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HomeMy WebLinkAboutLand Use Plan Policies for Growth and Development Update-1981WILMINGTON -NEW HANOVER . LAND USE PLAN 91@1ECE110 flop C��30G�1�i�I ��d D�MI�bOO pl�I�l�� 1981 UPDATE 1739� •• W�LMINGTON-NEW HANOVER COMPREHENSIVE PLANNING PROGRA1v1 April 21, 1981 Mr. Kenneth D. Stewart, Director Office of Coastal Management North Carolina Department of Natural Resources and Community Development P. 0. Box 27687 Raleigh, North Carolina 27611 Dear Mr. Stewart: On behalf of the City of Wilmington and New Hanover County, we are pleased to submit the 1981 Update to the "Policies for Growth and De- velopment." These policies have been endorsed by the Wilmington Planning Commission and the New Hanover County Planning Board, and adopted by City Council and the County Commissioners. These revised Policies represent our commitment to planning for the orderly growth of the City and County. In preparing the original 1976 plan and this 1981 Update, numerous public meetings were held to see that the plan is responsive to the wishes of area residents, and to emerging trends and issues. Through adoption of this update to our local Plan and Policies, we are acting to reinforce their role as principles to guide decision making at all levels of City and County government. As such, we hope they pro- vide a clear statement for use in dealing with matters related to the growth and development of our area. We look forward to continued cooperative efforts with your office and the Coastal Resources Commission in the Coastal. Area Management Pro- gram. aS� Donald P. Blake, Chairman Board of Commissioners New Hanover County Adopted March 22, 1982 Ben B. Halterman, Mayor City of Wilmington Adopted December 15, 1981 As Amended April 13, 1982 CITY COUNCIL COUNTY COMMISSIONERS Ben B. Halterman, Mayor Donald P. Blake,. Chairman William Schwartz Mayor -Pro Tem Howard L. Armistead, Jr., MD, Vice Chairman Donald H. Betz Karen E. Gottovi Luther Jordan Jonathan Barfield Tony Pate Claud O'Shields, Jr. Ralph W. Roper George Felix Cooper, County Manager E. A. Bordeaux Gary Cannon, Assistant County Manager Robert G. Cobb, City Manager William B. Farris, Assistant City Manager CITY PLANNING COMMISSION Hamilton E. Hicks, Jr., Chairman Katherine Hoyt, Vice Chairman Jim Barker Louise Gorham George Hawes Dan D. Retchin Roger L: Gause Arcelia Wicker, Sr., Associate Director of Planning - COUNTY PLANNING BOARD Richard Sniffen, Chairman Larry Flowers, Vice Chairman J. D. Orrell, Jr. Jim Sandy Kay Sebian Maurice E. Wester James Whitted. Dexter Hayes, Planning Director STAFF PROJECT TEAM Glenn R. Harbeck, Senior Planner, City of Wilmington Michael L. Hargett, Staff Planner, City of Wilmington Dale Lambert, Staff Planner, City of Wilmington Kenneth Silliman, Staff Planner, New Hanover County PUBLIC PARTICIPATION Jill Rotz-Keech GRAPHICS Lynn Golston and Jeff Jeffords SECRETARIAL Dorothy M. Chavious and Julie Weiss Wilmington Planning Department 19 North Fifth Avenue P.O. Box 1810 Wilmington, N.C. 28402 New Hanover County Planning Department Room 403 320 Chestnut Street Wilmington, N.C. 28401 "The preparation of this document 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 Adminis- tration." CONTENTS PAGE INTRODUCTION . . . . . . . . . . . . . . . . . . . . 1 CAPSULE SUMMARY: WHAT THE PLAN RECOMMENDS . ., . . . . 2 1. Capital Improvements Programs . . . . . . . . . 2 2. Zoning Ordinances . . . . . . . . . . . 2 3. Subdivision Regulations . ..... . . . . . . . . . 3 4. Special Area Development Plans and Projects . . . . . . . . 3 SPECIAL ISSUES . . . . . . . . . . . . ... . . . . . . . . . . . 5 FUTURE LAND USE AND DEVELOPMENT GUIDE . . . . . . . . . . . . . . 6 1. Purpose 6 2. Land Classification•System 6 a. Developed . . . . . . . . . . . . . . . . .. 6 b. Transition . . . . . . . . . . . . . . . . . 7 c. Community . . . . . . o 7 d. Conservation . . . 7 e. Rural -. . . _. 8 8 3. Detalied Land-UseCategories . . . . ... POLICIES FOR GROWTH AND DEVELOPMENT . . . . . . . . . . . . . . . 10. 1. Economic and Community Development Policies . . . . . . 11 1.1 Economic Development (Kinds of Industry Desired; Influence on Area Incomes & Employment) . . . . . 11 1.2 Economic Efficiency/Energy Conservation (Cost - Effective Provision of Urban Services; Location of Urban Development . . . . . 14 1.3 Land Use (Guidance for the Location of Various Land Uses: Residential, Office & Institutional, Commercial, Industrial, Transportation -Communication - Utilities, Recreation & Open Space) . . . . . . . . . 18 2. Resource Protection Policies . . . . . . . . . . . . . . . 26 2.1 Estuarine System Areas (Protection of Wetlands & Public Waters; Relationships of Runoff, Drainage and Sewage Treatment) . . . . . . . . . . 26 2.2 Ocean Hazard Areas (Oceanfront Development; Beach Erosion; Channel Maintenance) . . . . . . . . . . . . 28 2.3 Other Natural & Man -Made Hazards/Development Limitations (Flooding, Soil Limitations; Hazard- ous Facilities) 30 2.4 Ground Water Resources•(Protection of Ground*Water; Threatening Activities) . . . . 33 2.5 Archaeological & Historic Resources (Historic Structures & Neighborhoods; Tourism Potential; Archaeological Sites) . . . . . . . . . . . . . . . 34 3. Resource Production Policies 37 3.1 Re Con Agricultural and Forestry sources (servation of Productive Farmlands and Woodlands) . . . . . . . . . 37 CONTENTS (Cont'd.) PAGE 3.2 Mineral Resources (Mineral Production) 38 3.3 Fisheries Resources (Commercial & Recreational Fisheries; Relationships to Coastal Ecosystem) . 39 3.4 Off -Road Vehicles (Proper Use in Sensitive Areas) . . . 40 4. Public Participation (Education; Input; Opportunities for Continuing Involvement) . . . . . . . .. . . . 41 AMENDING THE PLAN . . . . . . . . . 43 1. Form of Application . . . . . . 43 2. Jurisdiction . . . . . . . . . . . . . . . . . . . . . . . 43 3. Form of Review . . . . . . . . . . . . . . . . . . . . . 43 SYNOPSIS/FUTURE LAND USE MAP . . . . . . . . Back Page Envelope INTRODUCTION The Wilmington -New Hanover Land Use Plan is an official public document adopted by the City Council and County Commissioners as a long-range general policy to guide decisions concerning primarily the .physical development of. the City and County. The Plan is designed to provide guidance to City and County governments as they prepare and consider: 1. Capital Improvement Programs and Investments 2. Zoning Map and Text Amendments 3. Subdivision Proposals and Ordinance Amendments 4. Special Area Development Plans and Projects 5. Other Development Controls The Plan also communicates a statement of local government policy which may be used by citizens and private organizations as they design development proposals and respond to matters under consideration by the governing boards. As an official policy instrument of the City Council and County Commissioners, the Plan is also useful to regional, state and other governmental agencies which provide for facilities or services in the Planning Area. While the Plan is not law in the sense of an ordinance, it is adopted, amended and updated by formal action of City Council and the County Commis- sioners. This plan represents the first "update" to the original Policies For Growth and Development as adopted by Council and the Commissioners in T976, and as developed under provisions of the North Carolina Coastal Area Manage- ment Act. The CAMA legislation requires that local governments prepare and update land use plans at least once every five years. As such, the Plan builds on an existing data base and policy framework first established some five years ago. To account for any changes that may have occurred in the Planning Area in the meantime, however, several technical studies regarding the past and present growth of the County were prepared. These studies, which appear under separate cover as Technical Reports 7, 8 and 9, provide the necessary statistical basis for the 1981 Plan update. Finally, a summary document entitled Growth Issues and Future Alternatives was prepared to document the public particip ioat n program for the plan, to identify and discuss growth issues, and to present several growth alternatives for the Planning Area. CAPSULE SUMMARY: WHAT THE PLAN RECOMMENDS For the Land Use Plan to be effective, all of the policies and imple- mentation actions contained in the Plan should work in concert toward a common growth and development goal. The 1981 update to the Wilmington -New Hanover Land Use Plan recommends the continuation of the phased expansion land development policy identified for the 1976 Plan. This policy is designed to encourage urban level development to take place within a defined urban services area; where public water and sewer, and police and fire protection are either now available or can be developed within the next ten years as conditions warrant. This policy has three major ojbectives: 1. To ensure that urban -level development has the necessary public services to serve it; 2. To ensure that the taxpayers costs for providing these services are minimized; and 3. To promote efficient utilization of scare land and energy resources while preserving the quality of life of area residents. Achieving these objectives will mean that City and County governments commit resources to accomplish the following major tasks within the next five years. More specific recommendations for action are contained in the body of the Policies. (1) CAPITAL IMPROVEMENT PROGRAMS The effectiveness of the Urban Services Area concept outlined above depends on City and County governments acting to incorporate this general growth policy into their next, respective Capital Improvement Programs. These local government schedules for capital investments should explicitly reference the urban services area policy and should budget and plan expenditures accord- ingly. City and County government should establish criteria which specify the circumstances under which services can be provided by the private sector (i.e., water, sewer, police, fire). Specifically, the development of water and sewer lines should not be extended beyond the limits of the urban services area boundary, within the ten year planning period (1990). The capacities of planned water and sewer facilities should be limited to a twenty-year design period to further discourage unnecessary and costly utilities extensions. Pricing policies on the extension of public improvements within the services area should encourage compact and efficient growth, with an eye toward targeting priority areas. Priority areas would include (1) existing neighborhoods requiring infrastructure improvements to encourage conservation and rehabilitation, and (2) those currently undeveloped areas where urban growth should be encouraged to take place first. (2) ZONING ORDINANCES Generally, local zoning ordinances should be amended or rewritten to provide greater development flexibility and to encourage more development at urban densities where services are available. Both City and County ordinances -2- will have to provide for more intensive review of development in environmentally sensitive areas. The.ordinances should be thoroughly examined with the intent of eliminating outdated or unnecessary provisions which drive up the cost of housing and development. . Specifically, the ordinances should be revised to allow for clustered housing on appropriate lands within the urban services area. Areas outside the services area should be examined for the purpose of encouraging lower develop- ment densities. At the same time, greater development densities should be allowed and encouraged on proper locations inside the services area. In an effort to focus in on the protection of truly fragile areas, development performance standards for floodplains, aquifer recharge areas, and estuarine areas should be established. These standards would be applied through an "environmental special use permit" for developments occurring only within these most sensitive areas. The County's "critical aquifer recharge area" must be zoned for very low density development. Finally, controls applicable to development along arterials should be instituted to minimize the traffic safety, visual blight and energy problems associated with strip development. (3) SUBDIVISION REGULATIONS Generally, both City and -County subdivision regulations should be amended to achieve greater uniformity in improvements requirements applicable to urban - type development. The ordinances will have to be reconciled with the increasing use of flexible zoning techniques, and should be studied for their impact on land development and building costs. The County regulations must be revised to incorporate better review of drainage improvements. Technical specifications for drainage facilities on poor soils must be developed and applied. Proposed systems of drainage should be required to conform as closely as possible with natural drainage. Provisions for private sector (e.g., homeowners associations) responsibility for continued maintenance of drainage improvements should be instituted for all new subdi- visions not served by a City or County maintenance program. (4) SPECIAL AREA DEVELOPMENT PLANS AND PROJECTS In addition to actions on capital improvements and development controls, the Land Use Plan calls for local government initiatives in three other major subject areas: economic development, ground water management