks
Gum Branch Road
Water Plant
U.S. 17 N
Ellis Boulevard
Brynn Marr
Northwoods
Total Storage
Capability
Water Distribution System
500,000 gallons
500,000 gallons
500,000 gallons
200,000 gallons
200,000 gallons
500,000 gallons
400,000 gallons
500,000 gallons
39300,000
The water distribution system in Jacksonville is controlled by the
amount of water pumped in from the well fields and the level of water in the
storage tanks. Water enters the distribution system from two points,
the Gum Branch Clearwell and the water plant clearwell, through a grid
system of mains. High service pumps at both locations allow water plant
61

THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM,
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.
WATER DISTRIBUTION SYSTEM
WATER LINE SIZE10
�I
A.
M •, ..
12 ■■■■■■■■■■■■ • •� ' : •• '� 1 '�
16`490 loo
40
,,,y ,v...•'
j! • ♦ ■ Aft
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Q t I •
S�. 41o ••'• � 410
r
uNE BLVp, i
u5 • ••' I THE CITY OF49- ' ••�•
0 JACKSONVILLE . NORTH CAROLINA 2
l 9-N
PLANNING DEPT.
62 �►'

I
operators to adjust the rate of flow into the system to meet the demand.
'
Pressure in the system is
maintained between 45
and 60 psi. Water
demand and storage tank levels
are monitored from the
water plant. The
'
system consists of all sizes of
pipe from 2 inch to
16 inch with 6 inch
being the most common. Generally
a 6 inch is the minimum
used for new work
'
where fire hydrants are uses. A
two inch line may be used
on short cul-de-
1
�11
sacs.
Recent Water Usage:
Water demands have increased substantially over the past 20 years.
Some of this increase is due to the addition of former county users through
annexations, as happened in 1976 with the Brynn Marr area. After a
substantial reduction in per capita usage from 1954 to 1966 due to technical
improvements in the system, the per capita usage has increased. Since
Jacksonville has little industry, this increase is primarily due to
increases in domestic consumption. A 1982 Camp Dresser & McKee report
projects this trend to continue to the year 2000. (Table 13 from that
report is shown.on the following page.)
It should be emphasized that if Jacksonville adds any industry,
especially wet industry, the per capita use figures will increase
substantially.
63

TABLE 13
WATER CONSUMPTION
Maximum
Per Capita
Average
Maximus
Maximum
Fire
Day Plus
Population
Consumption
Day
Day
Hour
Flow
Fire
Year
Supplied
(gpd)
(mgd)
(mgd)
(mgd)
(agd)
(Mgd)
1954
7960
151
1.20
1.40
1966
97
1.57
1971
16500
121
2.00
2.30
4.55
1975
1.87
2.55
1979
22000
111
2.45
3.73
1985
25000
120
3.00
4.80
7.68
5.04
9.84
1990
26600
124
3.30
5.28
8.44
5.04
10.32
1995
28300
127
3.59
5.75
9.20
5.04
10.79
2000
29900
130
3.89
5.22
9.95
5.04
11.26
Source:
City of Jacksonville Public Utilities Department.
Adequacy of Water Supply System
With the completion of Well 16, the supply capacity reached 5.568 mgd.
Past maximum demand reached 5.5 mgd in 1985. Two additional 450 gpm wells
are planned for construction in FY86-87. These additions will bring supply
capacity to 6.86 mgd which should accommodate existing and anticipated
development demands until 1992. Present annual daily water demand is
approximately 3.58 mgd.
64

1
Fire Flow Requirements
' The City of Jacksonville uses the recommendations of the Insurance
Services Office (ISO) to determine fire protection requirements. In
1 general, these recommendations vary from 750 gallons per minute (gpm) for
1 residential areas to a maximum of 3,500 gpm (5.04 mgd) for commercial and
industrial buildings. It is accepted practice to add the fire flow
1 requirements to the maximum day consumption.
1 The Camp Dresser & McKee report stated that sufficient storage capacity
existed to meet fire flow requirements. However, the distribution system
1 and water supply may become critical as the development expands.
1
Presently, there are approximately 800 fire hydrants, within the City.
1 The City's policy is for the hydrants to be tested by the Fire Department
twice annually and for the Utilities Department to repair any hydrants not
1 in proper working order.
Onslow County Water System
Onslow County has recently constructed a system of water mains, storage
tanks and pumps to provide water to many areas of the county not presently
being served by municipalities. The cost of the improvements was borne by
the State, a Farmers Home Administration grant, and a county bond issue. An
interconnection has been made between the county system and the city system.
Two others are feasible- one on Gum Branch Road and one in Country Club
65

Hills. These interconnections will provide for an exchange of water in case
of a water emergency. The City also has bought some county lines in areas
' that have been annexed. The cost.were reimbursements of actual county
dollars spent on the lines, not including grant funds applied.
1
66

Wastewater Collection and Treatment System
EPA "201" Facilities Plan
In November 1972, Public Law 92-500, the Federal Water Pollution
Control Act, was enacted. This law was the most comprehensive clean water
legislation enacted during a 20 year period. More specifically, the Act had
three major elements that were not the major thrust of previous legislation.
These three elements were:
1. Comprehensive Planning
2. 75 Percent Facilities Planning and Construction Grants
3. Strong Enforcement Procedures through the NPDES permit system.
The Jacksonville Area Facilities Plan developed as a result of this
act, was presented to City and County officials on December 239 1976. The
area covered includes that part of Onslow County extending on the east from
the Northeast Creek Drainage Basin (Piney Green) to the center of Southeast
Creek on the west, a distance of about 14 miles, and inland a distance of
between 6 to 7 miles.
In July of 19779 the City was given a 75% Federal and 12.5% State grant
to provide the facilities called for in the selected plan for the City of
Jacksonville and that part of the county in the planning area that is east
of the City. The Wilson Bay Wastewater Treatment Plant was expanded to 4.46
mgd and several pumping stations and trunk sewer were installed under this
67

program. Some difficulties were experienced with meeting permitted effluent
limits; upgrading of this treatment facility to increase sludge handling
' capability is in progress.
I
Jacksonville System - General
The Jacksonville wastewater treatment system consists of lateral,
collector and interceptor gravity sewers, force mains and pumping stations,
and one packed tower biological filter secondary treatment plant with
'
aerobic sludge digestion, located on New River at Wilson Bay. The latter
has eliminated the need for two sewage lagoons previously used to treat the
'
City's sewage. The wastewater treatment plant is designed to serve a
'
population of 39,000 persons resulting in a flow of 4.46 mgd average with
peak flows of up to 12.2 mgd on an average loading rate of 3.0 mgd. The
1
facility was designed to meet its NCDES permit requirements as follows:
' Biochemical Oxygen Demand (BOD): 30 mg/l
Suspended Solids (TSS): 30 mg/1
' Kjeldahl Nitrogen (TKN): 25 mg/1
Dissolved Oxgen (DO) : 5 mg/l
ISource: NPDES Requirements
The new treatment plan was designed for the year 1995. However, recent
' census data and growth projection indicate that the plants capacity will be
more than adequate past the design date.
68

1
ISewage Collection System
Jacksonville is relatively flat with elevations ranging from zero to 60
feet. As a result of the flatness, it is necessary to construct sewers at
' minimum grades.
Jacksonville also spans across several partially tidal tributaries to
P
the New River.
For these two reasons, as well as the fact that Jacksonville has grown
' through a series of annexations of subdivisions with their own waste
handling systems, the current system consists of a number of separate force
' mains and pumping stations.
The recent 201 program sought to eliminate a number of the smaller pump
stations. However, there still remain the 5 large stations and over 20
smaller ones. The larger stations are dry pit type with variable speed
centrifugal pumps and are provided with a stand-by unit as well as an
automatic switchover to auxiliary power by diesel generators. Most small
' stations are wet pit installations and are provided with stand-by pumping
' units- either submersible or suspended type. The more important units also
have an auxiliary power supply by diesel generators.
All pumping stations operate automatically based on sewage level with
maintenance visitations made daily when possible. The major functions are
monitored by stations larger than 100 gpm from the treatment plant at Wilson
Bay.
69

Sol
or

r-
L
L 17
Other Wastewater Treatment Facilities
The "201" Facilities Plan noted 22 point discharge sources in the
Jacksonville area. One of these is the Wilson Bay Treatment Plant. Two
discharge points, the Brynn Marr and Brookview Drive Lagoons, have been
abandoned. Thirteen more are located outside the jurisdiction of this
report, most being "package" plants. The remainder are being abandoned as
the City annexes further into the County.
Stormwater
Some stormwater enters the sanitary sewage system either as inflow or
as infiltration. The City has an active program of inflow (direct entry of
Stormwater into sanitary sewers) reduction and this source of added water is
under reasonable control. Jacksonville experiences some infiltration as do
other cities. High flows are experienced at the wastewater treatment plant
during periods of extended and heavy rainfall; however, the plant's
hydraulic capacity has not yet been exceeded. Stormwater is not
intentionally admitted to the sanitary sewers; the City has conducted no
tests of contaminants in urban storm water runoff.
Septic Tank Use
City of Jacksonville policy does not permit the use of septic tanks in
the city limits except in circumstances where sewer is currently not
accessible. There are, however, numerous areas in the City where septic
71

' tanks do exist, some are operable, most notably in the Bell Fork, Country
Club, and US 17 North areas. As the City has annexed these areas, and sewer
1 extended, the homeowners have been encouraged to hook on and abandon the
septic tanks through the enactment of a City policy requiring that sewer
' fees be paid regardless of hookup use. It is noted that septic system
' contamination of surficial aquifers (the disposal of sewerage by septic
tank/nitrifications line systems) is the responsibility of State and local
' health departments. Their regulations and enforcement procedures are
designed to protect the public interest both from groundwater contamination
and surface hazard.
IWater Protection
Potable water protection is guaranteed through several methods. First,
'
the State Division of Health Services requires a minimum of 10 feet of
horizontal or 18" vertical clearance between water and sewer lines and the
'
City upholds this requirement. Water lines are constructed of materials
meeting the standards of the American Water Works Association to insure•a
quality pipe network. The water lines are maintained and leaks repaired by
'
a 13 man, 3 crew division of the Public Utilities Department. The division
attempts to make repairs within 15 days of reporting: During construction,
'
be
metallized warning tape is placed over the line to warn people who might
digging up the ground.
L
72

I
Water Problems and Needs
In the near future, Jacksonville will be faced with a water shortage,
which was acute during the summer of 1985, and peak demand on hot days will
' surpass the system's pumping capacity. The City Council enacted a water
conservation ordinance to take steps toward easing the problem until
additional wells are completed.
The first new well should be completed by late 1985. Two additional
' wells are in the design stage for construction in FY1987 and FY1988.
However, with the rapid growth that Jacksonville has realized recently, and
the prospects for continued growth, additional wells will be required by the
' early 1990's as discussed on page
Sewage Problems and Needs
As Jacksonville continues to grow, numerous sewage problems have
' developed: 1) sewers do not have the capacity to handle additional flows;
2) pump stations are overloaded; 3) pumping is inefficient if gravity flow
' can be obtained. To address these problems, the City is undertaking an
interceptor construction program to eliminate current capacity problems.
' Within the next five years, interceptors are planned to be installed along
' Mill Creek, Dotey's Branch, and Sandy Run Branch. Future interceptors are
expected to be installed on Northeast Creek and Brick Kiln Branch.
The Mill Creek interceptor will ease overloading problems that
73

