Land Use Plan Policies for Growth and Development Update-1981

WILMINGTON -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.