and land drainage master planning. In the area of economic development, efforts should be taken to encourage a more active participation by local governments. The City in particular should design a strategy which addresses both commercial and industrial de- velopment. Specifically, this program would require that City development and building controls be carefully examined to insure that economic development activities are accommodated to the maximum extent while retaining a consistency with sound development practices.: The continued expansion of areas served by public water and sewer and other urban -type services (whether by City annexation or County provision of services) will create additional opportunities for economic development, thereby allowing continued increases in the total tax base. -3- Development projects.which generate private investment, such as parks or a civic center should continue to be investigated and implemented. The City should provide technical assistance and staff support to coordinate financial assist- ance from outside sources. When cost effective, the financial resources of the City should be utilized as seed money to attract and retain vital businesses. The County should continue with efforts to promote those economic de- velopment opportunities that will add to the quality of life of area residents, and that are compatible with the renewable natural resources of the area. The County -wide water and sewer plans should be designed and carried out to ex- plicitly recognize the needs of industry as well as residential development. A second major area of interest is the County's ground water resources. A carefully thought out management plan for the near and long term protection and use of surficial and 'deep aquifer' ground waters is badly needed. Land use activities which could contaminate or diminish the County's ground waters should be carefully controlled. Extensive land drainage and impervious surface areas must be prohibited in critical recharge areas. Finally, efforts to develop a comprehensive plan for drainage improve- ments in the unincorporated County must be continued. Local government and private sector responsibilities must be specified and programmed. In pre- paring the plan, consideration must be given to the impacts that extensive drainage can have on ground water, the estuaries and other valuable natural and economic resources. 0 -4- SPECIAL ISSUES The Coastal Resources Commission identified several special issues applicable to the Wilmington/New Hanover area. The technical studies and policies associated with these issues are separately summarized below. Oil refinin impacts are discussed at length in the Growth Issues and Future AIternatives document (Section IV-A.4.)'. Refinery impacts are further ad3 resse in the Policies For Growth and Development under Industrial Land Use Policies (Section .34 2) and Hazard and Development Limitation Policies (Section 2.3(3) and 2.3(4)). These.policies address the location of refineries and management plans for dealing with accidents. Port facilities are discussed in the Growth Issues under Section IV-A.3. They are addresse in the Policies under Economic Dever opment (Policy 1.1(7)) which encourages the siting of industries and businesses requiring access to Wilmington Harbor and the Cape Fear River. Also, Transportation policy 1.35(4) requires local governments to support the continued development of the Harbor and the State Ports Authority. Him improvements are discussed in Section IV-A.2. of the Growth Issues document and are addressed in the Polici.es..under Transportation policy 1.35(2) and Economic Development policy 1.1 8 . . Water guzLlit near residential development is a major subject in the Classification of Soils in New Hanover County for Septic Tank Suitability (Technical Report No. 9 , particularly Section IV. of that report. Water quality relationships to residential development is addressed in the Policies under.Ground Water Policies 2.4(1) and 2.4(2); additionally, policies contained in Section 2.1 (estuaries), 2.3 (hazard and development limitation), and 1.31 (residential land use) are also relevant. -5- FUTURE LAND USE AND DEVELOPMENT GUIDE (1) PURPOSE An integral part of the Policies For Growth and Development is a General Development Guide for the Planning Area in map form. (This map may be found in the back page envelope.) The guide consists of two parts. The first part contains five broad land classification categories (Developed, Transition, Community, Rural and Conservation) that were adapted from the Coastal Area Management Act's land use planning guidelines. By assigning the land classes to specific parts of the County, the map shows visually where and at what density growth should occur, and where significant natural resources should be con- served. The land classification map also shows the extent of the "urban ser- vices area" beyond which local governments will not provide public water, sewer and other urban services within the next ten years. The second part of the General Development Guide is comprised of tra- ditional. land use categories (e.g., residential, commercial, industrial, etc.) showing the acceptable location and interrelationships of various land uses. These detailed land use categories are designed to aid local government decision makers as they deliberate specific land use and development proposals (i.e., zoning petitions, special use permits, etc.). __ It should be noted that the detailed land use categories are designed for use as a general guide in aiding local land use decisions only. Additionally, if an inconsistency or conflict with the detailed land use should develop, no formal plan amendment would be necessary. The land classification system, on the other hand, is heavily used and relied upon by state and federal agencies (as well as by local governments) in making decisions concerning public in- vestments in facilities, services and development proposals in the Planning Area. Changes to the land classification map require a formal amendment in- volving local government and the North Carolina Coastal Resources Commission. Following is a description of the five land classes and the eight de- tailed land use categories. (2) LAND CLASSIFICATION SYSTEM a. Developed The purpose of the Developed class is to provide for continued intensive development and redevelopment of existing urban areas. Areas classified as Developed include lands currently developed for urban purposes at or approaching an average density of 500 dwell- ings per square mile that are provided with usual municipal or public services. Services include at least public water, sewer, police and fire protection. This class also includes certain areas which exceed the minimum density, but which do not currently have urban services; these areas will need such services in the near future. 10 b. Transition The purpose of the Transition class is to provide for future intensive urban development within the ensuing ten years on lands that are most suitable and that will be scheduled for provision of necessary public utilities and services. Transition lands also provide for additional growth when additional lands in the Developed class are not available or when they are severely limited for development. The combination of lands in the Transition and Developed classes forms the Urban Services Area. The Urban Services Area delineates that portion of the County beyond which public utilities and services will not be provided during the next ten years. Transition areas are located in a compact pattern around the City of Wilmington in accordance with the recommended policies. This development pattern will permit optimum efficiency in land utilization and the delivery of public services such as sewage collection and treatment, water supply, and -police and fire protection. C. Community The purpose of the Community class is to provide for "crossroads" type land development to help meet housing, shopping, employment and public service needs within the rural areas of the County. Community areas cannot lie within Developed, Tran-tion or Conservation areas. Lands.to be classified Community are those areas within the rural areas of the planning jurisdictions characterized by a small grouping of mixed land uses (residences, general store, church, school, etc.), and which are suitable and appropriate for small clusters of rural development not requiring municipal -sewer service. Three "Rural Communities" have been designated on the Land Classi- fication Map: Castle Hayne, Ogden and Wrightsboro. d. Conservation The purpose of the Conservation class is to provide for effective long-term management of significant limited or irreplaceable areas. This management may be needed because of its natural, cultural, re- creational, productive or scenic values. Lands to be placed in the Conservation class are generally the least desirable for development because: 1) They are too fragile to withstand development without losing their natural value; and/or 2) They have severe or hazardous limitations to development; and/or 3) Though they are not highly fragile or hazardous, the natural resources they represent are too valuable to endanger by development. -7- Generally, marshes and adjacent lands within the 100-year floodplain and the County's critical acquifer recharge area have been classified as "Conservation." Conservation areas should be preserved in their natural state; woodland, grassland and recreation areas not requiring filling are the most appropriate uses. Exceptions to this standard are limited to water -dependent uses (i.e., uses that cannot function elsewhere), shared industrial access corridors, and those exceptional development proposals which are sensitively designed so as to effectively preserve the natural functions of the site. The following guidelines clarify these Conservation area objectives: 1. Water dependent uses may include: utility easements, docks, wharfs, boat ramps, dredging, bridge and bridge approaches, revetments, bulkheads, culverts, groins, navigational aids, moorings, pilings, navigational channels, simple access channels and drainage ditches. In instances where a water -dependent use involves coverage of sizeable land areas, a reclassification removing the property from the Conservation class may be needed. Consequently, reclassification may be needed for major warehouse/shipping operations along the Cape Fear River, where extensive loading, handling and storage areas consume relatively large land areas and afford limited opportunities to integrate the use with the site's natural features. By contrast, water dependent uses which can be designed to preserve a site's natural features will not require reclassification. 2. Shared industrial access corridors, as discussed in the U.S. Army Corps' of Engineers' The Wilming on Har or: Plan —for Improvement, would provide necessary access to the channel of the Northeast Cape Fear River for industries located on high ground while minimizing the adverse environmental impacts of. such access. 3. Exceptional developments preserving natural features are sensitively designed so as to harmonize with the site's natural features; i.e., they minimize erosion, impervious surfaces, runoff and siltation; do not adversely impact estuarine resources;.do not interfere with access to or use of navigable waters; do not require extraordinary public expenditures for maintenance; insure that ground absorption sewage systems, if used, meet applicable standards; and do not damage historic, architectural or archeological resources. e. Rural The purpose of the Rural class is to provide for agriculture, forest management, mineral extraction and other low intensity uses. Two subclassi- fications of this category are established. 1. Rural -Services provides for low density rural residential land use with the provision of public water and sewer. This subclassification is made to preserve and protect a unique or sensitive environment where natural, historical, aesthetic, .scenic, wildlife and recreational resources are valued. Urban density or other incompatible development that would damage the rural lifestyle and environment are discouraged. 