I
1
currently plague some Northwoods and Cardinal Village neighborhoods. In
addition, the area immediately north of Cardinal Village and the area
' adjacent to Willow Woods could be served without overloading the sewer
system in the area.
i
' The Dotey's Branch interceptor is the key to providing sewer to the US
17 North areas, including Foxhorn Village, near the old airport. With
' completion of this project, sewer for US 17 North to the rear of Long Acres
Subdivision and along the proposed Western Boulevard extension will be
1 served. Currently, the lack of facilities in this area provided a major
' constraint to development.
' The Sandy Run trunk main will provide sewer service to the area
recently annexed between Western Boulevard and Bell Fork Road, south of US
17. Currently all the homes in the area operate on septic tanks.
' Construction of this trunk sewer will also expedite the transfer of sewer
from College Park to the treatment plant taking strain off the system in
' Brynn Marr. This sewer system is to be the first installed under the
construction program.
' An interceptor along Brick Kiln Branch would allow the City to serve
the Georgetown area and large areas in the US 17 South, US 258, and
Maplehurst Road triangle. Northeast Creek's interceptor will provide for
elimination of two pump stations and open up the Piney Green and Brynn Marr
' areas for further development. Timing of this latter sewer system may be
' delayed if the current housing market tightens considerably.
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STORM HAZARD MITIGATION
The City recognizes the potential threat tropical storms and hurricanes
pose to the health, safety, and well-being of the Jacksonville community.
Flooding, wind damage, property damage, and other types of infrastructure
damage must be considered in attempting to prepare for those types of
disasters that may occur in coastal regions between June 1 and November 30.
The City endorses the "Onslow County Hurricane Response Plan" as adopted by
Onslow County in April, 1984. The plan outlines responsibilities,
evacuation actions, warning systems, and shelter provisions and, as such,
stands as an integral section of this Plan's overall storm mitigation
policy. The "Onslow County Hurricane Response Plan" is included as
Appendix 2 of this report.
A. Composite Hazard Maps
In recognizing potential flood damage areas within Jacksonville, Map
Attachment H depicts all floodplains within the City while Map Attachment L
depicts those existing developed and undeveloped lots which fall totally
within the 100 year floodplain.
B. Inventory of Existing Lots Within the Floodplain
Close examination indicates that one hundred seventy seven existing
lots within the City fall entirely within the 100 year floodplain, as
indicated by the Federal Emergency Management Agency. Field surveys,
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THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM,
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
v1NAGEMENT ACT OF 1972. AS AMENDED
*m,.H IS ADMINISTERED BY THE OFFICE
0� COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION
uS.
N.C. 24
Ni
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BLVD.
THE CITY OF
JACKSONVILLE • NORTH CAROLINA
PLANNING DEPT.
DEVELOPED AND UNDEVELOPED LOTS
IN THE 100 YEAR FLOODPLAIN
rt+
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conducted by the Jacksonville Planning Department indicate that one hundred
' thirty five of these lots are used for residential purposes and thirty are
' zoned for commercial purposes while only twelve of these lots remain vacant.
1 C. Types of Risks
'
While areas throughout Jacksonville would
be subject
to both wind and
'
water damage resulting from tropical storms and hurricanes,
those developed
lots within the 100 year floodplain would
suffer substantial
flooding
damages estimated between $16,000,000 and $20,000,000.
These figures do
not include public facilities (roads, water,
sewer, etc.)
which have been
designed to withstand inundation. It is
impossible
to estimate the
' replacement cost for these public facilities in that they may only be
damaged, if at all, certainly not totally destroyed.
D. Flooding and High Wind Policies
To mitigate the hazards of flooding, the City Council adopted a flood
damage prevention ordinance in 1984. This ordinance recognized that areas
within the Jacksonville Planning jurisdiction are subject to periodic
inundation which "can result in loss of life and property, health and safety
' hazards, disruption of commerce and governmental services, extraordinary
public expenditures, and impairment of the tax base. Major provisions of
this ordinance include the following:
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1. restricting or prohibiting uses which are deemed dangerous to
health, safety, and/or property;
2. requiring that those uses vulnerable to flooding be protected
against flood damage at the time of initial construction;
3. controlling all types of alternatives to natural flood plains, stream
channels, and other natural protective barriers;
4. controlling those types of development which might increase erosion;
and
5. regulating the construction of flood barriers which will unnaturally
divert flood waters or which may increase flood hazards to other lands.
The City Engineer is designated to administer this ordinance through a
permit process which allows for special construction modes for those
structures to be erected within a flood plain and encompass the following
standards:
1. residential construction - new construction or substantial improvement
of any residential structure shall have the lowest floor, including
basement, elevated no lower than one foot above base flood elevation.
2. non-residential construction - new construction or substantial
improvement of any commercial, industrial, or other non-residential
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structure shall either have the lowest floor, including basement,
elevated no lower than one foot above the level of the base flood
elevation or, together with attendant utility and sanitary facilities,
be flood -proofed and certified as such by a registered engineer or
architect.
3. mobile home - no mobile home shall be placed in a designated flood way
or coastal high hazard area, except in an existing mobile home park or
mobile home subdivision ( with the latter requiring over -the -top ties
and frame ties capable of carrying a force of 49800 pounds).
Nonconforming structures in existence prior to the adoption of this
ordinance are not forced to comply, however, should these structures be
moved or destroyed, any subsequent building shall fall subject to the
ordinance.
As request for rezonings and subdivision submittals are made to the
City of Jacksonville Planning Department, it shall be the responsibility of
that department to discourage both commercial and residential development
within flood plain areas. Developers will be made aware of potential
hazards and will be subjected to the full scope of the flood damage
protection ordinance. For those potentially developable lands outside
floodplains but subject to excess flood and/or wind damage, the Department
shall inform both Planning Hoard and City Council of such concerns as
development plans are submitted. It shall be the responsibility of the City
Council to make final decisions, base upon information presented, as to how
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the health, safety, and well being of the community might be affected by
such development.
E. Hurricane Preparedness Plan
A Hurricane Response Plan was adopted by Onslow County (see page 129)
in January, 1984. The stated purpose of this Plan is to provide for an
orderly and coordinated evacuation of endangered areas to minimize the
effects of hurricanes on residents and visitors in Onslow County. The Plan
provides for the alerting of selected officials, the evacuation of the
public from danger areas, and the designation of shelters for those
evacuated. It also provides for reentry into evacuated areas when the
threat to health and safety has ended.
A major provision of this Plan includes the establishment of two
evacuation action groups: A. a control group (comprised of elected officials
from each municipality within Onslow County as well as the Onslow County
Commissioners' Chairman) vested with the responsibility of overseeing the
evacuation operations. B. a support group (comprised of appointed County
and municipal professionals employees) vested with the responsibility of
providing personnel and material resources for t-he implementation of
preplanned actions and actions directed by the control group.
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h

POST DISASTER RECOMTRUCTION PLAN
The City of Jacksonville recognizes that the reconstruction process
occurs in four periods which overlap yet follow each other in sequence after
a disaster strikes. These periods are as follows:
1. emergency period - the initial days or weeks after the disaster when
social and economic activities are most seriously disrupted and
attention focuses on the dead, injured, missing, and homeless;
2. restoration period - the first weeks or months after the disaster when
attention focuses on debris removal and the rapid repair of damaged
utilities, housing, and commercial structures; this period marks the
transition from the response phase to the recovery phase;
3. replacement reconstruction period - several weeks after the disaster
and possibly continuing for several years with concentration placed on
reconstruction of those buildings and utilities which were damaged
beyond repair; and
4. commemorative, betterment, and developmental -reconstruction period -
usually several years after the disaster when attention is directed
toward the memorialization of the disaster and to mark the community's
post disaster improvement and/or to enhance future growth. The actual
amount of time it takes to recover from a natural disaster depends
primarily upon the extent of damages incurred. During the restoration
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period, the City shall evaluate the condition of
damaged or destroyed
ipublic
to the City
Council. At that
facilities and submit
a report
1
time, consideration will be
given to relocating
destroyed facilities
out of high risk damage areas. Such relocation
shall occur only when
more satisfactory/lower risk
locations are both
feasible and readily
available.
'
A. Emergency Management Response
To Immediate Cleanup
Public safety is the primary concern during the emergency period.
Debris removal, securing power lines, assessing water quality and opening
lines of transportation and communication are actions to be taken by the
i EMC, FEMA, the NCDOT, Division of Health Services, NC National Guard, and
Civil Air Patrol. These agencies will be responsible for organizing
volunteers and utilizing available resources in cleanup activities.
IB. Local Long Term Reconstruction Policies
' Immediately following a natural disaster, during which substantial
physical damage was incurred, the Jacksonville City Council should enact a
post disaster reconstruction moratorium. This moratorium should remain in
1 place until heavily damaged areas can be cleared and mapped for Council
review. At that time Council should address each of the following questions
and consider creating new policy:
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1. should there be changes in land use?
2. should there be changes in the building codes?
3. should there be a concerted effort to make the community more
effective and more attractive?
4. should there be compensation or special financial assistance for
private property losses?
5. how should increased local public expenditures be financed?
6. should normal or extraordinary decision making mechanisms be uses to
guide post -disaster recovery?
The Council should also establish a Recovery Task Force to assist in
overseeing the reconstruction process and to recommend policy changes. This
task force should be comprised of citizens, of varied backgrounds, that are
familiar with Jacksonville and the City's policy making process. Individual
members of the task force should be appointed by Council in a like manner as
other advisory board members with special emphasis placed upon attaining a
group with numerous related expertise. The Task Force should consist of no
less than eight and no more than fifteen members.
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C. Guidelines for Post Disaster Repairs and Reconstruction
1. Timing and Completion of Damage Estimates - The preliminary damage
assessment will be completed by the City Engineer within the first
five days after the disaster. This assessment will be submitted
to City Council via the City Manager. Damage survey reports will
be completed by the City Engineer within three months of the
disaster.
' 2. Timing and Completion of Temporary Development Moratoria - The
City Council, upon receipt of the City Engineer's damage
assessment report, should decide if damage was substantial enough
to warrant a temporary development moratorium. If so, development
' will be suspended in affected areas until redevelopment policy is
1 set (within 6 months).
i3. Development Standards - Post Disaster - Development standards for
post disaster reconstruction shall follow set State Building Codes
and/or any other policies enacted by City Council during the
' moratorium. Where nonconforming structures have suffered more
than 60% damage, they may be rebuilt only in conformance with
current standards.
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D. Establishment of Schedule for Staging and Permitting Repairs and
Reconstruction
All such scheduling depends upon the enactment of a moratorium. Should
such a moratorium not be set, project applications and approvals shall take
place from the day following the initial disaster to three months afterward.
Project completion and final inspections will take place from fifteen days
after the disaster through two years after.
E. Policy Implementation
The City Council shall make all policy decisions concerning the City of
Jacksonville and its extraterritorial jurisdiction and City Staff will be
responsible for actual implementation and compliance checks.
F. Policies for Repair and Replacement
During the restoration period (3-10 weeks) the utility system shall be
patched to be made operable. During the reconstruction period (10-200
weeks) reconstruction and possible relocation, if feasible, of the capital
stock shall be made.
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POPULATION PROJECTIOAFS
The North Carolina Office of Budget and Management has projected that
Onslow County population will increase fourteen percent over the next ten
' years. Citing the unpredictability of population shifts in communities
heavily influenced by the military, however, OBM has not attempted to
' formulate a 1995 population projection for the City. Recent growth
indicators - including actual population growth, new housing starts,
' annexations, et cetera - depict a far higher City-wide population increase.
In an attempt to provide a more accurate projection, the following two
Imethodologies
were utilized to project population from- the 1985 base
population of 25,136: a) combining current birthrates (3.6 persons per
1000), net migration rates (.74%), and death rates (.63 persons per 1000)--
yielding a 1995 population projection of 34,586 and, b) multiplying the
average number of residential building permits issued from 1979 to 1984
(455) by the current average number of persons per household as provided by
the North Carolina Office of Budget and Management (2.658) - yielding a 1995
'
population projection of 35,907. Averaging the totals derived from these
two methodologies yields a total population projection for 1995 of 35,246.
This figure represents an approximate thirty-seven percent total population
increase anticipated by 1995.
' The implications of an overall thirty-seven percent population growth
rate are pervasive. The following sections reflect the potential
requirements such growth might demand.
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Streets and Highway Network
Thoroughfares and major arterials throughout Jacksonville are presently
functioning at near capacity load levels. Table 14 depicts 1984 average
daily trips along selected streets and highways through Jacksonville.
TABLE 14
1984 ADT COUNTS ALONG SELECTED ROUTES
Route/Street Name
Gum Branch Road
U.S. Highway 17 (within City)
N.C. Highway 24 (within City)
Western Boulevard
Henderson Drive
Piney Green Road
Country Club/Hargett
Source: NCDOT 1984 ADT Map
89
1984 Average Daily Trips
17,333
24,362
30,840
21,600
13,550
8,157
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The Planning and Research Branch of the North Carolina Department of
Transportation has provided the 1990-95 estimates reflected in Table 15.
These estimates are based upon a system -wide analysis and, further, upon the
assumption that the 19B5 Jacksonville Urban Area Thoroughfare Plan (included
as Map G earlier in this Plan) will be fully implemented by 1990-95.
TABLE 15
1990-95 ADT COUNTS ALONG SELECTED ROUTES
Route/Street Name
Gum Branch Road
U.S. Highway 17 (within City)
N.C. Highway 24 (within City)
Western Boulevard
Henderson Drive
Piney Green Road
Country Club/Hargett
U.S. 17/N.C. 24 Freeway Facility
Projected ADT Counts
30,000
43,000
52,500
39,000
22,000
13,000
20,000
50,000
Source: Jacksonville Thoroughfare Plan Report (Draft Copy)
It is anticipated that demands on the streets and highways network will
continue to mount. A public transit service began trial operations during
mid-1985, but this service has not received the amount of participation
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which would be necessary to warrant consideration of reduced future loads as
' a result of the service's existence.
Housing
Windshield surveys conducted
as a primary
project element in the City's
1984 C.A.M.A. Housing Action Plan
indicated
that there were a total of
'
11,112 dwelling units within Jacksonville
and
its one mile extraterritorial
planning jurisdiction. Among
these dwelling
units, it was further
referenced that the City maintains
a constant
ten percent vacancy rate.
IWhile attempting to accurately estimate the total number of dwelling
' units anticipated in 1995, the following two methodologies were utilized: a)
the estimated 1995 population figure of 35,246 was subtracted from the
' City's 1985 population of 25,136 - yielding a difference of 10,111. This
difference was then divided by the current average Jacksonville household
tsize of 2.658 - yielding quotient of 3804 additional dwelling units required
by 1995, b) the total number
of dwelling
unit building permits issued for
the 53 month period between July
1980 to
December 1984 was 2010. The
'
following ratio was formed:
2010 building permits issued
X
building permits issued
53 total months
X 120
total months (1995)
' 53X = 241.200
X = 4551 projected building permits to be issued by 1995
1 91