2. General Rural provides for low density residential land use not requiring urban services. A U.iitionally, compatible business and industry, with or without urban services, may be located within General Rural areas provided that natural resources will not be permanently impaired. The General Rural subclass includes all lands not in the Developed, Transition, Community, Rural - services and Conservation classes. (3) DETAILED LAND USE CATEGORIES The traditional land use categories show what use is desirable for any land in the Planning Area without reference to a specific future time frame. The location of specific land uses is based on established planning principles for the given use. The land categories are: a. Urban Residential All dwelling units built at an urban type density (i.e., resi- dential subdivisions having an avera a net development density of less than 15,000 square feet per'dwelling unit}. b. Rural Residential All dwelling units built at a rural type density (i.e., less dense than as noted above). c. Office and Institutional Activities such as schools, churches, museums, art galleries, hospitals, architectural and engineering firms, and law and governmental offices. d. Commercial Establishments involved in retail trade and the furnishing of personal services. e. Trans ortation, Communication and Utilities Faci sties for rail, air, water, transit and motor freight trans- portation, communications, and electric, gas and sanitary services. f. Industrial Identifies areas for extensive industries (e.g. textiles, fab- ricated metals, chemicals, and lumber and wood products),intensive industries (e.g., machine'shops, print shops and apparel manufacturers or warehousing, storage and distribution). g. Rural Production Areas of remaining significant undeveloped farmlands and woodlands. h. Parks and Recreation Primarily public and private outdoor recreation facilities, and open space areas. A color map showing the detailed land use categories is available for public inspection at the Wilmington Planning Department. NOTE: IT IS IMPORTANT THAT BOTH THE LAND CLASSIFICATION SYSTEM AND DETAILED LAND USE CATEGORIES BE USED HAND -IN -HAND WITH THE WRITTEN POLICIES FOR GROWTH AND DEVELOPMENT THAT FOLLOW. POLICIES FOR GROWTH AND DEVELOPMENT Policy Format Each major policy category in the 1981 update to the Policies for Growth and Development is addressed according to the following format: a. Discussion - A brief summary of the issues and relevant findings. b. Policies - One or more statements of principle designed to achieve legitimate public objectives related to the issue. C. Implementation Actions - Assignable actions designed to carry out The Policies, and which can be accomplished within the 1981 to 1985 time frame. IT IS IMPORTANT TO UNDERSTAND THAT DISCUSSION AND IMPLEMENTATION ACTIONS ARE NOT POLICIES AND DO NOT CARRY THE SAME DEGREE OF INFLUENCE AS THE ACTUAL POLICY STATEMENTS. The narrative in each Discussion section is designed to provide back- ground and rationale for the ensuing Policy statements. In most instances, the Discussion serves to identify a problem or issue, and may present a summary of findings from other technical studies. There is no intent to establish policy within any Discussion section. Short-term (i.e., within five years) implementation actions are designed to suggest several possible courses of action available to the City and/or County government to carry out the Policies. The suggested actions are not intended to be all-inclusive nor are they binding. In other words, as con- ditions change, additional actions may be added to the list and others removed. The Policies (Section b. of each item), on the other hand, must be viewed in a wholly different light. As statements of local government principle, the Policies should remain substantially unchanged during the planning period. Frequent changes to the Policies would undermine their effectiveness in achiev- ing intended goals and objectives. Indeed, the Policies are designed to main- tain a consistent and predictable direction for local government decisions affecting the physical growth and development of the Planning Area. Therefore, in reviewing the pages that follow, the reader is asked to focus greatest attention on the Policies, while relying upon the Discussion and Implementation Actions primarily as explanations as to intent. -10- 1. ECONOMIC AND COMMUNITY DEVELOPMENT POLICIES Introduction This section is concerned with those issues associated with the develop- ment and redevelopment of the Wilmington -New Hanover Planning Area. The issues are grouped under three major policy headings: (1) economic development, (2) economic efficiency/energy conservation, and (3) land use. The economic development category primarily addresses the type of growth desired; local governments must decide which mix of basic industries and estab- lishments is most appropriate for the Planning Area. The impact of economic growth on area incomes and costs of living is an integral part of this policy area. The second category encompasses policies associated with the distri- bution, intensity and rate'of development. The intent is to insure that the productsofnew construction, rehabilitation and conservation efforts are both economic and energy efficient. The third policy area, land use, is primarily concerned with the re- lationships between different forms of development. All three policy areas recognize the impor ant role that transportation and water and sewer improvements can play in shaping future growth. 1.1 ECONOMIC DEVELOPMENT a. Discussion Economic development is defined as "increasing economic choice for area residents." In turn, "economic choice" is increased when the growth of average incomes.exceeds the growth of average living ex- penses, making a greater range of goods and services within the eco- nomic reach of area families. Under these definitions, economic development policies should work toward increasing incomes while holding down basic living costs. Consideration of living expenses is. important, for the achievement of rising area incomes means nothing if the rises are offset by equal or greater increases in the cost of essentials. Incomes of area households have improved significantly in recent years. Yet in spite of the Planning Area's economic gains, there also remains a substantial number of families which are economically dis- advantaged. These "poor" families are predominantly Black and are mostly within the City limits. A large percentage have female house- hold heads. Studies of the local economy have shown that rising incomes are closely paralleled by an increase in the number of people employed in the manufacture of durable goods. Durables employment is generally characterized by higher technical skill requirements, higher produc- tivity and higher wages. -11- Employment in the.Wilmington SMSA in 1978 totalled over 56,000; manufacturing, wholesale and retail trade, and service industries accounted for 40,500 employees. (Brunswick Energy Company, Environ- mental Report, September, 1980, Table 3-1.) Many of these and other jobs are associated with the Port facilities within.Wi lmington Harbor. Current annual tonnage handled at the Port exceeds 10 million tons. Studies indicate that North Carolina receives benefits of over $100 per ton from.its Port business. The Wilmington Port, therefore, generates at least one billion dollars annually for North Carolina, much of which is retained in Wilmington and New Hanover County. Additionally, highway, rail and air transportation facilities represent important means of bringing business and commerce to Wil- mington. Within the Planning Area, the continued development and maintenance of such facilities is essential to the economic viability of the Wilmington urbanizing area. The expansion of the Planning Area's tourism trade has made a significant contribution to area incomes. In 1980, travelers spent about $100 million in New Hanover County. In 1978, almost 5,000 owners and workers were employed in over 600 travel -related businesses in New Hanover County. (Brunswick Energy Company, Table 3-6.) Finally, economic, development pol-is"ies must protect the capital investments of the Planning Area's res'rents. Since homes and busi- nesses are the major capital investments of most area residents, the policies must minimize threats to the stability of these investments. Locally, this requires attention to the disinvestment taking place in some older commercial and residential areas in the City of Wil- mington (e.g., Bottom, Southside, Northside-Market). Whenever there is high unemployment and low income, there is little money for property maintenance and improvements after basic living or operating expenses are met. As residential or commercial properties deteriorate, the market responds by downgrading property values and the economic situa- tion of area residents necessarily declines. Compounding this problem, when the banks and insurance companies review these neighborhoods, their loan policies are adjusted to reflect the additional risks. The issues identified above are recognized as having an impact on the area's economic development, but to date City and County govern- ments have only been able to respond in a reactive way. Economic development efforts within the community and even within the City are not well integrated, nor has either government been playing a leading role. The policies should work to encourage a more active and positive approach to economic development by local governments. b. Economic Development Policies 1.1(1) ENCOURAGE THE LOCATION OF INDUSTRIES AND, WHICH HAVE THE EFFECT OF DIVERSIFYING THE WHICH REQUIRE A MORE HIGHLY SKILLED LABOR HAVE THE OVERALL EFFECT OF INCREASING THE INCOMES. ESTABLISHMENTS LOCAL ECONOMY, FORCE, AND WHICH AREA RESIDENTS' -12- 1.1(2) ENCOURAGE BUSINESS EXPANSION AND NEW DEVELOPMENT THAT WILL RELIEVE EXISTING UNEMPLOYMENT AND UNDEREMPLOYMENT PROBLEMS. 1.1(3) ENCOURAGE THE DEVELOPMENT AND COORDINATION OF EDUCATIONAL AND TRAINING PROGRAMS SO THAT UNEMPLOYED AND UNDEREMPLOYED LOCAL RESIDENTS CAN TAKE ADVANTAGE OF BUSINESS EXPANSION AND NEW DEVELOPMENT. 1.1(4) ENCOURAGE AND PROTECT THE CONTINUED GROWTH OF THE AREA'S TOURISM INDUSTRY. 1.1(5) LOCAL GOVERNMENTS, THROUGH THEIR ACTIONS, SHALL HELP DISCOURAGE THE -GROWTH IN -COSTS OF BASIC LIVING EXPENSES, PARTICULARLY HOUSING, TRANSPORTATION AND ENERGY COSTS. 1.1(6) ENCOURAGE AND STIMULATE PRIVATE INVESTMENT IN DESIRABLY LOCATED EXISTING COMMERCIAL AND RESIDENTIAL AREAS. 1.1(7) ENCOURAGE THE LOCATION AND ESTABLISHMENT OF INDUSTRIES AND BUSINESSES REQUIRING PROXIMITY TO WILMINGTON HARBOR AND THE CAPE FEAR RIVER; PROVIDED THAT USES THREATENING THE PLANNING AREA'S ENVIRONMENTAL QUALITY OR THE HARBOR'S EFFICIENT USE SHALL BE DISCOURAGED. 1.1(8)- ENCOURAGE AND FOSTER THE DEVELOPMENT OF AN EFFICIENT SYSTEM OF HIGHWAY, RAIL, AIR AND WATER TRANSPORTATION. 1.1(9) THE ENCOURAGEMENT OF ECONOMIC DEVELOPMENT AS OUTLINED ABOVE -SHOULD BE BALANCED AGAINST THE POSSIBLE DETRIMENTAL"EFFECTS SUCH EXPANSION AND DEVELOPMENT MAY HAVE ON THE QUALITY OF LIFE ENJOYED BY AREA RESIDENTS. C. Implementation Actions 1) Local governments will continue to provide technical infor- mation to local organizations interested in attracting suitable in- dustries and establishments to the Planning Area. 2) Local governments will study the locational requirements of preferred (e.g., high growth, environmentally compatible, etc.) in- dustries likely to increase area incomes and shall incorporate these requirements into the land ude planning process. . 3) In amending current land use controls, and prior to enacting new controls, local governments will consider the impact of such controls on area development costs. 4) Local governments will incorporate "economic development" as an objective of capital improvement programs. 5) Local governments will support the development of training programs directed toward relevant skills for the production of future employees in skilled jobs. 6) Local governments will seek the cooperation,of adjacent counties and municipalities in the reduction of transportation expenses (e.g., through development of an areawide ridesharing program). -13- 7) As part of an overall economic development strategy, local governments will determine which industry segments can best provide entry-level positions for unemployed and underemployed persons. 8) Local governments will investigate cost effective economic incentives to stimulate commercial investment in developed areas (e.g., the CBD). Incentives could include, for example, the following: site acquisition, site improvement, financial assistance, technical services and staff support. 9) Local governments will continue to attract and coordinate both public and private loans, grants and programs for the rehabilitation of salvageable buildings. 10) The significance of thoroughfare, harbor, airport and other transportation improvement plans will be emphasized during preparation of capital improvements budgets and staff reviews of development pro- posals. 11) City policies regarding extension of water and sewer lines will be publicized to encourage economic development in or near the City. 12) Local governments will develop specific criteria designed to determine which industries are compatflM with the protection, conser- vation and enhancement of the County's natural and scenic resources. 1.2 ECONOMIC EFFICIENCY/ENERGY CONSERVATION a. Discussion The location of uses, the intensity of development and the means by which public improvements are financed are all key cost and energy elements. Development densities and the degree to which different kinds of uses are integrated largely govern the cost, distance and energy use for travel. Mixing of land uses, when appropriate, can reduce travel and make provision of public transportation facilities and services economical. Experience in New Hanover County, as well as other areas, in- dicates that unsupervised development would occur in a widely scattered pattern. In some cases, sprawling development patterns may render the provision of needed services uneconomical. Conservation, rehabilitation and redevelopment activities in the urbanized areas of Wilmington are all economic and energy -efficient alternatives. to sprawled growth in outlying areas. Population growth in developed areas can be served by previously built and paid for public infrastructure. Additionally, resettlement of areas which are currently losing population can stabilize those areas and protect the economic value of existing private and public buildings, water and sewer lines, streets and other improvements already in place. -14- Moreover, there are indications that the housing market is be- ginning to encourage more dense development patterns. The population and economic section of the 1981 CAMA Land Use Plan (Technical Report No. 7), for example, has identified a growing demand throughout the 1980's for owner -occupied multi -family units. Apart from the location and intensity of development, there are economic issues relating to the rate of development. These are pri- .marily timing problems; the rate of growth may simply outstrip the Planning Area's ability to provide essential services such as sewer and water, drainage, schools and police and fire protection. Locally, the demand for more dense development in.the Planning Area will place added I ressure on New Hanover County to provide sewer, water and drainage systems, or on the City of Wilmington to annex adjacent areas and provide these services. Finally, there are economic and energy issues associated with the design and construction of both new and existing development. Re- garding construction, recent studies have shown that approximately 40 percent of U.S. energy consumption is used to heat, air-condition, Tight and provide hot water for homes, commercial structures and factories. The increasing significance of solar energy requires local governments to begin educating the public about the positive options and unique -benefits offered by this energy source. The policies that follow are guidelines for action on the issues discussed above. Three terms used.frequently in the policies- "urban development'.', "urban services" and "urban services area" - are defined as follows: Urban development - all residential subdivisions having an average net residential density less,than 15,000 square feet per dwelling unit (i.e., less than 15,000 square foot lots). Urban services - includes City or County water and sewerage, City or County stained drainage, and City police and fire protec- tion. Equivalent services provided by a developer must be approved by local government for future compatibility with planned public facilities. Urban services area - a defined geographic area identified on the Future Land Use and Development Guide by all lands designated "Developed" or "Transition", and beyond which urban services shall not be provided within the 10-year planning period (1990). b. Economic Efficiency/Energy Conservation Policies 1.2(1) PUBLICLY FINANCED URBAN SERVICES SHALL BE CONCENTRATED WITHIN THE GEOGRAPHIC LIMITS OF A DEFINED URBAN SERVICES AREA. THE BOUNDARY OF THE URBAN SERVICES AREA SHOULD ONLY BE EXPANDED WHEN THERE IS A DEMONSTRATED PUBLIC NEED. -15- 1.2(2) FUTURE URBAN DEVELOPMENT SHALL BE ENCOURAGED TO LOCATE IN GEOGRAPHIC AREAS WHERE URBAN SERVICES ARE ALREADY IN PLACE OR, SECONDARILY, WHERE URBAN SERVICES CAN BE.READILY PROVIDED. 1.2(3) EXISTING URBAN DEVELOPMENT NOT PROVIDED WITH URBAN SER- VICES SHALL RECEIVE PRIORITY IN THE DEVELOPMENT OF NEW SERVICES AND THE EXPANSION OF EXISTING SERVICES. 1.2(4) AREAS OUTSIDE THE DEFINED URBAN SERVICES AREA SHOULD NOT CONTAIN URBAN DEVELOPMENT, I 1.2(5) THE TIMING AND LOCATION OF CAPITAL IMPROVEMENTS EXPEN- DITURES AND CONSTRUCTION WITHIN THE URBAN SERVICES AREA. SHALL BE TARGETED TO PRIORITY AREAS AS DETERMINED BY LOCAL GOVERNMENT. 1.2(6) MULTI -USE CENTERS AND MULTI -USE BUILDINGS SHALL BE EN- COURAGED WHEN APPROPRIATE. OPPORTUNITIES SHOULD BE PROVIDED�FOR SOME POPULAt_ION'�SUBGROUPS (e:g., ELDERLY) TO LOCATE ADJACENT TO COMMUfflTY AND REGIONAL COMMERCIAL CENTERS AND COMPATIBLE LIGHT INDUSTRIES. 1.2(7) LOCAL GOVERNMENTS SHALL EDUCATE THE PUBLIC AND ADVISE THAT ENERGY CONSERVING FEATURES BE USED IN NEW AND EXISTING STRUCTURES AND DEVELOPMENTS. 1.2(8) LOCAL GOVERNMENTS SHALL NOT ABSORB COSTS STEMMING FROM INEFFICIENT OR ENVIRONMENTALLY UNSOUND LAND DEVELOPMENT. 1.2(9) LOCAL GOVERNMENTS SHOULD COOPERATE WITH THE PRIVATE SECTOR TO ENCOURAGE RESOURCE RECOVERY ENTERPRISES. 1.2(10) PLANS, POLICIES, PUBLIC INVESTMENTS AND REGULATORY TOOLS SHALL BE COORDINATED AS APPROPRIATE WITH THOSE OF ADJACENT COUNTIES AND MUNICIPALITIES, AND WITH THOSE OF OTHER GOVERNMENT LEVELS. C. Implementation Actions r 1) The Urban Services Area concept will be carried out through 5- 10 year Capital Improvements Programs. Extensions of water and sewer and other urban level services will be contained within the services area boundary. 2) City and County governments will work to develop more uni- formity, as appropriate, in developing regulations applicable to urban development. -16- 3) City government will continue with recent efforts to allow more flexibility in development standards, thereby encouraging economic growth in the City...: 4) County government will employ zoning and other measures to discourage urban development outside the Urban Services Area. 5) As provided for in the North Carolina Machinery Act, the differing development potentials of land lying within and outside the Urban Services Area will be fairly reflected by the County Tax Office in the property appraisal for tax purposes. 6) Local governments will work to allocate a greater percentage of City and.County lands within the Urban Services Area for more .intensive development when appropriate and as services become avail- able. 7) Capacities of planned water and sewer lines will be based on a 20-year design period as a proper reflection of the current value of future expenditures, and to discourage uneconomic urban sprawl. 8) City and County Zoning Ordinances will be revised to provide for development flexibility; for example, planned unit development provisions could be added. 9.) Local governments will encourage developers to design streets and lots so that buildings in new developments can be oriented for natural heating and cooling. 10) County regulations will be revised to provide for homeowner's associations whenever a new subdivision creates an environmental problem (e.g., drainage) which demands periodic maintenance of sub- divisions, until the County assumes maintenance responsibility. 11) City water and sewer extension policies should be amended to explicitly reference and abide by the Urban Services Area concept. 12) Every effort will be made to see that sufficient opportunities are provided for the location of steam users proximate to proposed steam generating solid waste incineration facilities. 13) Rural residential areas (i.e. developed at average net density. of less than 15,000 square feet per dwelling unit) shall be zoned to prohibit higher density development. 14) When proposals for urban development are located in areas not presently served by urban services (but within the Urban Services Area) the developer shall be required to provide equivalent services in compli- ance with standards set by local government. -17- 1.3 LAND USE Identifying the proper location for various land uses is of utmost importance to ensure the continued livability of the Planning Area. Several important objectives must be considered in the allocation of areas for par- ticular land uses. Foremost among these objectives are the following: -- Satisfying the land area and locational requirements of the indi- vidual uses. -- Minimizing potential conflicts between types of uses. -- Ensuring the health, safety and welfare of citizens. In addition to these objectives, several other factors play a role in shaping the location of land uses. Perhaps the most significant locally is the limited amount of suitable land available for development. Although 59% of the Planning Area is undeveloped or used for agriculture, much of this land is either economically or environmentally unfeasible to develop, or is unavailable by decision of the property owner. In view of projected growth trends, com- petition by the different land uses for the remaining available land could be an obstacle in maintaining the amount of area needed for each category. Another factor is the presence of exis ip, ;uses. Existing development cannot be ignored -in the plac g iTt of other lames in adjoining areas. Similarly, emerging trends in land usage identified in studies such as the Analysis of Existin Land Use: 1980 and Population and Economic Growth and Future Land Use Needs_.-_F980-1990 should be recognized, ror examplle,TotTi reports note a steady increase in the demand for land devoted to Office and Institutional uses. This trend implies an increasing need for appropriate future land use and zoning allowances. Major growth shapers are another factor which influence the amount and location of land use needs. Completion of highway facilities such as the pro- posed I-40 port to Piedmont connector are expected to create direct and indirect development pressures along their corridors. In some instances, the impacts of growth shapers substantially alter the demand for certain land uses. Storage areas in conjunction with expansions in petro-chemical operations or port facilities are examples of induced demand. Finally, public policy plays a key role in the location of various land use types. In addition to making routine regulatory decisions affecting land use, public officials guide where and how various types of development occur. Public actions include the provision of public services, financial assistance and other incentives to the private sector, as well as regulatory controls on development. These factors provide a basis for the land use policies which follow. 1.31 RESIDENTIAL LAND USE a. Discussion Technical Report No. 7, Population and Economic Growth and Future Land Use Needs 1980 - 1990, estimates that t432 acres of addi- ti- o aT a�cn win -be needed for residential use during the 1980's. Inasmuch as this use represents the largest land requirement and is traditionally considered the most sensitive and restrictive of the categories, it warrants special consideration in the development of related policies. Residential areas should be located in a manner which affords the greatest flexibility in housing types while achieving efficiency in land usage, energy consumption and service delivery. Likewise, the health and safety of residents must be assured :from a +. natural and man-made hazards perspective. i! rj I b. Residential Land Use Policies 1.31(1) HOUSING NEEDS OF ALL AREA RESIDENTS SHALL BE METIIN A MANNER WHICH PROVIDES THE MAXIMUM RANGE OF CHOICE IN TYPE, DENSITY AND LOCATION WHILE PREVENTING ADVERSE IMPACTS TO THE ENVIRONMENT .:AND THE QUALITY OF LIFE. 1.31(2) PROTECTION AND REHABILITATION OF VIABLE NEIGHBORHOODS SHALL BE ENCOURAGED TO ENSME THEIR CONTINUED EXISTENCE AS A MAJOR HOUSING RESOURCE. 1.31(3) LAND USES CONSIDERED HARMFUL TO THE HEALTH, SAFETY AND WELFARE OF AREA RESIDENTS SHALL BE PROHIBITED FROM IN- FR NGING UPON THE LIVABILITY OF RESIDENTIAL AREA . E r 1 1.31(4) PROPOSED RESIDENTIAL DEVELOPMENT WHICH WOULD'EXPOSE RL I - DENTS TO HARMFUL EFFECTS OF INCOMPATIBLE DEVELOPMENT OR TO ENVIRONMENTAL HAZARDS SHALL BE PROHIBITED. C. Implementation Actions 1) Local governments will adhere to the annual goals outlined in local Housing Assistance Plans and shall ensure that annual updates are prepared as necessary. 2) Local governments will prepare annual reports regarding housing activity in their respective jurisdictions during the preceding year. 3) Financial assistance from applicable State and Federal pro- grams will be sought by local governments to fund local housing pro- grams on an ongoing basis. 4) Local governments will amend applicable regulatory tools such as the zoning ordinance, subdivision regulations and floodplain regu- lations to make them consistent with the Residential Policies as soon as is practically feasible. ' 5) Local governments will establish zoning areas suitable for higher density development. -19- 1.32 OFFICE & INSTITUTIONAL LAND USE a. Discussion Office and Institutional uses constitute the fourth largest user of developed land in the Planning Area. It is currently estimated as the highest employment category in New Hanover County and is projected to maintain that position through 1990. Thus, provision of sufficient office areas to satisfy the growing demand is an important considera- tion locally. Equally important to the provision of adequate area is the recognition of two important functions that office and institu- tional areas serve. First, they provide support services for commer- cial centers and other areas and secondly, they serve as transition areas between residential areas and more intensive uses. b. Office & Institutional Land Use Policy 1.32(1) THE TRANSITIONAL USE AND SUPPORTING SERVICE FUNCTIONS OF OFFICE AND INSTITUTIONAL -AREAS SHALL BE A PRIMARY CON- SIDERATION IN THE DESIGNATION OF THOSE AREAS. c. Implementation Action 1) The land use plan map as welY-as zoning ordinance text and map will reflect the following stated objectives of the 0&I category: -- To'provide an area of transition adjacent to residential areas to buffer residences from more intense activities such as major and minor thoroughfares, commercial areas or industrial sites. -- To provide space for office and related services in the vicinity of major activity centers such as large government complexes, commercial centers, educational and research facilities or in- dustrial parks. -- To provide for office and institutional uses in appropriate locations proximate to residential areas for energy -efficient commuting, provided that such uses are not an undesirable en- croachment. 