An average of the final sum reached by utilizing the aforementioned
methodologies indicates that approximately 4178 additional dwelling units
will be constructed by 1995. The continued growth rate may necessitate the
residential development of as much as six hundred and fifty acres at an
average density of 7 units per acre, by 1995.
While discussing the necessity of new housing as population increases,
it is equally important to recognize the potential affects of housing
condition deterioration. This issue was discussed in the 1983 Jacksonville
Housing Action Plan Section X entitled "Causes of Blight and Strategies" and
appears as Appendix 4 of this Plan Update.
Open Space
' The National League of Cities has suggested a nationwide open space
requirement of one acre for every one hundred residents. The City currently
' falls well below this suggestion. Applying this suggestion only to the
projected population increase of 10,111 persons, an additional one hundred
' one acres would be required.
The City of Jacksonville incorporated requirements in February, 1983
for recreational/open space dedication into the City's subdivision
ordinance. It is anticipated that future development will provide adequate
open space for the City's increasing population.
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Undeveloped Land
There are currently several large tracts of undeveloped land within the
city limits and extraterritorial jurisdiction. The majority of these tracts
fall within the northern and eastern sections of the City. They remain
undeveloped primarily because they lack good access to the existing streets
network. Given that proper access be attained, most of the City's
undeveloped land areas would be suitable for commercial and/or residential
development.
Services
The addition of over 10,000 people dictates the addition of commercial
and office space for the provision of services to the newly developed
residential areas. Acreage figures will vary depending upon the amount of
office and commercial space built.
Water and Sewer
The ability to provide sewer and water service in certain areas will
help determine, to a degree, where growth can occur-. Expansion of water
lines, well fields, sewer lines, and sewer plan capabilities will be
necessary to accommodate growth.
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Schools
Several city schools are operating above capacity. Temporary
classrooms have helped ameliorate the situation in the short run. The
Onslow County School District will need to utilize their ability to float
bonds to construct and further maintain the schools in the City of
Jacksonville. At least one new elementary school and middle school may need
to be built to accommodate this growth.
Extraterritorial Jurisdiction (ETJ)/Annexations
The current one mile extraterritorial jurisdiction encompasses a large
area of undeveloped land and some residential subdivision uses. There is
much room to expand. Annexations of these areas is a possibility, the ETJ
allows consistency in developed areas in zoning and building codes. An
additional 37% in land area would bring in 4.4 square miles, bringing the
City area to 16.3 square miles.
Community Facilities
The Jacksonville Community Facilities Plan was- completed in 1982 and
was financed in part through a grant provided by the North Carolina Coastal
Management Program. That Plan identified future needed facilities for a
twenty-year period within Jacksonville and immediately adjacent areas.
The Community Facilities Plan was divided into the following sections:
a) Public Safety, b) Public Works, c) Parks and Recreation, d) Public
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Utilities, e) Administration and Support Facilities, f) Education
Facilities, g) Other Public Facilities, and h) Capital Improvements Program.
Each subsection offered a description of an individual element of the
section itself, (reference table of contents found in Appendix 5 of this
plan.) while further evaluating the subsection and making recommendations.
The City believes the Community Facilities Plan remains a timely and
useful document. Rather than restating that Plan, it is suggested that more
information regarding community facilities be obtained directly from the
1982 Plan.
Pro.iected Land Use Needs 1995
The following figures were attained by using: the 1980 ratios of land
use acreage per 1000 population, the percentage growth from 1980 to 1985,
and the projected growth from 1985 to 1995.
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TABLE 16
PROJECTED LAND USE
Ratio
1995 Projected
1985 Land
Net Acres
Land Use
AC/1000
Land In Acres
In Acres
Needed
Residential
110
5269
3846
1423
Commercial
32
1537
1122
415
Industrial
8
133
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36
Public/Institutional
30
1262
921
341
Trans/Comm/Util
50
2252
1644
608
Total 10,453 7630 2823
Square Miles 16.3 11.9 4.4
The extraterritorial jurisdiction, one -mile beyond the City limits,
contains approximately 3000 acres or roughly 4.6 square miles of land. This
amount of land will adequately provide room for projected development. The
1995 projections area based upon a 37% increase -in land as well as
population.
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Poam licies &
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A primary objective of the Coastal Area Management Act Land Use Plan
Update is a statement of policies which will direct the decision -making
process for the coming ten years within Jacksonville and its
extraterritorial jurisdiction. Policy statements have been tailored to suit
the anticipated needs of the City and extraneous subjects (such as
fisheries) mineral production areas, and phosphate mining) have been
intentionally excluded from the text in an effort to comply with .0201(d)
of Subchapter 7B (Land Use Planning Guidelines - DNRCD-DCM) which states
that "the land use plan itself should be simple, clear, and plain." With
this concept in mind, the following policy statements represent the official
policy of the City of Jacksonville.
A. RESIDENTIAL BLIGHT
1. Description
According to the City of Jacksonville Housing Action Plan, some
13.83% of the study area housing stock was in a substandard condition.
While only 9.94% (933 units) of the City's housing stock was classified as
substandard, some 34.42% (632 units) of the extraterritorial jurisdiction's
housing was classified as substandard.
2. Policy
It shall be the policy of the City of Jacksonville to redevelop
areas of the City which contain concentrations of substandard housing.
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3. Implementation Strategies
a. The City should continue efforts to expand its
extraterritorial planning jurisdiction.
b. The City should continue to rehabilitate existing housing
structures through the use of Community Development Block
Grant funds.
C. The City should continue to improve existing infrastructure.
d. The City should continue enforcement of its -adopted minimum
housing code.
e. The City should implement recommendations as contained in the
Chapter entitled "Causes of Blight and Strategies" as
contained in the "Housing Action Plan." (Appendix 4 of this
Plan)
B. DOWNTOWN REDEVELOPMENT
1. Description
The downtown area of Jacksonville was at one time the hub of
economic activity in Onslow County. However, because of its inability to
expand and the locating of several adult businesses within the area, it
99

began to decline as a retail center. The Jacksonville downtown area is
currently predominated by governmental structures and offices, attorney
offices, bars, pawn shops, and tattoo parlors.
2. Policy
It shall be the policy of the City of Jacksonville to participate
in redeveloping the original downtown area in cooperation with merchants,
and property owners of that area, as well as with other interested groups.
3. Implementation Strategies
a. The City should work closely with the downtown consultant
(contracted on June 28, 1985) to formulate a preliminary
downtown redevelopment plan. Furthermore, the City should
actively seek to implement any recommendations made in the
new downtown redevelopment strategy.
b. The City should help establish a permanent downtown
organization to oversee the redevelopment process and on-
going growth.
C. The City, perhaps in cooperation with the County, should hire
a full-time Downtown Manager to promote, organize, and manage
the redevelopment plan and work with the downtown
organization.
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C. RECREATIONAL LAND
1. Description
In 1980, the City of Jacksonville had only 25 acres of
recreational land to service the needs of approximately 22,000 people.
Although the City now has over 150 acres of recreational land, the City
falls below recommended national standards for recreational areas.
2. Policy
It shall be the policy of the City of Jacksonville•to locate and
acquire recreational lands and facilities so as to meet the recreation needs
of the citizenry.
3. Implementation Strategies
a. The City should continue enforcement of the subdivision
regulations requiring recreation land dedication.
b. The City should seek low cost land near- the City for
development as citywide parks.
c. The City should continue to attempt to acquire land and
facilities within developed areas.
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D. TRANSPORTATION
1. Description
b
The primary mode of transportation within the Jacksonville area is
individual motor vehicles. The City is primarily served by U.S. Highway 17,
U.S. Highway 258, and N.C. Highway 24. Current average daily traffic counts
along U.S. Highway 17 are in excess of 43,000 making it one of the busiest
roads in North Carolina. None of the aforementioned roads provide four lane
access to Onslow County. Many other roads within the Jacksonville area are
congested.
2. Policy
It shall be the policy of the City of Jacksonville to seek tp
improve the highway system within the Jacksonville Urban Area.
3. Implementation Strategies
a. The City should continue participation in the Continuing,
Cooperative, and Comprehensive Transportation Planning
program.
b. -The City should seek to implement the adopted Thoroughfare
Plan of April 17, 1985.
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C. The City should cooperate with Onslow County and surrounding
counties in improving inter -county transportation arteries.
E. INDUSTRIAL/ECONOMIC DEVELOPMENT
1. Description
The major employer within the Jacksonville area is Camp Lejeune
with nearly 509000 employees. Other small industries exist, but their
combined employment would be much less than a tenth of the military's. In
order to expand the City's economic base and to establish some economic
stability, additional industries must be attracted to Onslow County.
2. Policy
It shall be the policy of the City of Jacksonville to cooperate
and participate with the Onslow County Economic Development Commission and
Greater Jacksonville Chamber of Commerce to attract new industries and
identify potential industrial sites.
3. Implementation Strategies
a. The City should complete the economic base study scheduled
for fiscal year 1987-1988.
b. The City should consider, where feasible, extending water and
103

sewer facilities to potential industrial sites.
C. The City should seek to have a permanent appointment to the
Economic Development Commission's Board of Directors.
F. LAND USE PATTERNS
1. Description
The City of Jacksonville is characterized by mixed land uses and
strip commercial development along many major thoroughfares. This strip
development inhibits traffic flow and often creates land use conflicts with
adjacent residential areas.
2. Policy
It shall be the policy of the City of Jacksonville to discourage
conflicting land use patterns and strip -commercial development along any
future or existing arterial, collector, or minor street within the planning
jurisdiction of the City.
3. Implementation Strategies
a. The City should comprehensively review zoning within the area
of any proposed street extensions.
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b. The City should conduct detailed corridor studies along all
major thoroughfares in an effort to determine ways to
eliminate or improve existing problem areas.
C. The City should direct commercial development into
concentrated nodes rather than into linear extensions.
d. The City should require that new residential subdivisions
back onto major roads and thus be prevented from having
direct driveway access.
G. PUBLIC PARTICIPATION
1. Description
The fundamental tool in any planning effort is public
participation. Unless a plan or program reflects the expressions and
desires of the citizenry, it is certainly doomed to non -implementation.
2. Pol icy
It shall be the policy of the City of Jacksonville to encourage
citizen participation in all planning activities.
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3. Implementation Strategies
a. The City should continue its practice of administrative
public information meetings in regard to specific projects.
b. The City should continue its practice of providing speakers
to local civic clubs and schools.
H. RESOURCE PROTECTION
1. Description
The New River and its associated fragile areas provide aesthetic,
recreational, and economic benefit to the citizens of Onslow County. The
New River is a focal point of the Jacksonville area; developable land along
its periphery is scarce.
2. Policy
It shall be the policy of the City of Jacksonville to seek
protection of the New River and its associated fragile areas from pollution
and development encroachment.
3. Implementation Strategies
a. The City should enforce the "Flood Damage Prevention
106

Ordinance" which limits development within flood hazard
areas.
b. The City should, where feasible, provide public sewerage
facilities to areas located adjacent to fragile areas.
C. The City should discourage development which would result in
direct urban runoff.
d. The City should encourage drainage designs which would take
advantage of holding ponds or some other means of pollutant
control.
I. WATER AND SEWER EXTENSIONS
1. Description
The availability of water and sewer services dictates the
direction and density of urban growth. The availability of these water
supply and waste disposal systems allows urban areas the luxury of
concentrated commercial development and high . density residential
development.
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2. Policy
It shall be the policy of the City of Jacksonville to extend water
and sewer facilities to areas complying with City specifications and
requirements.
3. Implementation Strategies
The City should allow extension of water and sewer facilities
in conformance with adopted City policy (see Appendix b).
108

L,
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I
LAND CLASSIFICATION
The land classification system contained within this report has been
developed as an aid to guiding the growth and development of the City of
Jacksonville. The land classification system and map is an expression of
the City of Jacksonville's desired future growth patterns. Land
'
classifications on the map are general in nature and should be viewed as
showing the general character of an area rather than the specific use of
individual lots. Local, state, and federal regulatory agencies will find
'
the adopted land classification map useful in that it encourages consistency
and coordination between local land use policies and those of the State of
'
North Carolina; provides a guide for public investment in land, by assisting
local and State government to know in advance the need for parks, schools,
highways, etc; serves as a framework for budgeting and planning for the
construction of community facilities; aids in better coordination of
regulatory policies and decisions; and enables the City to "guide" growth
to
and development to areas best suited service their needs. The land
classification system further serves as a vital implementation tool for the
community issues and policies found in Chapter XI of this Plan.
DEVELOPED AREAS
' Within the urban boundary of the City of Jacksonville, the predominate
land classification is "developed". Areas classified as developed have
' either an estimated density of 500 dwelling units per square mile and are
developed for office/commercial/industrial purposes, or have a mixture of
110

residential and other
uses. Areas classified
in a developed category
typically have both
a public water and sewer
system although some developed
areas are only served
by public water. There
are many vacant areas within
the City's planning
jurisdiction classified
as developed because they are
relatively small in size
and already served by
public facilities.
' In order to distinguish between types of development most appropriate
' for different areas of the City's planning jurisdiction, the developed
category has been subdivided into the following classifications:
Low Density Residential Developed
' Low Density Residential Developed (LR) consists almost entirely of
those residential areas within the City's planning jurisdiction predominated
by single family detached dwelling units. Typical lot sizes in the LR
classification are approximately 10,000 square feet. The LR classification
' may also include recreational areas and schools if they are situated in such
a manner as to be an asset to the surrounding residential area.
I
High Density Residential Developed
High Density Residential Developed (HR) areas are predominated by
multi -family structures ranging from duplex/townhouses to condominiums.
' These HR areas typically have an average of 10 units per acre and are
' scattered throughout different areas of the City. The HR areas are usually
found adjacent to good thoroughfare access or between low density
' 111
F

residential areas and commercial areas.
Mixed Density Residential Developed
Mixed Density Residential Developed (MD) areas are, for the most part,
older residential areas which usually contain a variety of housing types and
possibly some scattered commercial uses. A typical MD might contain single
family detached residential dwelling units on both small lots and large
lots, mobile homes, duplexes, triplexes, and other small multi -family rental
complexes, along with scattered commercial uses within the residential area
such as convenient stores, barber shops, garages, etc.
Business/Industrial Developed
Business/Industrial Developed (BD) areas are normally found along major
highways, in concentrated shopping areas (downtown area, shopping centers)
or zoned industrial areas. BD's contain office and institutional uses which
tend to buffer residential areas from more concentrated business
development, as well as intensely developed commercial and industrial areas.
Due to the lack of a strong and viable downtown area, many of the commercial
uses are in strip commercial developments rather than in commercial core
areas.
TRANSITION AREAS
As the developed classification illustrates what has already happened
112

I
regarding land use within the City's urban area, the transition areas
attempt to depict what will happen in the future. Transition land
classification areas are important in that they serve as the guide and
controlling force of future development. Through proper planning and
utilization of the land classification map, growth can be controlled so as
to be most advantageous to the citizenry and their tax dollars.
Much of Jacksonville's undeveloped area is in close proximity to the
Urban Core. The City of Jacksonville exercises land use control over a one
mile extraterritorial planning jurisdiction which is prone to fairly
immediate development. The City has tried in the past to expand the
extraterritorial planning jurisdiction to 2-3 miles which would bring more
rural areas under the City's control, however, these efforts have been
unsuccessful and the extraterritorial planning jurisdiction remains small
and development of it remains imminent due to its close proximity to the
Urban Core.
There is great difficulty in projecting Jacksonville's future land use
needs. Since the establishment of Camp Lejeune in the early 19401s,
Jacksonville has depended upon the Base for its growth. Each time
additional military personnel (currently there are 41,016 active duty
present) are assigned to Camp Lejeune, approximately 30% of this number will
have families who move to Jacksonville and there is a spinoff for service
industry expansion in the local economy to serve their needs. Planned
military personnel expansions are not made known to local officials until
circa the time the relocation actually occurs.
113
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d
P
Another unpredictable trend in the Jacksonville Area which makes
detailed projections difficult is military retirees. Camp Lejeune has now
become the Marine Corps second largest base and many career marines are
experiencing multiple tours of duty at Camp Lejeune. The proximity of Camp
Lejeune and its support facilities (medical and retail), the areas
relatively low cost of living, and the temperate climate is making the
Jacksonville area an attractive retirement area for military personnel.
The relatively small extraterritorial planning area, the
unpredictability of the military, and the absence of any prime irreplaceable
agricultural lands within the planning area have resulted in all of
Jacksonville's undeveloped area being classified into - one of three
transition classifications.
In an effort to differentiate between areas within the City's planning
jurisdiction best suited for specific future uses, the Transition category
has been subdivided into the following classifications:
Residential Transition Areas
Residential Transition Areas (RT), as foreseen- in this land use plan
update, may contain either low or high density residential developments.
Although it would be desirable to separately distinguish between low and
high density, residential uses, it is not practical to project specific
locations where these types of development might occur. The City will,
however, through the Zoning Ordinance, utilities provisions, and site plan
114

11
review ensure that different residential densities do not develop in a
Iconflicting manner.
Mixed Transition
Areas
Mixed Transition
Areas (MT) are found both on the perimeter and within
the center of the
urban core. MT's are
areas that are in a state of
transition which
makes it impossible to
identify whether they will develop
'
for residential,
commercial, or industrial
purposes. Some of the MT's may
in fact develop
so that a portion might be
commercial and the rest a mixture
of low and high
density residential. The
majority of the MT's within the
Bell Fork Road/Country Club Road corridors are large lot developments which
are currently (although sparsely) developed for a mixture of residential and
commercial uses. Within the next 10 years, local land economics will
dictate the future of these and other transition areas, but it is currently
impossible to determine the intensity of projected development which may
occur.
Business/Industrial Transition Areas
Business/Industrial Transition Areas (BT) are found in the Jacksonville
city limits. BT's are projected to be the commercial center for surrounding
residential development. These business areas are projected to develop as
do commercial roads in keeping with the policy to discourage strip -
commercial development.
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1
1
1
1
1
1
1
1
1
CONSERVATION AREAS
Conservation Areas (C) denotes those areas within the City's planning
jurisdiction that need effective long-term management and protection because
of their scenic and/or natural productive values. The conservation class as
depicted on the Land Classification Map includes all Public Trust Waters,
Estuarine Waters, Estuarine Shorelines, (as discussed in detail in Chapter
VII) and all that area falling within the 100 year floodplain. These areas
should be protected from urban runoff and construction activities that might
increase the City's flood liability, or introduce pollution into the
sensitive environment.
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1 LOW DENSITY RESIDENTIAL DEVEL-4 El
HIGH DENSITY RESIDENTIAL, DEVELOPED
MIXED DENSITY RESIDENTIAL DEVELOPED
' 0 BUSINESS /INDUSTRY DEVELOPED
I
I
I
I
I
I
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17
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F
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U S. 258 - N.C. 24
is
X
o...............
LAND CLASSIFICATION
THE CITY OF
JACKSONVILLE. NORTH CAROLINA
PLANNING DEPT.
-0—
V�7
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM•
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.