1.33. COMMERCIAL LAND USE a. Discussion Employment figures and land use acreage data presented in the 1980 CAMA Land Use Plan Update technical reports indicate that commercial uses play an important role in the local economy. The Planning Area's position as regional trade center is expected to continue during the coming decade. In meeting the projected need for additional commercial areas, attention should be given to locating commercial activities in relation to their intended market. 504111 Other concerns regarding commercial land use are the adverse effects of encroachment into noncommercial areas and 'strip' develop- ment by commercial uses. Commercial traffic and parking on residential.. streets and the inappropriate use of prime industrial land by incom- patible commercial uses are examples of problems associated with commercial encroachment. The location of commerciaV uses along area highways in an unplanned, linear or 'stripping' manner often results in visual blight, traffic conflicts and inefficient use of energy and land. Clustering commercial uses in well defined areas is considered a more favorable alternative to these development practices. b. Commercial Land Use Policies 1.33(1) ENCROACHMENT INTO NON-COMMERCIAL AREAS AND UNCONTROLLED STRIP DEVELOPMENT BY COMMERCIAL USES SHALL BE PROHIBITED. 1.33(2) COMMERCIAL SITES SHALL BE LOCATED AND EXPRESSLY DESIGNED TO BEET THE NEEDS OF ONE OF THE FOLLOWING MARKET LEVELS: REGIONAL, COMMUNITY OR NEIGHBORHOOD. 1.33(3) BUFFER AREAS SHALL BE PROVIDED WHERE COMMERCIAL SITES ADJOIN RESIDENTIAL NEIGHBORHOODS. c. Implementation Actions 1). Local governments should investigate methods to curtail the adverse impacts of commercial encroachment and strip development through measures such as traffic control including driveway connec- tions, channelization and off-street parking, and the institution of street graphic standards. 2) Local government shall amend local zoning ordinances and maps as soon as feasible to encourage clusters of commercial uses which generally correspond to distinct marketing levels. Examples include: -- REGIONAL - Large facilities with numerous speciality and general merchandise retailers which attract customers outside New Hanover County. Examples could include Independence Mall, Hanover. Shopping Center, and the Central Business District, and other commercial uses with extensive land area needs. -- COMMUNITY - Businesses which serve an intermediate market between regional facilities and neighborhood oriented businesses. Ex- amples are College Square Shopping Center, Cape Fear Shopping Center, and the cluster of businesses on Wrightsville Avenue near <., the intersection with Wilshire Boulevard. -- NEIGHBORHOOD - Businesses primarily designed to serve residents in the immediate neighborhood. Examples are convenient food stores, small drug stores and Laundromats. -21- 1.34 INDUSTRIAL LAND USE a.. Discussion Two major factors should be considered in the proper location of industrial areas: site suitability and compatibility.of surrounding uses. Industrial sites should be environmentally suitable for the proposed use in addition to satisfying the unique locational require- ments of industrial uses such as large amounts of contiguous land, access to major transportation modes and availability'of necessary services. Due to the excessive noise, odor and heavy traffic generated by some industrial uses, these sites should also be located so as not to expose residents to harmful effects of incompatible development or to environmental hazards. The clustering of so-called 'light' industries in .properly sited industrial parks is one -means of addressing this problem. Care should be taken, however, to insure that no'particular area suffers the ill effects of an over -concentration of these parks. b. Industrial Land Use Policies 1.34(1) INDUSTRIAL SITES SHALL BE LOCATED ON LAND WHICH IS EN- VIRONMENTALLY SUITABLE AND HAS UNIQUE LOCATIONAL ADVAN- TAGES FOR INDUSTRY. CLUST-E-RING OF LIGHT INDUSTRIES IN INDUSTRIAL PARKS WILL BE ENCOURAGED. 1.34(2) INDUSTRIAL USES HAVING EXCESSIVE NOISE, ODOR OR OTHER HARMFUL POLLUTION SHALL NOT BE LOCATED IN A MANNER WHICH ADVERSELY IMPACTS EXISTING OR PLANNED'NON-INDUSTRIAL USES. CONVERSELY, INDUSTRIAL AREAS, WHETHER EXISTING OR PLANNED, SHALL BE PROTECTED FROM ENCROACHMENT BY INCOMPATIBLE NON- INDUSTRIAL USES. 1.34(3) LOCAL GOVERNMENT SHALL ENCOURAGE PUBLIC INVOLVEMENT IN THE SITING OF INDUSTRY BY MAKING THE PUBLIC AWARE OF PROPOSED DEVELOPMENTS AT THE EARLIEST OPPORTUNITY, AS WELL AS FOSTERING COMMUNICATIONS BETWEEN DEVELOPERS AND PUBLIC INTEREST GROUPS. C. Implementation Actions 1) The land use plan mAp will identify areas appropriate for industrial use in accordance with stated objectives of the industrial policies. 2) Local government will continue to support the development of the Airport Industrial Airpark, the N.C. Department of Commerce's Regional Marketing Program and other similar industrial targeting efforts to aid in the attraction and proper location of desirable industry. 1.35 TRANSPORTATION, COMMUNICATION AND UTILITIES LAND USE a. Discussion This category, which occupies 1/3 of the developed land in the Planning Area, is second only to residential in the amount of area devoted to its use. While the additional acreage needed over the next -22- 10 years represents a small percentage of existing transportation, communication and utility uses warrants special consideration. This is because some of these activities present potential hazards to sur- rounding areas -- residential development in particular.. The construction of major new transportation facilities usually results in direct or indirect development pressures which must be considered in terms of both immediate and area -wide impact. This is of particular interest locally since some of the proposed highway im- . provements could hasten development in environmentally fragile areas of the County.. The Wilmington Harbor is recognized as an invaluable asset to the Planning Area. In addition to private port facility expansions, con- tinued development of the N.C. State Ports Authority facilities will enhance the already strong role of the port in the local economy. Similarly, public and private sector plans to improve the navigability of the Wilmington Harbor are expected to favorably influence water - related commerce and the overall economy of the area. The Atlantic Intracoastal Waterway (AIWW) traverses the north - south length of New Hanover County and serves as a vital link for commerce and tourism up and down the east coast of the United States. Continued maintenance of the AIWW as we.11..as limiting encroachment into it are considered important means of protecting this transportation resource. The need for expanding the highway system should be reduced by achieving greater efficiency with the existing system through trans- portation system management activities such as increased bicycling and ridesharing (carpooling, transit, etc.). b. Transportation, Communication and Utilities Land Use Policies 1.35(1) POTENTIALLY HAZARDOUS TRANSPORTATION, COMMUNICATION OR UTILITY FACILITIES SHALL NOT BE LOCATED IN A MANNER WHICH POSES A THREAT TO THE SAFETY AND ENVIRONMENTAL INTEGRITY OF SURROUNDING PROPERTIES. 1.35(2) PROPOSED DEVELOPMENT RESULTING FROM HIGHWAY IMPROVEMENTS SHALL BE CONSIDERED IN TERMS OF CONSISTENCY WITH THE UPDATED LAND USE PLAN AND POLICIES AS WELL AS IMPACTS ON SURROUNDING AREAS. 1.35(3) BIKEWAY FACILITIES AND RIDESHARING PROGRAMS SHALL BE SUPPORTED BY LOCAL GOVERNMENTS AS AN,_,ENERGY EFFICIENT ALTERNATIVE TO THE AUTOMOBILE. - 1.35(4) CONTINUED DEVELOPMENT OF THE WILMINGTON HARBOR AND THE STATE PORTS AUTHORITY FACILITIES SHALL BE SUPPORTED BY - -- - LOCAL GOVERNMENT. 1.35(5) THE ATLANTIC INTRACOASTAL WATERWAY AND ITS RIGHT-OF-WAY SHALL CONTINUE TO BE DESIGNATED CONSERVATION ON THE LAND USE PLAN AND ENCROACHMENT SHALL NOT BE PERMITTED. 1.35(6) COORDINATED PLANS FOR LAND, WATER AND AIR TRANSPORTATION SHALL CONTINUE TO BE SUPPORTED BY LOCAL.GOVERNING.BODIES. . -23- c. Implementation Actions 1) Governing bodies should amend local zoning ordinances to ensure that the location of potentially hazardous utility and communi- cation facilities are properly controlled for the protection of sur- rounding property. 2) Features of local transportation improvement projects such as proposed thoroughfares will be sustained by planning advisory and governing bodies in their actions regarding areas where such facilities have been identified on the Wilmington Area Thoroughfare Plan. 1.36 RECREATION AND OPEN SPACE a. Discussion The Wilmington -New Hanover Planning Area is graced with an abun- dance of unique natural areas. The North Carolina Natural Heritage Program maintains current locational data on remnant species habitats and fragile natural areas in the County. Among the most important areas and features needing special protection are Motts Creek, Mason - boro Island, colonial bird nesting sites in the Cape Fear River, and the coquina outcrops at Fort Fisher. In addition, numerous public recreation areas are provided by various levels of government. The City of Wilmington provides an extensive network of urban parks. New Hanover County manages five parks; three district parks and two community parks. Finally, Carolina Beach State Park, though not in the Planning Area, provides picnicking areas, a nature trail, and a plant and animal museum. The continued existence and provision of these amenities is an important element in maintaining and enhancing the unique livability features of our area. b. Recreation and Open Space Policies 1.36(1) UNIQUE NATURAL AREAS SHALL BE PRESERVED TO PROVIDE VISUAL RELIEF AND PASSIVE RECREATIONAL OPPORTUNITIES FOR AREA RESIDENTS. 1.36(2) ADEQUATE PUBLIC RECREATION FACILITIES WILL BE PROVIDED FOR AND MAINTAINED AT A LEVEL PROPORTIONAL TO AREA NEEDS. 1.36(3) PUBLIC ACCESS TO THE AREA'S NATURAL RECREATION AMENITIES SUCH AS THE OCEAN AND RIVER AND SOUNDS SHALL BE INSURED. 1.36(4) PROVISION OF OPEN SPACE AND RECREATION FACILITIES IN PRIVATE DEVELOPMENTS SHALL BE ENCOURAGED TO LESSEN THE DEMAND FOR PUBLICLY FINANCED FACILITIES. -24- C. Implementation Actions 1) Every feasible action shall be taken by local government to insure implementation of the City's 1981-1985 Urban Park and Recreation Recovery Program and the County's Parks and Recreation Paster Plan. 2) Local regulations will be amended to encourage provision of open space and recreation facilities by private developers, with allowance for continued maintenance.. 3) Local governments will support efforts by the U.S. Army Corps of Engineers to secure a wildlife and open space area along the North- east Cape Fear River, provided that appropriate shared industrial access corridors are allowed. 4) Flood hazard areas will be utilized whenever feasible by local government in the provision of parks and open space. 5) City and County planners will continue to consult with the North Carolina Natural Heritage Program in preparing recommendations to their respective governing bodies regarding area -wide and site - specific development proposals. -25- 2.1 2. RESOURCE PROTECTION POLICIES ESTUARINE SYSTEM AREAS OF ENVIRONMENTAL CONCERN a. Discussion Surface water and the marshes and lands immediately adjacent to it are, perhaps, the Wilmington -New Hanover Planning Area's most important natural resource. Under North Carolina state law, virtually all of the waters of the County are classified as estuarine. In addition to these surface waters, several other areas are identified under the Coastal Area Management Act as estuarine areas of environmental concern. These water and land areas are defined as follows: Coastal wetlands are generally any salt marsh or other marsh subject to regular or occasional flooding by tides. Estuarine waters are defined in G.S. 113A-113-(b)(2) as all the water 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 line between coastal fishing waters and inland fishing waters. Public trust area s,are generally all waters of the Atlantic Ocean and the lands thereunder from mean high water to the seaward limit of state jurisdiction; all navigable natural bodies of water and lands thereunder, and various other waters in which the public has an in- terest, as prescribed by law. Estuarine shorelines are generally non -ocean shorelines along estuaries, sounds, bays and brackish waters extending landward from mean high water or normal water level for a distance of 75 feet. Estuaries are highly productive natural environments, having value for almost everyone. Some of the values are reflected simply in the richness of the life-style enjoyed by residents of the Planning Area. Estuarine waters are a major aesthetic attraction and a recreational outlet for large numbers of residents. The estuary's value is also reflected in the market place. Species which are dependent upon the estuary during part or all of their life cycle - menhaden, shrimp, flounder, oysters and crabs - make up over 90 percent of the total value of North Carolina's commercial fishing catch. Thus, maintenance of the estuarine system in the best possible condition is essential to protecting the enormous economic, social and biological values of these areas; yet from the perspective of shell - fishing, the water quality picture in most of New Hanover County's estuaries is rather poor. According to the North Carolina Shellfish Sanitation Program, most of the creeks in the eastern segment of New Hanover County, most of the sound waters in and around Wrightsville Beach, a large portion of Myrtle Grove Sound, Snows Cut and the lower Cape Fear River Estuary are closed to shellfishing. 