118

Appendix 1
Public Participation
Public participation in the Land Use Plan Update was extremely
beneficial to the development of land use issues, policies, and
implementation. It should be noted that such participation was gained not
only from those attending scheduled C.A.M.A. Land Use Plan Update meetings,
but also from the input received from the public at regularly scheduled
planning board and city council meetings. The City Planning Staff has made
a sincere effort to produce a concise and effective Update based upon
general public opinions as expressed at such meetings and in one-on-one
contacts.
An initial meeting was held with the Jacksonville Planning Board to
inform them of the goals and objectives of the Update. At that time, the
importance of public participation was stressed as was the desire to develop
a good, workable plan.
Many different techniques were used to involve the public: These
techniques included television and radio spots, newspaper articles, and
public meetings. The first public information meeting was conducted on
January 91 1985. At that meeting, citizens expressed that the following
interests/concerns be addressed in the Update: 1) land classification, 2)
the New River, 3) environmental concerns, and 4) future development
backlashes.
119

A second public meeting was held on May 29, 1985. During this meeting,
citizens expressed concern about constraints on water and sewer systems,
transportation deficiencies, and the City's willingness to approve large
capital expenditures for facility improvements. The Update has dealt with
each of the aforementioned concerns and has attempted to offer solutions as
well as practical data which might be useful in anticipating future
problems.
The attached pages reflect newspaper articles and notifications of
public information meetings as they appeared in the "Jacksonville Daily
News" during the planning and writing stages of the 1985 C.A.M.A. Land Use
Plan Update.
120

� Public hearing schedule3d'."'
ByM.L. CHRLMNBURY
Daily News Staff
Jacksonville residents will get a
chance Wednesday to tell city
officials how they would like their
city to develop.
A public meeting is scheduled for
7 p.m. at City Hall to seek
suggestions on what to include in the
1985 Coastal Area Management Act
land -use plan, said City Planner
Horace Mann.
All coastal communities are re-
quired by law to revise a land -use
plan every five years, he said.
The state considers changing
coastal conditions and high growth
near the seashore as factors
necessitating land -use planning,
Mann said.
The city's 1980 plan addressed
such issues as economic develop-
ment, recreation land development,
redevelopment of downtown, and
resource protection and manage-
ment of the New River and
flood -hazard areas.
The plan also discouraged strip
commercial development, Mann
said. "We prefer shopping centers
with limited access to highways
rather than driveway after drive-
way emptying onto a road," be said.
The plan also should identify
constraints to development such as
limited access to water and sewer
facilities, Mann said.
"We want to coordinate the
growth of Jacksonville within the
scope of our resources," he said.
"We wouldn't want to put an
industrial user at the end of a
four -inch water tine."
Laurie Suess, Jacksonville's urban
planner, is responsible for drafting
the revised land -use plan. The
expanded Planning Department
staff has given the city the opportu-
nity to develop the plan in-house,
Mann said. Before, consultants were
hired to fulfill the CAMA require-
ment.
Ms. Suess urges. Jacksonville
residents to attend the meeting to
let the Planning Department know
now they would like to see the city
grow.
"Do people want sprawling
growth or do they want to control
it?" Ms. Suess said. "We want to
know what the people want the city
to look like in 10 years."
TWO CI'It1C1Z@ city's planning
By MDailyNeIws StaaBURY
Jacksonville resident Alberto Quayat and developer
Gary Mercer criticized the City Council Wednesday
night at a public meeting for not practicing long-term
planning for Jacksonville.
The two Jacksonville residents were the only ones
who attended the meeting held by city officials to seek
Ideas on what to include in a revised Coastal Area
Management Act land -use plan.
The document will guide the growth of Jacksonville
for the next five years, said Laurie Suess, the city's
urban planner. "It Is what they (the City Council)
should base their development decisions on," she said.
But Mercer said that the city's sincerity in using
citizen comment Is debatable.
He said that city officials have told him that they
knew about sewer overflow problems in the Mill Creek
watershed five years ago and still have not solved the
problem.
"If we're going to offer input now and they're not
going to pay attention to it, then we might as well go
home now," Mercer said.
Quayat agreed. `By sweeping the problems under the
rug, we don't gain anything," he said.
Mercer chastised the council for not allowing building
permits to be issued In the Mill Creek basin.
The council enacted the restriction until it determines
the legality of a proposal to not allow multi -family
developments to hook on to the city's overburdened
water and sewer system until a larger sewer line is
installed two years from now.
Because.of the ban on building permits, Mercer said
he has 28 lots within the area that he cannot develop
even though he has paid the city utility access fees for
some of the lots.
121
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1
� City wants
planning
� suggestions
By M.L. CHRISTENBURY
Daily News Staff
Jacksonville residents will get a
chance Wednesday to tell city
officials how they would like their
'
city to develop.
"We can address any issue that
the people want," said City Planner
'
Horace Mann.
A public meeting is scheduled for
7 p.m. at City Hall to seek
suggestions on what to include in the
'
1985 Coastal Area Management Act
land -use plan, Mann said.
"All coastal communities are
required by law to update a land -use
plan every five years," he said.
"Changing coastal conditions and
' high growth because of the seashore
are factors necessitating land -use
planning."
' The city's 1980 land -use plan
addressed such Issues as economic
development, recreation land devel-
opment, redevelopment of
downtown, and resource protection
and management of the New River
and flood -hazard areas.
The plan also discouraged strip
commercial development, Mann
said. "We prefer shopping centers
' with limited access to highways
rather than driveway after drive-
way emptying onto a road," he said.
The plan includes projections for
the future and identifies constraints
to development such as limited
access to water and sewer facilities,
' Mann said.
1
122
"We don't want to sit in an Ivory
tower and say Utopia should be a
certain way," he said. "If a person
is concerned about adult businesses
or the need for better roads, here Is
their chance to bring that issue to
the forefront."
An expanded Planning Depart-
ment staff afforded city planners
the time to develop the revised
land -use plan themselves, Mann
said. Before, consultants were hired
to fulfill the CAMA requirement.
"We feel like we have a much
better product," 'he said. "It's more
responsive to the concerns of the
citizens of Jacksonville."
Haskell Rhett of the state De-
partment of Natural Resources and
Community Development will attend
the meeting to answer questions
about the CAMA plan, Mann said.
1

OWSMY.IA ANY 9,1985 T;00 SPX
CITY- HALL. CIPICIL MMS
The, City ;LJocks"Wv will conduct . on ad-
ministrotive k • 16formation meeting for,** pur-
pose of soliciting citizens concerns which'should be
addressed in the Land Use Plan Update.'This LAMA
Plan is a fundamental planning tool which will be used
to.gul4o the growth and development of the City for
the next 10 years. All interested citizens should attend
or contact the City Planning Department at 455.2600,
ext. 236 for more information.
Jan. 8, 1985
PUBLIC INFORMATION MEETING
CITY OF JACKSONVILLE CAMA LAND USE PLAN UPDATE
WEDNESDAY MAY 29,1985 7:00 P.M.
CITY HALL COUNCIL CHAMBERS
The City of Jacksonville will conduct an administrative public Informa•
tion muting for the purpose of soliciting citizens conceros which should
be addressed in the land Use Plan Update.
The 1985 CAMA land Use Plan Update will help determine the direc-
tion and nature of growth for the City of Jacksonville and its extrater-
ritorial (urisdiction for the next 10 years. The Plan will Include land use
and relevant policy issues that are important in deciding the future of
the City.
All interested citizens should attend or contact the City Planning
Department at 455.2600, extension 236 for more information.
May 25.E 38/1985
123

F,
CITY OF JACKSONVILLE
FLOOD DAMAGE PREVENTION ORDINANCE
ARTICLE 1. STATUTORY AUTHORIZATION, FINDINGS OF FACT, PURPOSE AND
OBJECTIVES
SECTION A. STATUTORY AUTHORIZATION
The Legislature of the State of North Carolina has in General Statutes 160A-
458.1 delegated the responsibility to local governmental units to adopt
regulations designed to promote the public health, safety, and general
welfare of its citizenry. Therefore, the City Council of Jacksonville,
North Carolina does ordain as.follows:
SECTION B. FINDINGS OF FACT
(1) The flood hazard areas of the Jacksonville Planning Area are
subject to periodic inundation which can result in loss of
life, property, health and safety hazards, disruption of
commerce and governmental services, extraordinary public
expenditures for flood protection and relief, and impairment
of the tax base, all of which adversely affect the public
health, safety and general welfare.
(2) These flood losses are caused by the cumulative effect of
obstructions in flood plains causing increases in flood
heights and velocities, and by the occupancy in flood hazard
areas by uses vulnerable to floods or hazardous to other
lands which are inadequately elevated, flood -proofed, or
otherwise unprotected from flood damage.
SECTION C. STATEMENT OF PURPOSE
It is the purpose of this ordinance to promote the public health, safety and
general welfare and to minimize public and private losses due to flood
conditions in specific areas by provisions designed to:
124

(1) restrict or prohibit uses which are dangerous to health,
safety and property due to water or erosion hazards., or which
result in damaging increases in erosion or in flood heights
or velocities;
(2) require that uses vulnerable to floods, including facilities
which serve such uses, be protected against flood damage at
the time of initial construction;
(3) control the alteration of natural flood plains, stream
channels, and natural protective barriers which are involved .
in the accommodation of flood waters;
(4) control filling, grading, dredging and other development
which may increase erosion or flood damage; and
(5) prevent or regulate the construction of flood barriers which
will unnaturally divert flood waters or which may increase
flood hazards to other lands.
SECTION D. OBJECTIVES
The objectives of this ordinance are:
(1) to protect human life and health;
(2) to minimize expenditure of public money for costly flood
control projects;
(3) to minimize the need for rescue and relief efforts associated
with flooding and generally undertaken at the expense of the
general public;
(4) to minimize prolonged business interruptions;
(5) to minimize damage to public facilities and utilities such as
water and gas mains, electric, telephone and sewer lines,
streets and bridges located in flood plains;
125

(b) to help maintain a stable tax base by providing for the sound
use and development of flood prone areas in such a manner as
to minimize future flood blight areas; and
(7) to insure that potential. home buyers are notified that
' property is in a flood area.
ARTICLE 2. DEFINITIONS
Unless specifically defined below, words or phrases used in this ordinance
' shall be interpreted so as to give them the meaning they have a common usage
and to give this ordinance its most reasonable application.
Appeal means a request for a review of the City Engineer's interpretation of
any provision of this ordinance or a request for a variance.
' Area of shallow flooding means a designated AO Zone on a community's flood
insurance rate map (FIRM) with base flood depths- from one to three feet
where a clearly defined channel does not exist, where the path of flooding
' is unpredictable and indeterminate, and where velocity flow may be evident.
' Area of special flood hazard is the land in the flood plain within a
community subject to a one percent or greater chance of flooding in any
' given year.
' Base flood means the flood having a one percent chance of being equaled or
exceeded in any given year (100-year flood).
' Basement means that portion of a building between floor and ceiling, which
may be partly below and partly above grade.
' Buildingmeans an structure y built for support, shelter, or enclosure for
any occupancy or storage.
Development means any man-made change to improved or unimproved real estate,
including, but not limited to, buildings or other structures, mining,
1
126

Idredging, filling, grading, paving, excavation or drilling operations.
1 Existing mobile home park or mobile home subdivision means a parcel (or
contiguous parcels) of land divided into. two or more mobile home lots for
rent or sale for which the construction of facilities for servicing the lot
on which the mobile home is to be affixed (including at a minimum, the
installation of utilities, either final site grading or the pouring of
concrete pads, and the construction of streets) is completed before the
effective date of this ordinance.
1
Expansion of an existing mobile home park or mobile home subdivision means
' the preparation of additional sites by the construction of facilities for
servicing the lots on which the mobile homes are to be affixed (including
' the installation of utilities, either final site grading or pouring of
concrete pads, or the construction of streets). Any expansion is considered
' "new construction."
' Flood or flooding means a general and temporary condition of partial or
complete inundation of normally dry land areas from:
(1) the overflow of inland or tidal waters;
(2) the unusual and rapid accumulation of runoff of surface
waters from any source.
' Flood Hazard Boundary Map (FHBM) means an official map of a community,
' issued by the Federal Emergency Management Agency, where the boundaries of
the areas of special flood hazard have been defined as Zone A
Flood Insurance Rate Map (FIRM) means an official map of a community, on
which the Federal Emergency Management Agency has delineated both areas of
' special flood hazard and the risk premium zones applicable to the community.
'
Flood Insurance
Study is
the official report provided by the Federal
Emergency Agency.
The report
contains flood profiles, as well as the Flood
'
Boundary-Floodway
Map and the
water surface elevation of the base flood.
1
127

7
Floodway means the channel of a river or other watercourse and the adjacent
land areas that must be reserved in order to discharge the base flood
without cumulatively increasing the water surface elevation more than one
foot.
Floor means the top surface of an enclosed area in a building (including
basement), i.e. - top of a slab in concrete slab construction or top of wood
flooring in wood frame construction. The term does not include the floor of
a garage used solely for parking vehicles.
Highest Adjacent Grade means the highest natural elevation of the ground
surface, prior to construction, next to the proposed walls of a structure.
Mean Sea Level means the average height of the sea for all stages of the
tide. It is used as a reference for establishing various elevations within
the flood plain. For purposes of this ordinance, the term is synonymous
with National Geodetic Vertical Datum (NGVD).
Mobile home means a structure, transportable in one or more sections, which
is built on a permanent chassis and designed to be used with or without a
permanent foundation when connected to the required utilities. It does not
include recreation vehicles or travel trailers.
National Geodetic Vertical Datum (NGVD) as corrected in 1929 is a vertical
control used as a reference for establishing varying elevations within the
flood plain.
New construction means structures for which the start of construction
commenced on or after the effective date of this ordinance.
New mobile home park or mobile home subdivision means a parcel or contiguous
parcels of land divided into two or more mobile home lots for rent or sale
for which the construction of facilities for servicing the lot on which the
mobile home is to be affixed (including, at a minimum, the installation of
utilities, either final site grading or the pouring of concrete pads, and
128

the construction of streets) is completed on or after the effective date of
this ordinance.
Start of construction means the first placement of permanent construction of
a structure (other than a mobile home) on a site, such as the pouring of
slabs or footings or any work beyond the stage of excavation, including the
relocation of a structure. Permanent construction does not include the
installation of streets and/or walkways; nor does it include excavation for
a basement, footings, piers or foundations or the erection of temporary
forms; nor does it include the installation on the property of accessory
buildings, such as garages or sheds not occupied as dwelling units or not a
' part of the main structure. For a structure (other than a mobile home)
without a basement or poured footings, the start of construction means the
affixing of the mobile home to its permanent site. For mobile homes within
mobile home parks or mobile home subdivisions, start of construction is the
' date on which the construction of facilities for servicing the site on which
the mobile home is to be affixed (including, at a minimum, the construction
of streets, either final site grading or the pouring of concrete pads and
' installation of utilities) is completed.
Structure means a walled and roofed building that is principally above
ground, a mobile home, a gas or liquid storage tank, or other man-made
' facilities or infrastructures.
Substantial improvement means, any repair, reconstruction, or improvement of
a structure, the cost of which equals or exceeds fifty percent of the market
value of the structure, either (1) before the improvement or repair is
' started, or (2) if the structure has been damaged and is being restored,
before the damage occurred. For the purpose of this definition substantial
' improvement is considered to occur when the first alteration of any wall,
ceiling, floor, or other structural part of the building commences, whether
1 or not that alteration affects the external dimensions of the structure.
The term does not, however, include either (1) any project for improvement
of a structure to comply with existing state and local health, sanitary, or
safety code specifications which are solely necessary to assure safe living
1 129

I
conditions, or (2) any alteration of a structure listed on the National
Register of Historic Places or a State Inventory of Historic Places.
Variance is a grant of relief to a person from the requirements of this
' ordinance which permits construction in a manner otherwise prohibited by
this ordinance where specific enforcement would result in unnecessary
Ihardship.
ARTICLE 3. GENERAL PROVISIONS
SECTION A. LANDS TO WHICH THIS ORDINANCE APPLIES
This ordinance shall apply to all areas of special flood hazard within the
jurisdiction of the City of Jacksonville, North Carolina.
'
SECTION B. BASIS FOR ESTABLISHING THE AREAS
OF SPECIAL
FLOOD HAZARD
The areas of special flood hazard identified
by the
Federal Emergency
'
Management Agency in its Flood Insurance Study
for the City
of Jacksonville,
North Carolina, dated May 18, 1983, with
accompanying
maps and other
supporting data, and any revision thereto
are adopted
by reference and
declared to be a part of this ordinance.
1 SECTION C. ESTABLISHMENT OF DEVELOPMENT PERMIT
A development permit shall be required in conformance with the provisions of
' this ordinance prior to the commencement of any development activities.
SECTION D. COMPLIANCE
No structure or land shall hereafter be located, extended, converted, or
1 structurally altered without full compliance with the terms of this
ordinance and other applicable regulations.
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SECTION E. ABROGATION AND GREATER RESTRICTIONS
This ordinance is not intended to repeal, abrogate, impair any existing
easements, covenants, or deed restrictions. However, where this ordinance
and another conflict or overlay, whichever imposes the more stringent
restrictions shall prevail.
SECTION F. INTERPRETATIONS
In the interpretation and application of this ordinance all provisions shall
be: (1) considered as minimum requirements; (2) liberally construed in
favor of the governing body; and (3) deemed neither to limit nor repeal any
other powers granted under state statutes.
SECTION G. WARNING AND DISCLAIMER OF LIABILITY
The degree of flood protection required by this ordinance is considered
reasonable for regulatory purposes and is based on scientific and
engineering considerations. Larger floods can and will occur on rare
occasions. Flood heights may be increased by man-made or natural causes.
This ordinance does not imply that land outside the areas of special flood
hazard or uses permitted within such areas will be free from flooding or
flood damages. This ordinance shall not create liability on the part of the
City of Jacksonville, North Carolina, or by any officer or employee thereof
for any flood damages that result from reliance on this ordinance or any
administrative decision lawfully made thereunder.
SECTION H. PENALTIES FOR VIOLATION
Violation of the provisions of this ordinance or failure to comply with any
of its requirements, including violation of conditions and safeguards
established in connection with grants of variance or special exceptions,
shall constitute a misdemeanor. Any person who violates this ordinance or
fails to comply with any of its requirements shall, upon conviction thereof,
be fined not more than $50 or imprisoned for not more than 30 days, or both,
131

1
I
I
d
and in addition shall pay all costs and expenses involved in the case. Each
day such violation continues shall be considered a separate offense.
Nothing herein contained shall prevent the City of Jacksonville, North
Carolina, from taking such other lawful action as is necessary to prevent or
remedy any violation.
ARTICLE 4. ADMINSTRATION
SECTION A. DESIGNATION OF CITY OF JACKSONVILLE ENGINEER.
The City Engineer is hereby appointed to administer and implement the
provisions of this ordinance.
SECTION B. PERMIT PROCEDURES
Application for a development permit shall be made to the City Engineer on
forms furnished by him, prior to any development or -building activities, and
may include, but not be limited to, the following plans in duplicate drawn
to scale showing the nature, location, dimensions, and elevations of the
area in question; existing or proposed structures, fill, storage of
materials; drainage facilities, and the location of the foregoing.
Specifically, the following information is required.
(1) Elevation in relation to mean sea level of the proposed
lowest floor (including basement) of all structures,
(2) Elevation in relation to mean sea level to which any
nonresidential structure will be flood -proofed,
(3) Provide a certificate from a registered professional engineer
or architect that the nonresidential flood -proofed structure
meets the flood -proofing criteria in Article 5, Section B
(2),
(4) Description of the extent to which any watercourse will be
altered or relocated as a result of proposed development,
(5) Provide a floor elevation or flood -proofing certification
after the lowest floor is completed. Within twenty one
132

'
days the lowest floor
calendar of establishment of elevation,
or flood -proofing by whatever construction means, or upon
placement of the horizontal structural members of the lowest
floor, whichever is applicable, it shall be the duty of the
'
permit holder to submit to the City Engineer a certification
of the elevation of the lowest portion of the horizontal
'
structural members of the lowest floor, whichever is
applicable, as built, in relation to mean sea level. Said
certification shall be prepared by or under the direct
land
supervision of a registered surveyor or professional
engineer and certified by same. When flood -proofing is
'
utilized for a particular building, said certification shall
be prepared by or under the direct supervision of a
professional engineer or architect and certified by same.
Any work done within the twenty one day calendar period and
prior to submission of the certification shall be at the
permit holder's risk. The City Engineer shall review the
'
floor elevation survey data submitted. Deficiencies detected
be by the holder
by such review shall corrected permit
immediately and prior to further progressive work being
'
permitted to proceed. Failure to submit the survey or
failure to make said corrections required hereby, shall be
'
cause to issue a stop -work order for the project.
1 SECTION C. DUTIES AND RESPONSIBILITIES OF THE CITY ENGINEER
' Duties of the City Engineer shall include, but not be limited to:
(1) Review all development permits to assure that the permit
' requirements of this ordinance have been satisfied.
(2) Advise permittee that additional federal or state permits may
' be required, and if specific federal or state permits are
known, require that copies of such permits be provided and
maintained on file with the development permit.
1 133

(3)
(4)
(5)
(b)
(7)
ME
(9)
(10)
Notify adjacent communities and the North Carolina Department
of Natural Resources and Community Development prior to any
alteration or relocation of a watercourse, and submit
evidence of such notification to the Federal Emergency
Management Agency.
Assure that maintenance is provided within the altered or
relocated portion of said watercourse so that the flood -
carrying capacity is not diminished.
Verify and record the actual elevation (in relation to mean
sea level) of the lowest floor (including basement) of all
new or substantially improved structures, in accordance with
Article 4, Section B (5).
Verify and record the actual elevation (in relation to mean
sea level) to which the new or substantially improved
structures have been flood -proofed, in accordance with
Article 4, Section B (5).
When flood -proofing is utilized fora particular structure,
the City Engineer shall obtain certification from a
registered professional engineer or architect.
Where interpretation is needed as to the exact location of
boundaries of the areas of special flood hazard (for example,
where there appears to be a conflict between a mapped
boundary and actual field conditions) the City Engineer shall
make the necessary interpretation. The person contesting the
location of the boundary shall be given a reasonable
opportunity to appeal the interpretation as provided in this
article.
When base flood elevation data has not been provided in
accordance with Article 3, Section B, then the City Engineer
shall obtain, review, and reasonably utilize any base flood
elevation data available from a federal, state, or other
source, in order to administer the provisions of Article 5.
All records pertaining to the provisions of this ordinance
shall be maintained in the office of the City Engineer and
shall be open for public inspection.
134

ISECTION D. VARIANCE PROCEDURES
'
(1)
The Board of Adjustment as established by the City of
Jacksonville shall hear and decide appeals and requests for
variances from the requirements of this ordinance.
(2)
The Board of Adjustment shall hear and decide appeals when it
is alleged there is an error in any requirement, decision, or
'
determination made by the City Engineer in the enforcement or
administration of this ordinance.
'
(3)
Any person aggrieved by the decision of the Board of
Adjustment or any taxpayer may appeal such decision to the
'
Superior court, as provided in General Statutes 143-
215.57(c).
'
(4)
Variances may be issued for the reconstruction,
rehabilitation, or restoration of structures listed on the
National Register of Historic Places or the State Inventory
'
of Historic Places without regard to -the procedures set forth
in the remainder of this section.
'
(5)
In passing upon such application, the Board of Adjustment
shall consider all technical evaluations, all relevant
'
factors, all standards specified in other sections of this
ordinance, and:
(a) the danger that materials may be swept onto other lands
to the injury of others;
(b) the danger of life and property due to flooding or
'
erosion damage;
(c) the susceptibility of the proposed facility and its
'
to flood damage and the damage
contents effect of such
on the individual owner;
'
(d) the importance of the services provided by the proposed
facility to the community;
'
(e) the necessity of the facility in a waterfront location,
where applicable;
'
(f) the availability of alternative locations, not subject
to flooding or erosion damage, for the proposed use;
135

'
(g) the compatibility of the proposed use with existing and
anticipated development;
'
(h) the relationship of the proposed use. to the
comprehensive plan and flood plain management program
'
for that area;
(i) the safety of access to the property in times of flood
for ordinary and emergency vehicles;
(j) the expected heights, velocity, duration, rate of rise
and sediment transport of the flood. waters and the
'
effects of wave action, if applicable, expected at the
site; and
'
M the costs of providing governmental services during and
after flood conditions including maintenance and repair
'
of public utilities and facilities such as sewer,
electrical and water systems, and streets and bridges.
(6) Upon consideration of the factors listed above and the
'
purposes of this ordinance, the Hoard of Adjustment may
attach such conditions to the granting of variances as it
'
deems necessary to further the purposes of this ordinance.
(7) Variances shall not be issued within any designated floodway
'
if any increase in flood levels during the base flood
discharge would result.
(8) Conditions for variances:
(a) Variances shall only be issued upon a determination that
the variance is the minimum necessary, considering the
'
flood hazard, to afford relief;
(b) Variances shall only be issued upon (i) a showing of
good and sufficient cause; (ii) a determination that
failure to grant the variance would result in
exceptional hardship to the applicant; and (iii) a
determination that the granting of a variance will not
'
result in increased flood heights, additional threats to
public safety, extraordinary public expense, create
nuisance, cause fraud on or victimization of the public,
'
or conflict with existing local laws or ordinances.
136

P
ARTICLE 5.
SECTION A.
(c) Any applicant to whom a variance is granted shall be
given written notice specifying the difference between
the base flood elevation and the elevation to _ which the
structure is to be built and stating that the cost of
flood insurance will be commensurate with the increased
risk resulting from the reduced lowest floor elevation.
(d) The City Engineer shall maintain the records of all
appeal actions and report any variances to the Federal
Emergency Management Agency upon request.
PROVISIONS FOR FLOOD HAZARD REDUCTION
GENERAL STANDARDS
In all areas of special flood hazard the following provisions are required:
(1) All new construction and substantial improvements shall be
anchored to prevent flotation, collapse, or lateral movement
of the structure;
(2) All new construction and substantial improvements shall be
constructed with materials and utility equipment resistant
to flood damage;
(3) All new construction or substantial improvements shall be
constructed by methods and practices that minimize flood
damage;
(4) All new and replacement water supply systems shall be
designed to minimize or eliminate infiltration of flood
waters into the systems;
(5) New and replacement sanitary sewage systems shall be designed
to minimize or eliminate infiltration of flood waters into
the systems and discharges from the systems into flood
waters;
(6) On -site waste disposal systems shall be located and
constructed to avoid impairment to them or contamination from
them during flooding;
137