54-T The Planning Area's estuarine problems can be attributed to several sources --the discharges from municipal waste treatment plants, the discharges from private waste treatment plants, industrial dis- charges, urban runoff, agriculture runoff and malfunctioning septic tanks. Based on these findings, and in order to protect the values of the estuarine system, the following policies shall apply: b. Estuarine System Policies 2.1(1) COASTAL WETLANDS, ESTUARINE WATERS, ESTUARINE SHORELINES AND PUBLIC TRUST WATERS SHALL BE PROHIBITED FROM USE BY ANY DEVELOPMENT ACTIVITY WHICH WOULD RESULT IN DAMAGE OR ALTERATION TO THE NATURAL FUNCTIONS OF THESE AREAS. 2.1(2) RUNOFF AND DRAINAGE FROM DEVELOPMENT AND AGRICULTURAL ACTIVITIES SHALL BE OF A QUALITY AND QUANTITY AS NEAR TO NATURAL CONDITIONS AS POSSIBLE. 2.1(3) POLLUTION FROM SEPTIC SYSTEMS AND SEWAGE TREATMENT PLANTS INTO ESTUARINE WATERS SHALL BE MINIMIZED THROUGH ENFORCE- MENT AND SUPPORT OF IMPROVED STATE AND LOCAL GOVERNMENT REGULATJONS. 2.1(4) PUBLIC SEWAGE COLLECTION AND TREATMENT FACILITIES SHALL BE SUPPORTED, WITH PRIORITY GIVEN TO SERVICING THOSE DENSELY DEVELOPED AREAS WHERE A HIGHER VOLUME OF SEPTIC WASTE IS CURRENTLY PRODUCED AND CONCENTRATED, AND WHERE ECONOMIC EFFICIENCIES ARE REALIZED. C. Implementation Actions 1) Use standards for estuarine areas will be supported by local governments as discussed in the State Guidelines For Areas of Environ- mental Concern (15 NCAC 7H .0205 through .0209). For example, only water dependent uses (i.e., uses that cannot function elsewhere) will be permitted in coastal wetlands, estuarine waters and public -trust waters. Water depe-- ndent uses may inc' uu euti ity easements, docks, wharfs-, boat ramps, dredging, bridges and bridge approaches, revet- ments, bulkheads, culverts, groins, navigational aids, mooring pilings, navigational channels, simple access channels and drainage ditches. All development projects within estuarine shorelines will be designed to: minimize erosion, impervious surfaces, runoff and siltation; not adversely impact estuarine resources; not interfere with access to or use of navigable waters; not require extraordinary public expenditures for maintenance; insure that ground absorption sewage systems, if used, meet applicable standards; and not damage historic architectural or archaeological recources. 2) The Classification of Soils in New Hanover County for Septic Tank Suitability willbe adoptd Gy l eoca'�offovernments as the iicial reference tool in the evaluation of proposed developments using septic tanks. -27 - 3) New State regulations which tighten restrictions on the use of conventional septic systems by condominium developments will be supported by local governements. .4) Future local government plans, public works actions and review procedures relating to drainage will include provisions to prohibit increases in the flow of surface water and septic effluent into receiving waters through drainage systems. 5) Strict and proper enforcement of the County's septic tank regulations will be achieved. 6) Local governments, in their reviews of development proposals, will be satisfied that proposed systems of drainage conform as closely as possible with.natural drainage patterns and conditions. 7) The County will direct that technical specifications be de- veloped, applied and enforced in reviews of drainage improvements made within each class of soils defined in the Classification of Soils for Septic Tank Suitability, 1980. 8) Plans for the solution of the maintenance responsibility problem for drainage systems in the unincorporated County will be continued. 9) Land ordinances will be revised to require high performance standards for developments in environmentally sensitive areas. These standards may be incorporated into review under special use procedures. 10) All coastal wetlands, estuarine waters, estuarine shorelines and public trust waters shall be designated Conservation on the General Development Guide, except as specifically noted in the definition of Conservation. 2.2 OCEAN HAZARD AREAS OF ENVIRONMENTAL CONCERN a. Discussion In the last fifteen to twenty years, New Hanover County's beaches have been attracting people in greatly increasing numbers. A demand for retirement and second homes, combined with the relatively storm - free period of.the 1960's and 70's, spawned increased ocean front development wherever access was available. While the barrier island communities of Wrightsville Beach and Pleasure Island are outside the jurisdiction of the Wilmington -New Hanover Land Use Plan, the well-. known problems of these communities in dealing with ocean front de- velopment and beach erosion should serve as a lesson in planning future development. MCC Figure Eight Island and Masonboro Island are also part of the long chain of barrier islands designed by nature to absorb the ocean's punishing forces: sand shifts readily from place to place, wave and water energy is rapidly dissipated. This flexibility allows the islands to bend without breaking. Unfortunately, man's desire to live near the ocean sometimes overwhelms his otherwise common sense approach to development. Bulk- heads are built, homes are destroyed and millions of tax dollars are pumped repeatedly into beach renourishment or other erosion control measures. New Hanover County's ocean erodible areas of environmental concern (AEC's) are a recognition of this problem. The ocean hazard system of AEC's contains the following areas: Ocean Erodible Area. This is the area in which there exists a substantial possibility of excessive erosion and significant shoreline fluctuation. The High Hazard Flood Area. This is the area subject to high velocity waters including, but not limited to, hurricane wave wash) in a storm having.a one percent chance of being equalled or exceeded in any given year. Inlet Hazard Area. The inlet hazard -areas are those lands iden- tified by the state geologist to have a substantial possibility of excessive erosion that are located adjacent to inlets. The actual extent of these areas is identified on maps on file with the New Hanover County Engineer. By law, developments proposed within these hazard areas are subject to careful review with regard to the appropriate location and design of structures. In the long run, adherence to sound development principles within these areas will benefit life and property, and will help preserve the unique qualities of the County's barrier islands. In view of these considerations, the following policies for ocean hazard areas shall apply: b. Ocean Hazard Area Policies 2.2(1) DEVELOPMENT ACTIVITIES IN OCEAN ERODIBLE AREAS, HIGH HAZARD FLOOD AREAS AND INLET HAZARD AREAS SHALL BE CARE- FULLY CONTROLLED. IF DEVELOPMENT MUST OCCUR IN THESE AREAS, THE PROPER LOCATION AND DESIGN OF SHORELINE STRUCTURES, AND THE PRESERVATION OF NATURAL PROTECTIVE FEATURES SHALL BE REQUIRED. 2.2(2). BEACH EROSION CONTROL AND CHANNEL MAINTENANCE PROJECTS SHALL BE SUPPORTED ONLY WHEN SHOWN TO HAVE NO FUTURE ADVERSE IMPACTS ON BARRIER ISLAND NATURAL BEACH DYNAMICS, AND WHEN SHOWN TO BE OF SIGNIFICANT ECONOMIC OR RECREA- TIONAL BENEFIT TO PLANNING AREA RESIDENTS. -29- C. Implementation Actions 1) . Use standards for ocean hazard areas will be supported by local.governments as presented in the State Guidelines For Areas of Environmental Concern (15 NCAC 7H.0306). Such use standards include, for example: adherence to erosion setbacks; preservation of primary and frontal dunes and other natural protective features; non-interference with legal access to, or use of, public resources; and, compliance with applicable construction and flood insurance standards. 2) When County tax dollars are expended on beach erosion control projects, the County Manager will be satisfied that adequate parking and public access to the benefited area have been provided. 3) Local governments will support surveys and studies designed to accurately identify the beneficiaries of channel maintenance and beach erosion control projects, with the intent of placing the cost of the project equitably on the shoulders of the beneficiaries. 2.3 OTHER NATURAL AND MAN-MADE HAZARDS/DEVELOPMENT LIMITATIONS a. Discussion Development activities in New Hanover County are constrained by numerous other natural and man-made limiting factors not addressed entirely within areas of environmental concern. These major elements of the natural environment imposing additional limitations on develop- ment include: 1) Flood hazard areas. Flood waters represent a hazard to life and property when development takes place in flood prone areas; in addition, flood plain development may actually increase the severity of flooding by displacing flood waters to a higher level and by decreasing the natural absorptive capacity of flood plain soils and vegetation. 2) Water table conditions. High water table conditions increase development costs; if uncorrected may render yards and recreation areas unusable; and extensive artificial drainage to lower the water table may reduce recharge of aquifers and seriously affect the quality and salinity of estuarine waters. 3) Load supporting capability. The load supporting value of soils is an important variable in most types of development. Failure to insure that subsoil conditions afford a suitable load -bearing capacity for a particular building, highway, or other structure can have serious consequences--foundation.collapse, differential settling, rapid deterioration of roads, and perhaps damage to adjacent properties during the construction process. In addition, man-made hazards have been identified as having limitations for development. Like some natural phenomena, certain types of development and activities have characteristics which can constitute a.danger to life and property in the surrounding areas.. Some major hazard areas and activities are: 11 The New Hanover County Airport and its approach patterns over populated areas 2) Bulk storage areas for hazardous materials 3) The North Carolina State Port 4) The Sunny Point Ocean Terminal buffer zone area 5) CP&L nuclear powered electric generating plant 6) Transportation of hazardous materials 7) General Electric nuclear fuels fabrication plant 8) Sanitary landfill sites Therefore, in order to minimize the risk to life and property from natural and man-made hazards, and to protect the natural environment from incompatible development activities, the following policies shall apply: b. Hazard and Development Limitation Policies_ 2.3(1) DEVELOPMENT ACTIVITIES WITHIN THE 100-YEAR FLOODPLAIN SHALL BE CAREFULLY CONTROLLED. IF DEVELOPMENT MUST OCCUR, LOW. -INTENSIVE USES SUCH AS OPEN SPACE, RECREATION AND AGRICULTURAL ACTIVITLES_.SHALL BE PREFERRED. 2.3(2) DEVELOPMENT ON CLASS IV SOILS (AS DEFINED IN TECHNICAL REPORT NO. 9) SHALL BE DISCOURAGED. 2.3(3) PLANS FOR THE TRANSPORTATION OF HAZARDOUS MATERIALS, FOR THE PREVENTION AND CLEANUP OF SPILLS OF TOXIC MATERIALS, AND FOR THE EVACUATION OF AREA RESIDENTS IN RESPONSE TO NATURAL OR MAN-MADE HAZARDOUS EVENTS, SHALL BE SUPPORTED. 2.3(4) THE SITING OF ENERGY FACILITIES AND DEVELOPMENTS SHALL BE CAREFULLY REVIEWED FOR THE PROTECTION OF AREA RESIDENTS AND RENEWABLE NATURAL RESOURCES AND THE NATURAL ECOLOGY OF THE AREA. 2.3(5) THE PLANNING AREA'S FUTURE REQUIREMENTS FOR SOLID WASTE DISPOSAL FACILITIES SHALL BE ANTICIPATED THROUGH ADVANCE PLANNING; FACILITIES SHALL BE -LOCATED AND DESIGNED SO AS NOT TO ADVERSELY IMPACT NATURAL OR MAN-MADE RESOURCES. C. Implementation Actions 1) The Flood Plain Management Regulations of the City and County will be .updated. Special review (e.g., through an environmental special use permit) shall be applied to all urban development taking place within the 100 year floodplain. 2) A complete set of 1" = 400' flood hazard map overlays will be maintained for public use at the City and County Planning Departments. These overlays shall be periodically updated as new flood elevation information is made available. -31- 3)i A Flood Plain -Overlay District will be identified on the City and County Zoning Paps to alert all persons concerned that development within designated floodplains must conform to the City or County Floodplain.Management Regulations. 4) In the future development of parks and planned open space areas, local governments will look to flood hazard areas as appropriate land areas for acquisition or use. z 5) Local governments will seek methods to encourage private sector development proposals to set aside flood hazard areas as desig- nated community open space. 6) All land areas falling within the 100-year floodplain, except as noted in the definition, will be designated "Conservation" on the General Development Guide for the Planning Area. 7) Planning maps (1" = 400') regarding general soils and septic tank suitability will be maintained on file at.the New Hanover County Planning Department, and shall be available for public inspection and use. 8) In development matters dealing,with land suitability and use, an active working relationship will b`1ntained between City and County government, the USDA Soil Conservation Service, the Lower Cape Fear Soil and Water Conservation District Office, and the State Depart- ment of Natural Resources and Community Development. 