(7) Any alteration, repair, reconstruction, or improvements to a
structure which is in compliance with the provisions of this
ordinance, shall meet the requirements of new construction as
contained in this ordinance.
SECTION B. SPECIFIC STANDARDS
In all areas of special flood hazard where base flood elevation data has
been provided, as set forth in Article 39 Section B, or Article 41 Section C
(9), the following provisions are required:
(1) Residential Construction - New construction or substantial .
improvement of any residential structure shall have the
lowest floor, including basement, elevated no lower than 1
foot above base flood elevation.
(2) Non-residential Construction - - New construction or
substantial improvement of any commercial, industrial, or
other non-residential structure shall either have the lowest
floor, including basement, elevated no lower than 1 foot
above the level of the base flood elevation, or , together
with attendant utility and sanitary facilities, be flood -
proofed so that all areas of the structure below the required
elevation are water tight and with walls substantially
impermeable to the passage of water and with structural
components having the capability of resisting hydrostatic and
hydrodynamic loads and effects of buoyancy. A registered
professional engineer or architect shall certify that the
standards of this subsection are satisfied. Such
certification shall be provided to the official as set forth
in Article 49 Section B (3).
(3) Mobile Homes
(a) No mobile home shall be placed in a floodway or coastal
high hazard area, except in an existing mobile home park
138

'
or existing mobile home subdivision.
(b) All mobile homes shall be anchored to resist flotation,
'
collapse, or lateral movement by providing over -the -top
and frame ties to ground anchors. Specific requirements
shall be that:
(i) over -the -top ties be provided at each end of the
'
mobile home, with one additional tie per side at an
intermediate location homes
on mobile of less than
fifty feet and one additional .tie per side for
'
mobile homes of fifty feet of more;
(ii) frame ties be provided at each corner of the home
'
with four additional ties per side at intermediate .
points for mobile homes less than fifty feet long
'
and one additional tie for mobile homes of fifty
feet or longer;
(iii) all components of the anchoring system be capable
force 4,800
of carrying a of pounds; and
(iv) any additions to the mobile home be similarly
'
anchored.
(c) For new mobile home parks and subdivisions; for
expansions to existing mobile home parks and sub-
divisions; for existing mobile parks and subdivisions
'
where the repair, reconstruction or improvement of the
streets, utilities and pads equal or exceed fifty
percent of value of the streets, utilities and pads
'
before the repair, reconstruction or improvement has
commenced); and, for mobile homes not placed in a mobile
'
home park or subdivision require:
(i) stands or lots are elevated on compacted fill or on
pilings so that the lowest floor of the mobile home
will be at or above the base flood level;
'
(ii) adequate surface drainage and access for a hauler
are provided; and
(iii) in the instance of elevation on pilings; (1) lots
are large enough to permit steps; (2) piling
1
139

Ifoundations are placed in stable soil no more than
ten feet apart; and (3) reinforcement is provided
for pilings more than six feet above the ground
level.
(4)
Floodwa s - Located within areas
v
of special flood hazard
p
established in Article 39 Section
B, are areas designated as
floodways. Since the floodway is an
extremely hazardous area
due to the velocity of flood
waters which carry debris,
potential projectiles, and has
erosion potential, the
following provisions shall apply:
(a) Prohibit encroachments,
including fill, new .
construction, substantial
improvements and other
development unless certification
(with supporting
technical data) by a registered professional engineer is
'
provided demonstrating that
encroachments shall not
result in any increase in flood
-levels during occurrence
of the base flood discharge;
'
(b) If Article 5, Section B (4)
(a), is satisfied, all new
construction and substantial
improvements shall comply
with all applicable flood hazard
reduction provisions of
Article 5.
(c) Prohibit the placement of any
mobile homes, except in an
existing mobile home park
or existing mobile home
subdivision.
SECTION C.
STANDARDS FOR STREAMS WITHOUT
ESTABLISHED BASE FLOOD
ELEVATIONS AND/OR FLOODWAYS
Located within
the areas of special flood hazard
established in Article 3,
Section B,
where small streams exist but where no
base flood data has been
provided or
where no floodways have been provided,
the following provisions
apply:
140

�I
Ll
�I
(1) No encroachments, including fill material or structures shall
be located within a distance of the stream bank equal to 5
times the width of the stream at the top of bank. by twenty
feet on each side from top of bank, whichever is greater,
unless certification by a registered professional engineer is
provided demonstrating that such encroachments shall not
result in any increase in flood levels during the occurrence
of the base flood discharge.
(2) New construction or substantial improvements of structures
shall be elevated or flood -proofed in accordance with
elevations established in accordance with Article 4, Section
C (9).
SECTION D. STANDARDS FOR SUBDIVISION PROPOSALS
(1) All subdivision proposals shall be consistent with the need
to minimize flood damage;
(2) All subdivision proposals shall have public utilities and
facilities such as sewer, electrical and water systems
located and constructed to minimize flood damage;
(3) All subdivision proposals shall have adequate drainage
provided to reduce exposure to flood hazards; and
(4) Base flood elevation data shall be provided for subdivision
proposals and other proposed development which is greater
than the lesser of fifty lots or five acres.
SECTION E. STANDARDS FOR AREAS OF SHALLOW FLOODING (AO ZONES)
Located within the areas of special flood hazard established in Article 3,
Section B, are areas designated as shallow flooding. These areas have
special flood hazards associated with base flood depths of one to three feet
where a clearly defined channel does not exist and where the path of
flooding is unpredictable and indeterminate; therefore, the following
provisions apply:
141

1
I
I
(1) All new construction and substantial improvements of
residential structures shall have the lowest floor, including
basement, elevated to the depth number specified on the Flood
Insurance Rate Map, in feet, above the highest adjacent
grade. If no depth number is specified, the lowest floor,
including basement, shall be elevated, at least 2 feet above
the highest adjacent grade.
(2) All new construction and substantial improvements of
nonresidential structures shall:
(a) have the lowest floor, including basement, elevated to
the depth number specified on the Flood Insurance Rate
Map, in feet, above the highest adjacent grade. If no
depth number is specified, the lowest floor, including
basement, shall be elevated at least 2 feet above the
highest adjacent grade or,
(b) together with attendant utility and sanitary facilities
be completely flood -proofed to or above that level so
that any space below that level is watertight with walls
substantially impermeable to the passage of water and
with structural components having the capability of
resisting hydrostatic and hydrodynamic loads and effects
of buoyancy.
142

ONSLOW COUNTY HURRICANE RESPONSE PLAN
I. AUTHORITIES
A. North Carolina General Statutes, Chapter 166.
B. Civil Preparedness Resolution for Jacksonville-Onslow.
II. REFERENCES
A. North Carolina Disaster Relief and Assistance Plan
(NCDR&AP)
B. Jacksonville-Onslow Disaster Operations Plan
C. Jacksonville-Onslow-American National Red Cross Agreement
III. PURPOSE AND SCOPE
A. Purpose: This Plan has been developed to provide for an orderly
and coordinated evacuation of endangered- areas to minimize the
effects of hurricanes on residents and visitors in Onslow County.
The Plan provides for the alerting of selected officials, the
evacuation of the public from danger areas, and designation of
shelters for evacuees. It also provides for reentry into
evacuated areas when the threat to persons is ended.
B. Scope: This Hurricane Evacuation Plan is a single -purpose
contingency plan and is a part of an all encompassing local
disaster operation plan which specifies functional emergency
responsibilities (reference II.B.)
143

IV. ORGANIZATION
A. Evacuation Action: Hurricane evacuation involves all areas under
County jurisdiction and Municipal jurisdiction. As joint action
is required by County and Municipal governments, a joint
organization for decision making and use of resources is needed.
A Control Group and a Support Group are hereby established for
this purpose.
B. Control Group:
1. Mission: To exercise overall direction and control of
hurricane evacuation operations including decisions to
institute county -wide increased readiness conditions and such
other actions deemed necessary in response to the situation.
2. Composition:
a. The Chairman of the County Board of Commissioners
- Group Chairman
b. The Mayors (or their representatives) of:
(1) Jacksonville
(2) Swansboro
(3) Holly Ridge
(4) Richlands
144

C. County Emergency Management Coordinator - Advisor
1
3.
Line of Succession: In the event that any of the members of
the Control Group are not available, each primary member will
1
be succeeded by alternates who will have the responsibility
and authority of the primary member (See Attachment 1).
1
C. Support
Group:
1.
Mission: To provide personnel and material resources for the
implementation of preplanned actions and actions as directed
'
by the Control Group; to direction to
provide personnel
engaged in operations; and to provide information, data, and
recommendations to the Control Group.
2.
Composition:
a. County Manager - Group Chief
b. Sheriff
C. Director of Social Services
d. Superintendent of Schools
e. County Health Director
f. County Auditor
g. County Tax Assessor
h. County Fire Marshall
'
145

i. Public Information Officer
j. Rescue Squad Representation
k. State Highway Patrol Liaison Officer
1. Red Cross Liaison Officer
M. Jacksonville City Manager
n. Communications
D. Operational Locations: The Control and Support Groups will be
located in the Emergency Operating Center (EOC) Agriculture
Building to facilitate coordination. Should it become necessary
to move the groups to an alternate EOC location, the new location
will be the Carolina Telephone and Telegraph Office.
V. CONCEPT OF OPERATIONS
The Onslow County concept for hurricane evacuation calls for:
A. Early alerting of officials and concerned agencies in the entire
County.
B. Overall direction and decision making by a Control Group.
C. Increased readiness actions taken progressively as the
hurricane approaches and as the threat of injury and damage
increases.
146

D. Evacuation of residents and visitors on beaches and in threatened
low-lying areas upon decision of the Control Group.
E. Movement of evacuees to designated and operating public shelters,
or out of Onslow County and the threatened area.
F. Mass care for evacuees in predesignated shelters in accordance
with agreements.
G. Reentry of evacuees to evacuated areas when authorized by the
Control Group and when the hurricane threat has passed or damage
assessments indicate that reentry is feasible.
H. Local governments request State and/or Federal assistance, as
necessary, before or after a hurricane (See NCDR&AP, Annexes D, E,
F, and G).
VI. WARNING AND ALERT SYSTEM
The system for dissemination of hurricane watches and warnings and for
notification of departments and populace that the evacuation plan will be
executed, is shown as a flow chart (See Attachment 2).
147

1
1
1
1
1
1
1
1
1
1
1
1
1
1
VII. INCREASED READINESS ACTION CHECKLIST
(See Attachment 3 - Checklist and Attachment 4 - Condition/Action Flow
Chart).
A. Readiness Conditions: The following increased readiness
conditions are established:
Condition
5 Hurricane Season (June 1 - November 30)
Condition
4 Alert - Hurricane Advisory
Condition
3 Hurricane Watch - Approximately 48 hours
to forecasted landfall.
Condition
2 Hurricane Warning - Approximately 24
hours to forecasted landfall.
Condition
1 Twelve hours or less to forecasted
landfall
Condition
0 Landfall
Reentry
Threat removed or damage assessment
allows
B. The Control Group will declare the condition. The Support Group
will implement actions for each condition when announced.
148

VIII. EVACUATION AREAS, ROUTES, AND SHELTER LOCATIONS
(See Attachment 5)
A. General:
1. Evacuation routes and designated shelters for beach areas are
as indicated on Attachment 5.
2. Other residents wishing to seek shelter (mobile home
residents or persons living in any structure which does not
provide adequate protection) should go to the nearest
designated shelter.
B. She lter •
1. A shelter is defined as a predesignated structure of
sufficient strength to withstand high winds, which is located
in an area not subject to flooding or storm surge and which
will safeguard a given number of evacuees.
2. Onslow County is responsible for providing shelter for all
residents and visitors in Onslow County. Onslow County will
also provide shelter for residents of Pender or other
surrounding counties to the maximum extent possible.
149

3. Shelters will be operated by the Onslow County Chapter of the
American National Red Cross supplemented by school system
personnel if needed as per agreement (reference II.C).
4. Shelters will be opened only on an as -needed basis.
Locations of operating shelters will be announced on local
radio stations.
5. Evacuees will be instructed to bring blankets, light sleeping
cots, battery operated radios, flashlights, and special
medicinal and dietary needs (including baby needs) for the
duration of the shelter period.
6. Persons living on West Onslow Beach may take shelter in
Topsail High School or Topsail Elementary School in Ponder
County if they so desire.
IX. REENTRY
' A. Upon cancellation of all hurricane warnings and watches which
P 9
include Onslow County and when no damage has been experienced, the
Control Group will authorize reentry to all evacuated areas.
' B. When hurricane damages have resulted, reentry to evacuated areas
will be based upon damage assessments in any rescue or other
' relief operations in progress. Reentry will be authorized by
150

Control Group to specific evacuated areas and under conditions
specified.
C. Decisions of the Control Group will be broadcast by the P. I. 0.
X. RESPONSIBILITIES
A. Local:
1. Control Group: Overall direction (as directed in Paragraph
IV.B)
2. Support Group: As shown in responsibility blocks on the
Increased Readiness Action Checklist, Attachment 3.
3. County Emergency Management Coordinator:
a. Serves as advisor to the Control Group.
b. Coordinates actions of the Support Group and operations
involving local nongovernment organizations and
operations of forces from outside the County.
C. Operates the County EOC.
d. Furnishes Situation Reports to the State EOC.
e. Develops and conducts exercises to test and evaluate
this Plan.
151

1
1
1
1
1
1
1
1
1
1
1
B. State and Federal Agencies:
1. National Weather Service: Provides hurricane watches,
warnings, and related weather information.
2. U.S. Coast Guard:
a. Provides warnings to ships and boats in affected coastal
areas.
b. Assists in coastal evacuation upon request.
3. Commander, Marine Corps Base, Camp Le.ieune -
Commander, Marine Corps Air Station: Maintains liaison and
coordinates actions with County EOC.
4. State Highway Patrol:
a. Operates State Warning Point and passes weather
information via Police Information Network (PIN).
b. Responsible for
Systems.
152
traffic control on State Highway

5. State Division of Emergency Management:
a. Receives requests for assistance, coordinates State
actions, and arranges for assistance from Federal
agencies.
b. Area "C" Emergency Management Coordinator:
(1) Assists in coordination of evacuation efforts.
(2) Assists in coordination of State assistance.
XI. COMMUNICATIONS
A. Communications will be in accordance with Annex B, NCDR&AP and
appropriate local plans.
B. The Sheriff operates the County Severe Weather Warning System and
Traffic Control Points.
C. The Communications Officer will insure communications between the
Control and Support Groups and shelters.
XII. PUBLIC INFORMATION
A. The Public Information Officer (PIO) will provide information to
the public via the news media and otherwise based upon decisions
of the Control Group to include the following:
153

1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1. Precautionary/preparatory measures recommended for the
public.
2. Evacuation instructions.
3. Reentry instructions.
4. Damage information.
B. Warnings to the public are disseminated by the news media (radio,
TV, and newspapers), from National Weather Service Bulletins, and
advisories and statements as received directly and as provided
through the warning system.
XIII. EXERCISES
An exercise will be conducted annually to test and evaluate this
Plan.
154

1
ATTACHMENT NO.
1
CONTROL GROUP
'
LINE OF SUCCESSION
1
To
assure continuity of responsibility for governmental
functions of direction and
'
control
of emergency operational
efforts, the following lines of
succession to offices
are
established:
1.
Chairman of the Onslow
a.
Vice Chairman
b.
In the absence of
'
County Board
Chairman and Vice
Chairman, the
members present
may choose a
temporary chairman
2.
Mayor of Jacksonville
a.
Mayor Pro Tempore
b.
The next senior
member of the
council
3.
Mayor of Swansboro
a.
The Town Commissioner
b.
The Chief of Police
'
that received the most
votes
'
4.
Mayor of Holly Ridge
a.
Mayor Pro Tempore
b.
Present Town
Commissioners
elect temporary
'
mayor
5.
Mayor of Richlands
a.
Mayor Pro Tempore
b.
Town councilman
receiving the
'
largest vote count
'
b.
Emergency Management
Coordinator
a.
Operations Chief
b.
Communications.
Chief
'
155

HURRICANE EVACUATION PLAN
II. GENERAL
Certain areas of Onslow County can be termed high risk areas and should
be evacuated prior to the time a hurricane strikes. The most vulnerable
areas are the barrier islands (beach areas) and low lying areas adjacent to
the sounds and marshes between the barrier islands and the mainland. The
only developed beach community in the County is West Onslow Beach and most
of the attention relative to the evacuation of residents or occupants must
concentrate on this highly vulnerable area. Attention must also be given to
' sound front developed areas and communities such as Sneads Ferry and
Swansboro; however, multiple evacuation routes are generally available and
the areas are relatively accessible to high ground.
' Other areas, such as portions of the City of Jacksonville are flood
prone, (either from rising water or high rainfall runoff), and limited
evacuation of these areas may be required. Camp Lejeune is also subject to
' similar flooding problems in some areas, but local military authorities will
manage this problem within this own resources; however, close coordination
should be effected between Onslow County and U.S. Marine Corps Base
authorities.
II. EVACUATION PLAN
' The general plan for evacuation of threatened areas of the County are
briefly summarized in the Onslow County Hurricane Evacuation Plan
(Attachment No. 5 of the Onslow County Hurricane Response Plan). This
1 single page flyer is attached hereto and is also available for widespread
distribution to interested and/or affected citizens throughout the County.
The circumstances requiring evacuation, evacuation routes and emergency
shelters are clearly depicted on the plan.
III. EVACUATION CONSIDERATIONS
' As mentioned above, evacuation of County areas other than the barrier
island beaches does not appear to represent a difficult problem. Some
access roads are low-lying and persons living below approximately six (6)
' feet above mean sea level (m.s.l.) should seek higher ground before flood
tides reach that level. The Swansboro, Sneads Ferry, and intervening low-
lying mainland areas fall in this category. Generally, evacuation of these
areas three (3) to five (5) hours before a storm is scheduled to strike the
mainland should provide adequate lead time for safe evacuation of these
areas. Development densities in these areas is low, so traffic flow or road
congestion should not represent a problem. Persons living in these areas
t should be prepared to evacuate on short notice when Condition 1 is
announced.
The barrier island (beach) areas are an entirely different situation.
Access routes are restricted and in some cases inferior. Although the
Onslow County coastline is fairly long (approximately 27 miles), less than
t 156

' half of this (about 12 miles) is developed or inhabited by permanent or
seasonal residents. The Hammocks Beach State Park island is undeveloped and
should be evacuated and closed completely during a threatened hurricane
storm period. The coastline within the Camp Lejeune Marine Corps Base is
under the jurisdiction of military authorities. Thus, the primary area
requiring careful evacuation planning is West Onslow Beach. The remainder
of this discussion focuses on that area.
IV. EVACUATION TIMES ANALYSIS 1_/
The amount of time it takes to safely evacuate an area depends on the
level of development and number of people in the area at any one time. It
' depends on the condition of roads and bridges along the evacuation route. It
also depends on the attitudes of local residents and visitors and the
strength of particular storm.
Evacuation time has four components: mobilization time, travel time,
queuing delay time, and pre -landfall hazards time.
Mobilization time is the period between the issuance of the evacuation
order and the departure time of the last vehicle from the,vulnerable
area. It depends to a large extent on the attitudes and response time
of residents. Travel time is the period necessary for the vehicles to
travel the length of the evacuation route at an anticipated operating
speed assuming no traffic delays (queuing). Queuing delay time is
defined as the time spent by vehicles in traffic james resulting when
the capacities of the evacuation routes are exceeded by the number of
vehicles entering those routes.
Mobilization time, travel time, and queuing delay time together
constitute the community's "clearance time" - the total time needed to
move all evacuees to temporary shelter once an evacuation order is
' issued. Pre -landfall hazards time is the time before the eye of the
hurricane reaches the community when the storm surge or sustained high
winds render evacuation routes impassable. The National Hurricane
Center issues warnings based on its predictions of the time the eye is
expected to reach land. However, the storm surge and sustained winds
can strike the community hours before the eye does. This pre landfall
hazards time cannot be used for safely moving evacuees; it is greater
for more intense storms.
Estimating these various components of evacuation time remains a
' complicated task due to uncertainty regarding the intensity, timing, and
other characteristics of any particular storm and uncertainty regarding the
willingness of local residents and visitors to evacuate. Current estimation
techniques involve:
1_/ William D McElyea, David J. Brower, David R. Godschalk.
Before the Storm; Management Development to Reduce Hurricane Damages.
Ocean and Coastal Ecology Program Center for Urban and Regional
Studies, UNC/Chapel Hill; August 1982.
157

1. estimating storm surge levels, wind speeds, and their time of
arrival before the eye's landfall for storms of different
intensities;
2. identifying points along the.evacuation route that are subject to
flooding;
3. estimating the total number of people and automobiles that must be
evacuated;
4. estimating the carrying capacity of roads along the evacuation
route;
5. identifying any bottlenecks or other points along the route that
could delay traffic;
6. estimating the timing of traffic movement and traffic levels along
the route; and
7. estimating the time it will take people to respond to an
evacuation order.
Much of the evacuation time needed boils down to the level of
development, resident population, and visitor population in areas that need
to be evacuated, relative to the carrying capacity of the evacuation route.
If the level of development of high hazard areas exceeds the route's
capacity for safe and timely evacuation, the community can expect to suffer
numerous casualties during a major storm. Local officials should bear in
mind that the National Hurricane Center's hurricane warnings (usually used
as the signal to evacuate) are issued 12 hours before the eye is expected to
1
hit land. Flooding and hurricane -strength winds can precede the landfall by
several hours, depending on the storms size and intensity.
'
The Planning and Research Branch of the North Carolina Department of
Transportation (DOT), (Larry R. Goode), prepared an internal memorandum for
evacuation of Onslow and Pender Counties (beach communities). A copy of
this memo is attached hereto as Appendix A. This brief study estimates an
evacuation time of 7 to 9 hours for the beach complex of Topsail (Ashe)
Island. The primary problem relative to the West Onslow Beach area is that
the analysis credits only 11300 people evacuating northward from the area
over N. C. Highway 210. Never -the -less, the analysis gives indication of
the extended time required to evacuate the area.
Evacuation time estimating techniques are further refined by John R.
Stone in his UNC sea grant working paper 83-2 entitled, "Hurricane Emergency
Planning: Estimating Evacuation Times for Non -Metropolitan Coastal
Communities" 2_/ This excellent analysis-c-losely para`lle15-bUt­"11,1
2./ Also included as a reference ll./ in a report to the Onslow
County Board of Commissioners entitled: Hurricane Storm Mitigation
and Post- Disaster Reconstruction Plans for Onslow County, North
Carolina (January 1984), by Henry von Oesen and Associates, Inc
1 158

' refines the DOT estimate approach referenced above. It also provides a
shore cut calculation method for simple evacuation networks like West Onslow
Beach. Textural references and the evacuation time calculating technique -in
the following subparagraphs are borrowed from Stone's works.
West Onslow Beach Evacuation Time Estimate
A. Evacuation area: West Onslow Beach is a barrier island which forms the
southeastern border of Onslow County facing the Atlantic Ocean.
Elevations range from 0 to a little over 20 feet m.s.l. at its highest
point. The width ranges from less than one quarter to just over one
half mile. The area lies entirely within the hurricane flood zone.
There is a single two lane road (N.C. Highway) running north to south
over the entire length of the island. It is connected to the mainland
by a relatively new high level fixed span two lane bridge about four
miles from the north end of the island. (New River Inlet). Route 210
also extends southward (through Surf City) with connections to the
mainland over a two lane swing bridge at an elevation of about 14 feet
above the Atlantic Intracoastal Waterway (AIWW). For several
reasons, it is recommended that all West Onslow Beach traffic evacuate
northward as shown on the evacuation plan map.
B. Hurricane Scenario: In 19549 when Hurricane Hazel hit North Carolina,
a high-water mark from the tidal surge (exc.luding wave action) of 16
feet above mean sea level was recorded at the South Brunswick County
region. This is the surge expected from a Category 4 storm which could
similarly effect the Topsail Island area. A storm of this magnitude
could be expected there roughly once every 100 years. Assuming the
hurricane eye from such a storm crossed over West Onslow Beach, it is
likely that nearly 90 percent of the flood zone would be flooded. The
possibility of flooding will be increased by the likelihood of
torrential rains and the primary evacuation route would be completely
inundated.
C. Hazards Time: A complete analysis for the surge and gale -force wind
hazards time components of evacuation time would require a computer
simulation of the storm. However, prior detailed analysis descriptions
of a Category 4 storm suggest that low-lying escape routes .may be cut
by rising water as early as three to five hours before the hurricane
eye arrives. This estimate for roadway inundation time is consistent
with a storm which moves at a typical 10 mph forward speed and has'a
surge that extends about 30 miles out from the hurricane eye.
An investigation and inspection
of the evacuation route
(N.C. Highway
210) reveals that portions of
the road are at elevations
of about 6 to
7 feet above mean sea level.
Fortuitously, the lowest
points are at
the southern boundary (at the
Surf City north limit) and
along much of
highly developed north end of
the beach area between the bridge
crossing point and New River
Inlet. In many areas, the road passes
extremely close to the ocean (where low dunes may or may not exist),
which further increases the roads vulnerability to tide and wave
attack. Finally, the immediate approach road section to the high level
159

bridge crossingis at an elevation be.low 8 feet m.s.l. Thus, the
escape access to the bridge itself could be inundated relatively early
in the storm period. The excellent new high level bridge represents no
impediment to rapid evacuation of controlled vehicular traffic.
Gale force winds and blinding rain can also combine to make it
virtually impossible to drive a vehicle on the evacuation route. Wind
analysis for barrier islands and coastal areas in Florida suggest that
gale -force winds may precede landfall of the eye be as much as six
hours.
Based on the above, a cut-off time of 3 to 5 hours is used in preparing
this estimate.
D. Mobilization time: As previously mentioned, mobilization time for a
community may vary somewhat. However, actual data suggests that it may
take over five hours for everyone to begin the evacuation.
A value of three to four hours would find 80 percent to 90 percent of
L
the evacuees on their way and is used in this analysis.
E. Travel time: Evacuation travel is based on the length of the
evacuation route and the assumed uninterrupted operating speed of the
evacuation vehicles. Assuming an evacuee lives at the southern end of
NC 210 on West Onslow Beach (at Surf City Town limits), he or she must
travel six and one half (6 1/2) miles to reach bridge. It is another
seven miles to Dixon School (recommended shelter), giving a total
evacuation distance of about 14 miles. Assuming storm conditions and
evacuation traffic, yet uninterrupted travel, an average operating
speed of 35 mph could be maintained on the two-way, two-lane rural
roads of the evacuation area. The "free -flow" travel time is,
therefore:
'
Travel Time = Distance/Speed
14 miles/35 mph
0.40 hours
24 minutes
This estimate does not include queuing delay which is determined
below.
F. Queuing time delay: It is anticipated that all of the evacuees will
originate on West Onslow Beach. It is possible that some occupants of
Surf City and Topsail Beach to the south may opt to attempt to evacuate
northward over Route 210 through West Onslow Beach; however, this
should be discouraged and evacuees from those communities should
continue to exit the area over the swing span bridge and N. C. Highway
50 that serves these communities. Additionally, Highway 210 may be
flooded early in the vicinity north of the Surf City Town limits as
1
previously mentioned.
1 160

The primary constraint to rapid evacuation of West Onslow Beach
residents and visitors is the limited carrying capacity of the
principal evacuation route, N. C. Highway 210. As mentioned in
paragraph C above, extensive portions of this road are at elevations as
low as 6 feet m.s.l. and consequently may become impassable during
early tide surge and gale conditions that may exist several.hours
before the hurricane makes a landfall. This coupled with the marginal
condition of the road will influence queuing delay times for the area.
The Onslow County Land Use Plan projects a maximum population density
of West Onslow Beach in 1990 of 107335 people. Based on the rapid
growth experienced in the area in the past five years, this projection
is considered to be quite low; however, for purposes of this analysis,
a peak population of 10,000 is used.
In order to estimate the queuing delay time during a particular time
period of the evacuation, the traffic demand and the restrictive road
capacity must be know. For the purposes of this analysis, the
following will be assumed:
1. 109000
persons evacuated.
2. The average automobile occupancy is 2.5 person per vehicle.
3. 20 percent of the evacuees leave before the order is given.
4. The remaining 80 percent of the evacuees leave over a 3.5 hour
period.
5. Traffic control officers will be stationed at intersections
thereby mitigating the usual intersection capacity constraints.
6. Intersection turning traffic is negligible compared to the
1
evacuation traffic.
7. Traffic moves at "level of service D to E," with one lane for
evacuation and one lane for emergency vehicles.
The evacuation rate or traffic demand is thus,
Evacuation Traffic Demand = (No. of evacuees/vehicle occupancy)
X (1 percent remaining after order)
'
X (1/evacuation period)
or
ETD = (10,000/2.5) (.80) (1/3.5)
900 vehicles/hour (3,200 vehicles in 3.5 hours)
1
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1
Under the planning assumptions outlined above, DOT sources indicate
Route 210 should have carrying capacity about 900 to 1,000 vehicles per
hour under optimum conditions: however, the 22-foot width and marginal
road condition would reduce this to an assumed ideal capacity of 550 to
825 vehicles per hour. If it. is further assumed that under storm
conditions, this ideal capacity will be reduced by fluctuation in
1
traffic demand, wind blown debris and winds, it is estimated that the
actual evacuation capacity will be only half (50 percent) of the ideal
capacity. The road carrying capacity becomes a "bottleneck" in the
evacuation process. Thus:
Evacuation Capacity = Ideal capacity x 0.50
'
Evacuation Capacity = 275 to 400 vehicles per hour (assume 300)
Based on accepted prior study duty, the maximum amount of individual
vehicular delay is given by the following formula:
Queuing delay time = (Duration of bottleneck) X (1-Bottleneck
capacity/average demand)
Hence,
1 Queuing delay time = (3.5) (1-300/900) = 2 hours
Note: The new high level bridge carrying capacity exceeds the road
carrying capacity by a considerable degree and is not considered to be
a restricting factor.
G. Total Evacuation Time: The total evacuation time is the summation of
the following components:
Cut -Off Time
3-5 hours
1
Mobilization Time
3-4 hours
Travel Time
0.5 hours
Queuing Delay Time
2-3 hours
Total
8-13 hours
V. DISCUSSION
As explained in the previously referenced Stone report, the evacuation
time estimate of 8 to 13 hours is based on a Category 4 hurricane scenario
and is dependent on a number of assumptions. These include the assumed
number of evacuees, auto occupancy rate, community response, roadway
inundation time, to name but a few. Changing the assumptions will change
the time estimates. It is interesting to note, however, that certain
tradeoffs exists. For example, much importance is placed on community
awareness and rapid response to evacuation orders. Unfortunately, it is
1 felt that a sensitivity analysis would show that an earlier mobilization of
the evacuees will lead to higher traffic demands and more queuing delay.
1 162