9) The City or County Engineer will be consulted, as necessary, in the evaluation of soil suitability for development. 10) The New Hanover County Civil Preparedness Agency will continue to receive the support of local governments as it annually updates the following emergency plans: -- New Hanover County Hurricane Evacuation Plan --. Hazardous Materials Transportation Accident Plan -- North Carolina Radiation Emergency Response Contingency Plan, Annex B: General Electric Nuclear Fuels Fabrication Plant Accident/Incident; Part III New Hanover County Procedures to Support the Brunswick Nuclear Powered Electric Generating Plant. -- Disaster Relief and Assistance Plan - Crisis Relocation Plan -- War Plan 11) The Joint Civil Preparedness Council, comprised of the highest elected local officials, will be maintained. 12) A task force will be maintained within City government for the purpose of annually updating the Emergency Preparedness Plan. (13) Planning Department forecasts for facility demand shall con- tinue to estimate waste stream quantities and land requirements for accommodation of treatment and/or disposal facilities. -32- 2.4 GROUND WATER a. Discussion A majority of families and a significant number of industries in New Hanover County are presently dependent upon ground water. This is especially true outside the City of Wilmington where nearly all water, whether from individual wells or private systems, comes from the ground. In addition, the most recent plans for a County water supply system recommend the use of a series of deep wells as the water supply source for the system. While the natural quality of area ground water sometimes suffers from hardness and odor, the County's ground water resources, when properly treated, are a priceless asset which must be protected. In recent years, however, man's development activities have posed serious threats to the continued quality of the.area's ground water. Perhaps most susceptible to pollution are those waters held in sur- ficial sand deposits throughout the County. Shallow wells in these sands supply potable water to many area homes and businesses. In recent years, however, industrial activities and septic tanks have contaminated these near -surface water resources in various parts of the County. Care must be taken with all future development to see that these easily polluted surficial aquifers are afforded protection for continued use. Even more promising as long-term potable water resources, however, are the deeper Castle Hayne limestone.and Perdee Sandstone water - bearing formations. These are the aquifers upon which some residents already depend and upon which the County water system would depend as presently proposed. These aquifers are also threatened by development activities in the Planning Area. Artificial surface drainage systems. associated with urban development, for example, tend to increase runoff, thereby reducing the "recharge" of rainfall to the ground water system. Impervious surface areas such as streets, parking lots and rooftops also have the effect of reducing the return of water to the natural underground storage system. Equally serious is the possible introduction of toxic wastes into these extensive water -bearing formations. While it may take longer for contaminants to reach the deeper aquifer, pollution of these formations could affect the future water supplies of thousands of area residents. In light of these concerns, the following policies shall apply: b. Ground Water Policies 2.4(1) THE COUNTY'S GROUND WATER RESOURCES SHALL BE RECOGNIZED AS AN INVALUABLE SOURCE OF PUBLIC AND PRIVATE POTABLE WATER AND SHALL RECEIVE THE HIGHEST LEVEL OF PROTECTION AVAILABLE. 2.4(2) ACTIVITIES WHICH COULD THREATEN THE QUALITY OR QUANTITY OF RECHARGE ENTERING THE COUNTY'S GROUND WATER SYSTEM SHALL BE RESTRICTED. -33- C. Implementation Actions 1) Subdivision proposals which call for extensive artificial land drainage within the primary aquifer recharge area will be prohibited. 2) Before approval of any site plan for a development within the primary aquifer recharge area, the reviewing board involved will be satisfied that impervious surface areas have been kept to a minimum. Particular attention will be given to the amount of paved area pro- posed. 3) Development proposals at urban densities within the County's critical aquifer recharge area will be viewed unfavorably by reviewing boards. 4) No public monies will be used in support of inappropriately designed artificial land drainage systems within the primary aquifer recharge area. 5) Current efforts by the County Health Department to tighten County regulations governing on -site sewage disposal will be supported. 6) Industries involved with the use, production or handling of toxic materials will be prohibited from the County's primary aquifer recharge area. ` 7) The City and County zoning maps will be amended as necessary to eliminate zoning districts from the primary aquifer recharge area which would permit inappropriate industrial development or large-scale commercial development. 8) The County will direct that a plan for the management of the County's groundwater resources be prepared at the earliest possible time. The feasibility of ground water monitoring will be considered. 2.5 HISTORIC AND ARCHAEOLOGICAL RESOURCES a. Discussion The Wilmington -New Hanover Planning Area's archaeological and historic resources are among its most fragile assets. These resources are an essential part of the area's tradition, its heritage, and are an invaluable element of the quality of life afforded present residents. In addition, these resources have a tremendous economic potential through tourism, which has not yet been fully realized. -34- Within the City of Wilmington, two separate areas consisting of more than 200 blocks have been listed on the.National Register of Historic Places_ -and-, thereby, have been recognized as having historic,, architectural or cultural significance. Within the National Register area only about 38 blocks have been afforded the special protection of "Historic District" designation; another 32 blocks have been selected for protection by a "Historic District Overlay." In the Overlay areas, only the exterior appearance of structures is regulated; the underlying zoning districts control other development factors. Outside the City there are also a number of scattered individual buildings and sites which are recognized as having historical sig- nificance. However, no protection from incompatible development has been provided to these sites. According to an Army Corps of Engineers inventory conducted in December of 1973, there were then 16 known archaeological sites within New Hanover County. A more recent survey, conducted by the North Carolina Division of Archives and History in 1978, identified several hundred archaeological and historic resource sites. The exact locations of these sites are considered confidential and are not normally re- leased by the Division of Archives and History due to potential dis- turbance and destruction. Only in major projects using federal or state funds would the Division of Archives and History normally have an opportunity to review projects having a,_Potential impact on archaeo- logical sites. Other kinds of development often ignore these sites altogether. This lack of coordination and awareness has been prob- lematic in recent years with the loss of valuable archaeological sites ever a possiblity. Therefore, in order to preserve and enhance the economic and cultural value of the Planning Area's historic resources for present and future generations, the following policies shall apply: b. Historic and Archaeological Resource Policies 2.5(1) RESTORATION OF STRUCTURES AND NEIGHBORHOODS OF HISTORIC SIGNIFICANCE SHOULD BE ENCOURAGED.' 2.5(2) DESTRUCTION OF SIGNIFICANT HISTORIC AND ARCHAEOLOGICAL RESOURCES IDENTIFIED IN THE PLANNING AREA SHALL BE DIS- COURAGED. 2.5(3) FULL DEVELOPMENT OF THE TOURISM POTENTIAL OF THE AREA'S HISTORIC RESOURCES WILL BE ENCOURAGED. 2.5(4) MULTIPLE AND ADAPTIVE REUSE OF THE CITY'S HISTORIC RE- SOURCES SHALL BE ALLOWED AND ENCOURAGED. 2.5(5) WILMINGTON'S HISTORIC RIVERFRONT FROM THE COTTON EX- CHANGE TO THE STATE PORTS SHALL BE CONSIDERED A TOP PRIORITY AREA FOR URBAN REDEVELOPMENT ACTIVITIES. 2.5(6) PRE -APPLICATION CONFERENCES BETWEEN DEVELOPERS AND STAFF SHALL INCLUDE AN ANALYSIS OF SIGNIFICANT HISTORIC AND ARCHEOLOGICAL RESOURCES IN THE AREA PROPOSED'FOR DEVELOPMENT. -35- c. Implementation Actions 1) Surveys and studies. designed to evaluate the feasibility and desirability of expanding the Historic District and Historic District Overlay areas will be conducted periodically by the City government. 2) In cooperation with the North Carolina Division of Archives and History, a map showing the locations of significant historic and archaeological sites will be prepared for New Hanover County and updated at least once every five years. The map will be maintained at the County Planning Department and consulted during review of develop- ment proposals. 3) Organized community events such as the Azalea Festival and Riverfest, which capitalize on Wilmington's historic setting, will con- tinue to receive support from local governments. 4) Riverfront redevelopment studies, plans and projects will be actively encouraged and undertaken by local governments. 5) Local governments will support the efforts of civic and. business groups as they seek to expand the tourism component of the local economy. -36- 3. RESOURCE PRODUCTION POLICIES 3.1 AGRICULTURE AND FORESTRY a. Discussion The loss of farms and woodlands to development is a continuing concern of many residents in New Hanover County, particularly those who live in the more rural areas. According to the North Carolina Crop and Livestock Reporting Service, cropland acreage decreased by almost 30 percent in New Hanover County during.the period from 1972 to 1977. While local agricultural authorities dispute this loss estimate as excessive, there is little doubt that farming activities in New Hanover are continuing their decline. Personal income from agricultural activities, for example, dropped from 0.6 percent of the County's total in 1972, to only 0.3 percent in 1977. Approximately 540 persons, or less than 1 percent of the total County work force, were engaged in farm activities in.1977.1 A recent article in the Wilmington Morning Star sums up the situation that has evolved over the past severa ecaUes�as follows: "New Hanover County, which once produced large quantities of vegetables, now hat housing developments covering much of its land. The flower and bulb industry, once centered in Castle Hayne, which brought several million dollars a year to the area, has virtually disappeared. Echo Farms, owned by the McCarley family, was the last dairy farm in New Hanover County. It had one of the highest herd production averages in the South at the time the cattle were sold and the land turned into a development. Surprisingly large tracts of woodland remain in the county, although developments and mobile home parks are scattered among the woods. New Hanover has bercome an extreme demonstration of the problem of urban sprawl, since it has become the most urbanized county in North Carolina."2 Despite these continuing losses, farms and woodlands are important to the tradition and current life style of many residents. Therefore, to encourage the maintenance of agriculture and forestry as viable industries and to recognize the importance of farms and woodlands as an integral part of the County's open space system, the following policy r shall apply: b. Agriculture and Forestry Policies 3.1(1) THE CONTINUED AGRICULTURAL USE OF THE COUNTY'S REMAINING FARMLANDS AND WOODLANDS SHALL BE ENCOURAGED. 1North Carolina Crop and Livestock Reporting Service 1974 and 1979, as cited in the BECO Environmental Report, September, 1980. 2"New Development Replaces Farmland" Wilmington Morning Star, February 6, 1981, p. 4B. -37 - 3.2 C. Implementation Actions 1) County government will continue to receive advice from the New Hanover County Agricultural Land Use Committee. 2) Available tax preservation of farms by County government. MINERAL RESOURCES a. Discussion benefits which will further the objective of and woodlands will be identified and publicized New Hanover County contains two important mineral resources --sand and limestone. According to the most recent employment statistics, industrial activities based on these resources employed approximately 260 workers in 1978. In addition, mineral production in the County has been averaging about 9 - 12% of the State's total since at least 1973; this translates to approximately $450,000 per year for the local economy. Technical Report #3, Environmental Analysis of the 1976 Wilmington - New Hanover Land Use plan, identifie�he general location of poten- tially exploitable sand and limestone resources. At the present time, the distribution of active mineral extraction sites and other land uses in the County does not appear to be conflicting. One possible exception may be a sand extraction site currently operating in an area west of Myrtle Grove Junction (Monkey Junction) near residential areas in the south central portion of the County. Care must be taken to preserve prime mineral resource extraction activities currently operating in appropriate locations, while minimizing the impact of new mineral resource sites on future land uses. On this basis, the following policy shall apply. b. Mineral Resource Policy 3.2(1) FULL DEVELOPMENT OF THE COUNTY'S MINERAL RESOURCES SHALL BE ENCOURAGED, TEMPERED BY A CONCERN FOR THE PLANNING AREA'S UNIQUE NATURAL AND MAN-MADE ENVIRONMENT. C. Implementation Actions 1) Prime mineral resource sites away from urbanizing areas as identified in Technical Report No. 3, Environmental Analysis, April, 1976 by the Wilmington -New Hanover Planning Department will be offered protection by the future land use map, and by the County zoning map. 2) The County Planning Staff will offer in its recommendations to the Planning Board, information regarding the location of prime mineral resource sites in relation to proposed developments, when appropriate. 