1 What is gained in response time is lost to traffic delay if bottlenecks
exist an the evacuation route.
Looking specifically at the West Onslow estimate of 8 to 13 hours
evacuation time, it is seen that the figure is consistent with estimates for
' roughly similar island situations in Lee County, Florida (7). The estimate
is also consistent with the Holden Beach evacuation plan which
indicates that evacuation orders will be issued when a hurricane is within
12 hours of landfall.
Finally, further analysis of the future development potential and
ultimate development density of West Onslow Beach indicates that the peak
summer population could reach well over 30,000 people. This population
increase would seriously impact the above estimate and extend projected
evacuation times.
I
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ISECTION X
ICAUSES OF BLIGHT AND STRATEGIES
As a result of the 1980 census the City of Jacksonville was designated
an entitlement city, funded at an annual level of approximately $2859000.
Sixteen percent of these funds are currently appropriated for housing
rehabilitation grants or loan subsidies, 2% appropriated for city utility
' tap fees assistance, 13% appropriated for the operation of a housing code
enforcement program and clearance of dilapidated structures. . These funding
levels are set annually by City Council and are subject to changes in
Iadministrative philosophy.
Jacksonville's main community development objectives are the provision
of adequate and healthful housing, adequate public facilities and amenities,
and the elimination of blighting influences. To accomplish these objectives
project activities funded by the 1983 entitlement allocation include paving
or unimproved streets, replacement of undersized water mains, housing
rehabilitation grants, and the development of a downtown parking area to
encourage economic revitalization of the old downtown area.
The current emphasis is to upgrade the public infrastructure in lower
income or otherwise blighted areas of the city through the use of community
development grant funds. A large portion of these funds are being expended
to upgrade the areas cited in this report as having concentrations of
deteriorating housing. Community Development Block Grant funds are used to
1 implement planning strategies identified in this report in areas of the city
that are eligible under federal guidelines.
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the following section attempts to identify the types of housing
problems which causes blight. It also examines those planning strategies
which might help alleviate future housing problem.
Causes of Blight
Housing Stock Age
Age of Residents
Fixed Income Levels
Renter Occupancy
Absentee Landlords
Absentee Heads of Households
Temporary Absentee Occupants
Inappropriate Zoning
Poor Transition Zoning
Zoning Ordinance Structure
(pyramid)
Absence of Subdivision
Techniques
Poor Subdivision Layout
Lack of and/or Deterioration
of Public Water System
Lack of and/or Deterioration
of Public Sewer System
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Strategies
1. Housing code enforcement.
1. Neighborhood help groups
2. Council on Aging volunteer programs
1. Rehabilitation grants
2. Loan subsidies
1. Housing code enforcement
2. Rehabilitation assistance
3. Education programs
1. Housing code enforcement
1. Neighborhood help groups
1. Active zoning program
2. Active zoning policy
3. Separate land uses - non -pyramid
4. Extend extraterritorial plan. juris.
1. Extend extraterritorial planning
jurisdiction
1. Good subdivision review
2. Redevelopment of poorly designed
areas
1. Extension and rehabilitation through
Community Development Funds
2. Tap fees assistance
3. Capital Improvements Programs

Causes of Blight
Absence of Sidewalks
Lack of Municipal Services
Lack of Housing Code Enforce-
ment
Weatherization/Energy Conserv-
ation Problems
Absence of Comprehensive
Planning Program
Proximity to Major Thorough-
fares
Inadequate Traffic Flow
Inadequate Amount of Assisted
Housing
Intermingling of Land Uses
and Housing Types
Poor Drainage
Absence of Adequate Health
Safety Ordinances
High Rate of Housing Demand
High Rate of Housing Turnover
High Rate of Housing Vacancy
Extension of Facilities to
Housing Areas Isolated by
Geographical Features
Strategies
1. Extension through Community
Development Funds
2. Extension through assessments
3. Sidewalk plan
1. Annexation
1. Adopt and actively enforce model
code
2. Clearance assistance
3. Relocation assistance
1. Weatherization assistance through
Community Development Funds
2. Weatherization assistance through
Council on Aging
1. Development of Comprehensive Plan
1. Buffering
2. Use of transition zoning
3. Redevelopment
1. Subarea studies by Transportation
Planning Division
1. Educate and assist local developers
in applying for assisted housing.
2. Legislative action for appropriation
1. Better zoning
2. Zoning Ordinance Improvements
3. Redevelopment of Substandard Areas
1. Floodway regulations
2. Community Development Improvements
3. Assessed Improvements
1. Adoption and enforcement of ..and
nuisances ordinances
1. Code Enforcement
2. Neighborhood help groups
1. Capital Improvements Program
2. Active Land Use Planning
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Causes of Blight Strategies
Lack of Transportation to 1. Improve pedistrian access
Commercial and Public 2. Investigate public transportation
Facilities
Absence of Street Lighting 1. Conduct equity study
2. Install needed lighting
Absence of Park Facilities 1. Recreation dedication ordinance
2. Land and water conservation fund
grants
3. Capital Improvements Plan
Lack of Paved Roads 1. Capital Improvements Plan
2. Powell Bill Funds
3. Paving Program
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JACKSONVILLE COMMUNITY FACILITIES PLAN
TABLE OF CONTENTS
Page
I. INTRODUCTION........................................................1
Scope...............................................................1
Study Area..........................................................I
Methodology.........................................................5
Population Projection...............................................5
II. PUBLIC SAFETY......................................................6
A. Law Enforcement................................................6
Description....................................................6
Evaluation.....................................................6
Recommendations................................................7
B. Animal Control Shelter.........................................8
Description.....................................................B
Evaluation.....................................................8
Recommendations................................................8
C. Fire Department................................................9
Description....................................................9
Evaluation....................................................12
Recommendations...............................................12
III. PUBLIC WORKS.....................................................14
A. Maintenance Area..............................................14
Description...................................................14
Evaluation....................................................14
Recommendations...............................................14
B. Street Maintenance............................................15
Description...................................................15
Evaluation....................................................15
Recommendations...............................................16
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C.
Street Lights.................................................16
Description....................................................16
Evaluation ....................... ..................... ...17
Recommendations ............................................ .17
D.
Street Sweeping ........................................ ...18
Description ............................................ ......18
Evaluation....................................................18_
Recommendations...............................................18
E.
Sidewalks .............................................. ... .19
Description...................................................19
Evaluation ............................................. ... .19
Recommendations ......................................... ....20
F.
Parking.......................................................20
Description ............................................... ..20
Evaluation....................................................20
Recommendations...............................................21
G.
Stormwater Collection and Disposal ............................21
Description...................................................21
Evaluation....................................................22
Recommendations...............................................22
H.
Refuse Collection.............................................22
Description...................................................22
Evaluation....................................................23
Recommendations...............................................23
I.
Refuse Disposal...............................................24
Description...................................................24
Evaluation....................................................24
Recommendations...............................................24
J.
Cemetery.....................................................25
Description...................................................25
Evaluation....................................................25
Recommendations...............................................25
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Page
IV. PARKS AND RECREATION...............................................26
Facilities Description .................................... .......26
Programs Description...............................................29
Evaluation.........................................................31
Recommendations....................................................32
V. PUBLIC UTILITIES...................................................34
A. Water Supply, Treatment and Distribution ......................34
Description...................................................34
Evaluation....................................................39
Recommendations...............................................39
B. Wastewater Collection, Treatment and Disposal.................39
Description...................................................39
Evaluation....................................................43
Recommendations...............................................44
VI. ADMINISTRATION AND SUPPORT FACILITIES..............................45
A. Community Services Center.....................................45
Description.. ... ... ............ ...45
Evaluation....................................................45
Recommendations...............................................45
B. City Hall.....................................................45
Description...................................................45
Evaluation....................................................46
Recommendations...............................................46
C. Garage........................................................46
Description...................................................46
Evaluation....................................................47
Recommendations...............................................47
VII. EDUCATION FACILITIES...............................................46
A. Onslow County School Systems..................................48
Description...................................................48
Evaluation....................................................48
Recommendations...............................................48
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B.
Coastal Carolina Community College ............................59
Description .......................................... .......59
Evaluation....................................................60
Recommendations...............................................61
VIII.OTHER PUBLIC FACILITIES............................................62
A.
Onslow Memorial Hospital......................................62
Description...................................................62
Evaluation....................................................62
Recommendations...............................................62
B.
Onslow County Public Library..................................63
Description...................................................63
Evaluation....................................................63
Recommendations...............................................63
C.
County Offices................................................65
Description...................................................65
Evaluation....................................................66
Recommendations...............................................66
D.
Airport.......................................................66
Description...................................................66
Evaluation....................................................67
Recommendations...............................................67
E.
Post Offices..................................................68
Description...................................................68
Evaluation....................................................68
Recommendations...............................................68
IX. CAPITAL IMPROVEMENTS PROGRAM ............ :..........................
69
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LIST OF CHARTS
Page
1. Comprehensive Plan Elements, Jacksonville, North Carolina ........... 2
2. Comprehensive Plan Work Program.....................................3
3. Fire Calls 1976 through 1981.......................................11
4. Nearby Cities Streets Departments..................................16
5. Well Field Capacities..............................................36
6. Water Storage Facilities...........................................37
7. Pump Station Inventory Chart.......................................41
e. Data for Onslow County Schools.....................................49
9. Comparison between Onslow County Public Library and
North Carolina State Standards..................................64
10. Piedmont Airlines Traffic 1975-1981................................67
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1.
2.
3.
4.
5.
LIST OF MAPS
Page
Existing Community Facilities Map ......................... ........4
Fire Department Location and Desired Service Radii Map.............10
Recreation Facilities Map..........................................27
Onslow County Option I.............................................53
Onslow County Option II............................................56
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SOILS
According to the Soil Conservation Service of the United States
Department of Agriculture there are a large number of soil.types within
Jacksonville and its extraterritorial jurisdiction. The following depicts
the names and general descriptions of those soil types most commonly found:
Norfolk Series
The Norfolk Series consists of well drained nearly level to sloping
soils on uplands in the coastal plain. In a representative profile, the
surface layer is grayish brown loamy sand about 9 inches thick. The
subsurface layer is light yellowish brown loamy sand, 5 inches thick. The
subsoil extends to a depth of 82 inches. It is yellowish brown sandy loam
in the upper part, yellowish brown sand clay loam in the middle part and
mottled brownish yellow, strong brown, yellowish red sand clay loam in the
' lower part, slopes are 0 to 10 percent.
Goldsboro Series
' The Goldsboro Series consists of nearly level to gently sloping,
moderately well drained soils on coastal plain uplands. In a representative
profile, the surface layer is grayish brown loamy sand about 8 inches thick.
' The subsurface layer is pale brown loamy sand 4 inches thick. The subsoil
extends to 76 inches. It is brownish yellow sandy loam in the upper part,
yellowish brown, pale brown and gray sandy clay loam in the middle part; and
gray sandy loam and sandy clay loam in the lower part, slopes range from 0
to 5 percent.
' Onslow Series _
The Onslow Series consists of moderately well drained and somewhat
poorly drained soils an nearly level to Gently sloping uplands of the
' coastal plain. The surface layer is very dark gray loamy fine sand 4 inches
thick. The subsurface layer is gray, very pale brown and reddish brown
loamy fine sand 13 inches thick. The subsoil is 51 inches thick. It is
brownish
yellow fine sandy
loam in the upper part; brownish yellow, light
'
yellowish
brown, strong brown and light gray sandy clay
loam in the middle;
and light
gray sandy clay
loam in the lower part, slopes
are 0 to 3 percent.
Lynchburg
Fine Sandy Loam
The
Lynchburg Series
consists of somewhat poorly
drained, moderately
permeable soils of the coastal plains. In a representative profile the
surface layer is very dark gray loamy fine sand. The subsurface horizon is
yellowish brown loamy fine sand. The upper subsoil is yellowish brown sandy
' clay loam with gray mottles. The lower subsoil is gray sandy clay loam with
brown and red mottles..
1
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Pantego Series
The Pantego Series consists of poorly drained, nearly level soils on
coastal plan uplands. In a representative profile, the surface level is
loam about 18 inches thick. It is black in the upper part, and very dark in
lower part. The subsoil extends to 65 inches. It is very dark sandy clay
' loam in the upper part and gray sandy clay loam in middle and lower parts.
The slopes are less than 2 percents.
' Rains Series
The Rains Series consists of poorly drained, moderately permeable,
soils of the coastal plains. In a representative profile, the surface layer
' is very dark gray sandy loam about 7 inches thick. fhe subsurface layer is
light brownish gray sandy loam about 5 inches thick. The subsoil is about
67 inches thick.. The upper 8 inches is gray sandy loam and the next 59
inches is gray sandy clay loam. The underlying material is gray sand to a
depth of 85 inches. They formed in loamy fluvial and marine sediments,
slopes are less than 2 percent.
IDor ovan Muck
The Dorovan Series consist:; of very poorly drained, strongly acid soils
with thick dark surfaces. The surface consists of decomposed organic matter
to a depth of about 75 inches, the underlying laver is dark grayish brown
sand.
' While Goldsboro, Norfolk, and Onslow Series are well to moderately
drained, each of the other soil types offer severe limitations to
development.
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