3) Local governments will maintain close coordination with the Land Quality Regional Engineer of the DNRCD, Division of Land Resources with regard to the siting and operation of new or expanded mineral extraction facilities. 3.3 FISHERIES RESOURCES a. Discussion Compared to most other counties in North Carolina's coastal area, the volume of fish landed at docks in New Hanover County is relatively small. In recent years, for example, New Hanover County's landings of edible fish have averaged less than 2% of the state total. From a broader perspective, however, the fisheries of the County's estuarine and ocean waters are a rich component of the lifestyles of many area residents. Whether sport fishing from a chartered boat or angling alone, a large number of the area's 103,000 residents look to shellfishing and finfishing as a recreational resource and source of supplemental income. This is evidenced by the fact that over 70% of the 238 licensed commercial fishing vessels in the County in 1978 were registered as part-time commercial. New Hanover County is one of the few coastal counties where part-time vessels outnumber full-time. In addition, the great majority of the commercially registered boats berthed in the County fall in the 18 to 20 foot range. These statistics confirm the fact that many of the vessel owners are engaged in trades other than commercial fishing as their primary source of income. Thus, while the overall volume of the catch may be comparatively low, the number of liVes enriched by area fisheries is large. To preserve the area's remaining fisheries resources, the follow- ing policy shall apply: b. Fisheries Resource Policy 3.3(1) THE CONTINUED PRODUCTIVITY OF COMMERCIAL AND RECREATIONAL FISHERIES SHALL BE FOSTERED THROUGH RESTORATION AND PROTECTION OF THE UNIQUE COASTAL ECOSYSTEMS UPON WHICH THEY DEPEND. C. Implementation Actions 1) All policies and implementation actions designed to protect and preserve the estuarine system of AEC's will be further supported and carried out under the fisheries resource policy heading. 2) Studies designed to evaluate and recommend corrective measures to the shellfish pollution problem and to improve management and pro- duction of all fisheries resources will be supported by local govern- ments. -39 - 3.4 OFF -ROAD VEHICLES a. Discussion Concern for the environmental impacts of off -road vehicles in coastal North Carolina is primarily oriented toward beach and near - beach dune areas. Off -road vehicle traffic can easily destroy fragile dune vegetation, baring the dunes to wind and wave erosion, thereby reducing their effectiveness as storm buffers. Wildlife particularly susceptible to improper ORV use includes ghost crabs, logger -head turtles (an endangered species), and colonial nesting birds. Never- theless, proper ORV use in controlled areas can provide convenient access to the beach for fishermen and other beach users. The control of off -road vehicles in the beach areas of New Hanover County is for all intents and purposes not within the.purview of County government, however. Beginning at the north, Figure Eight Island is a privately held and secured area with controlled vehicular access and use. The Towns of Wrightsville, Carolina and Kure Beach have their own ordinances and enforcement tools for dealing with the issue. Masonboro Island has no road access. Finally, the Fort Fisher historic area is controlled by the State of North Carolina. In the latter case, the State Departments of Administration, Cultural Resources and NRCD have recently prepared a management plan for —the Fort Fisher area. The plan includes provisions for regulation of ORV's. Despite the apparent lack of jurisdiction over ORV use in these areas, the protection of the County's barrier island beach and dune systems continues to be a ligitimate concern of County government. Following the policy statement, implementation actions are presented that reaffirm current local government efforts to assist in the control of ORV's. b. Off -Road Vehicle Policy_ 3.4(1) EFFORTS TO CONTROL OFF -ROAD VEHICLE USE IN THE ECOLOGI- CALLY SENSITIVE, BIOLOGICALLY CRITICAL OCEAN BEACH AND ESTUARINE SHORELINE AREAS SHALL CONTINUE TO RECEIVE SUPPORT FROM COUNTY GOVERNMENT. C. Implementation Actions 1) The County ordinance entitled "Operation of Vehicles in Dune Area" Chapter 10, Article 2, Section 10-16 through 10-20 enacted 10-18- 71 will be maintained for enforcement as necessary. 2) As agreed upon in the management plan for the Fort Fisher Historic Site, the New Hanover County Sheriff's Department will con- tinue to provide periodic law enforcement services to the area. -40- 4. PUBLIC PARTICIPATION POLICIES 4.1 PUBLIC PARTICIPATION a. Discussion Public participation plays a.n important role in planning for the future of the Wilmington -New Hanover County area. Two key elements must be included to develop an effective public participationprogram: (1) public education, and (2) public involvement. The public education element should provide opportunities for citizens to learn the basic principals and procedures involved in the planning process. Knowledge of this process will better enable citi- zens to identify and discuss local planning issues. The second element, public involvement, should provide oppor- tunities for input on planning issues from a broad cross section of residents. Involvement from all areasofthe City and County will increase the likelihood that planning decisions will be consistent with the wishes of area residents. The benefits to elected officials, planning officials and area residents of an effective public participation program would be the establishment of a better line of communication between public offi- cials and area citizens. This channel of communication could be established through an increased public awareness of local issues, a better knowledge by area residents of how to become involved in the process of land use planning, and by increased sensitivity by public officials to the desires expressed by planning area residents. b. Public Participation Policies 4.1(1) A VARIETY OF PUBLIC EDUCATION TECHNIQUES SHALL BE EMPLOYED TO ENCOURAGE PUBLIC PARTICIPATION ON ALL LOCAL LAND USE ISSUES. 4.1(2) OPPORTUNITIES FOR PUBLIC INVOLVEMENT WITH LAND USE ISSUES SHALL BE PROVIDED ON A CONTINUING BASIS TO ALL RESIDENTS AND WILL BE SCHEDULED FOR EVENING MEETINGS TO ENCOURAGE THE GREATEST POSSIBLE PARTICIPATION. C. Implementation Actions Local government will continue efforts to inform, educate and involve the public in planning for the community, primarily through the regular and special meetings of the following bodies: -- City Council -- County Commissioners - -- City Planning Commission - - County Planning Board -- Historic District Commission -- Special subcommittees of the above Other Boards and Commissions appointed by the City Council and/or the County Commissioners -41- 2) In addition to regular and special meetings, local government will continue efforts to inform, educate and involve the public in planning for the community through the media, including radio and television public service announcements, newspaper coverage, meeting notification signs, letters and personal contacts. 3) Local government will encourage continued representation by a broad cross section of -the planning area residents on all citizen advisory boards. 4) Local government will encourage participation and seek to cooperate with organized groups such as Neighborhood Assemblies, business groups, professional organizations, environmental groups or service clubs. -42- AMENDING THE PLAN The purpose of the Wilmington -New Hanover Land Use Plan is to provide a local planning guide for future growth and development during the period covered by the plan. Accordingly, the plan's essential elements - the policies and the land classification map - should remain substantially unchanged during the plan's tenure. Frequent changes of these elements would undermine the plan's effectiveness. Nevertheless, future developments involving unanticipated conflicts with the plan may warrant amendment. of the plan in some instances. This section outlines procedures applicable to such amendments. 1. Form of Application Requests for amendment to the plan (text or map) must be submitted in writing to the Planning Department office(s) at least 15 working days prior to the next meeting of the appropriate planning advisory body(ies). Applicants shall specify the reasons why the proposed amendment is in the public interest. Applications for map revisions shall include a site map (scale not less than 1" _ 1 mile) which clearly indicates the area in question. Local government shall be reimbursed by the applicant for all advertising costs. 2. Jurisdiction — The following rules are provided to determine which governmental unit has jurisdiction regarding proposed plan amendments. All.text amendments must be reviewed and approved by City and County government. Requests for map amend- ments shall be reviewed as follows: - The City of Wilmington shall review and consider all changes to areas within the City corporate limits. - The City of Wilmington and New Hanover County shall each review and consider all modifications to the Urban Services Area (as defined herein) lying outside City limits. - New Hanover County shall review and consider all other map changes. 3. Form of Review In accordance with CAMA guidelines, a 30-day notice of the hearing date(s) upon which the respective governing body(.ies) considers approval of the amend- ment shall be required. Proposed amendments may then be subject to review by the Coastal Resources Commission, as determined by the State Office of Coastal Management. All proposed amendments shall be reviewed by applicable planning advisory bodies prior to final governmental action. Where approval by both governing bodies is required under paragraph (2) above, such approvals must be in the same form. -43 TABLE 28 PLANNING AREA LAND USE: PERCENTAGE OF TOTAL DEVELOPED LAND, 1980 AND 1990 ACTUAL PROJECTED 1980 1990 Residential 64% 63% Office & Institutional 7% 7% Commercial 6% 7% Transportation, Communi- 2% 2% cation & Utilities Manufacturing Industries 21% 21% 100% 100% Source: Wilmington Planning Department } I I. Gross Land Needs In addition to the detailed land use needs estimates of the preceding section, an estimate of gross land needs is attempted. The gross land needs estimates will be useful in assigning amounts of land to the various classes of the Land Classification Map and to aid in the analysis of the overall future urban growth of the Planning Area. The estimate was made using three broad categories: (a) Urban areas such as those found in the City of Wilmington and its suburbs. In these areas expected population densities would be at least 1,250 1/ persons per square mile, requiring a full range of public services. (b) Rural communities, such as Ogden or Castle Hayne, where population densities would be much lower, using 640 persons per square mile as a rule of thumb. Extensive public services probably would not be required in these areas. (c) Dispersed rural areas where lot sizes would be extremely large, averaging 320 persons per square mile, and where only minimal public services would be provided. The urban areas category represents the combination of the urban and transi- tion classes of the Land Classification System. The other two categories match respectively to the two developed classes of the Land Classification System. Based on an evaluation of past trends and the existing distribution of population, it is estimated that approximately 75 percent of the Planning Area's future population will be accommodated in urban areas, 15 percent in rural communities, and the remaining 10 percent dispersed throughout the rural areas of the county. Using these estimates and the densities from above, Table illustrates the amount of land needed in each broad category. 11 Although the CAMA guidelines suggest a density of 2000 persons per square mile, this figure is being used due to the City's small average household size. (500 dwellings per square mile x 2.5 persons per household = 1250) According to these estimates, approximately 30 square miles of land suited for development will be required to support the Planning Area's expected 1980 to 1990 population growth. The urban area category, which is the most sensitive to land capability constraints, will require approximately 16 square miles of this land. TABLE 29 Summary of Gross Land Needs 1980 - 1990 Population Increase Additional Land Needed Urban 19,875 16 sq. mi. Rural Community 3,975 6 sq. mi. Dispersed Rural 21650 8 sq: mi. Total 26,500 30 sq. mi.