Hurricane Storm Mitigation and Post-Disaster Reconstruction Plans-1984

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HURRICANE STORM MITIGATION
AND POST -DISASTER
RECONSTRUCTION PLANS
FOR
ONSLOW COUNTY, NORTH CAROLINA
APRIL, 1984
'
HENRY VON OESEN AND ASSOCIATES, INC.
Consulting Engineers & Planners
611 Princess Street ** P. 0. Drawer 2087
Wilmington, North Carolina 28402
[phone]

HURRICANE STORM MITIGATION
AND
'
POST -DISASTER RECONSTRUCTION PLANS
ONSLOW COUNTY, NORTH CAROLINA
Prepared For:
ONSLOW COUNTY BOARD OF COMMISSIONERS
Edward Hurst, Chairman
Cecil Morton, Vice -Chairman
Paul Starzynski
Starkey Shaw
James Stewart
ONSLOW COUNTY PLANNING BOARD
'
Julius J. Segerman, Chairman
James A. Rouse, Vice -Chairman
'
Luther Ennett
Harold C. Morton
'
Bobby Williams
ONSLOW COUNTY PLANNING DEPARTMENT
Kenneth N. Windley, Jr.
Carey H. Brigman
Kim Moore
Chris Quinn
APRIL, 1984

CONTENTS
'
PAGE(S)
ACKNOWLEDGEMENTS
AND CREDITS
EXECUTIVE
SUMMARY
SECTION 1:
AUTHORITY FOR THE STUDY AND REPORT
1-1
'
2:
STUDY
PURPOSE AND OBJECTIVE
2-1
'
3:
BACKGROUND
3.1
General
3-1
thru
3-3
3.2
Prior Studies
3-3
thru
3-6
4:
AREA
DESCRIPTION/INFORMATION
4.1
General
4-1
thru
4-2
Map 4.1: Map of Study Area
4.2
Other Pertinent Physical
Characteristics
4-2
'
4.3
Winds
4-3
Chart 4.3.1: Wind Data
4-3
4.4
Wave Data
4.5
Tide Data
4-3
4.6
Storm Tides
4-4
'
Table 4.6.1: Storm Tide Stages
for Topsail Island
4-4
4.7
Storm History and Vulnerability
4-5
thru
4-6
Map 4.7.1: Hurricane Tracks
Chart 4.7.2: High Water Marks
vs 100 Year Stage
5:
REGULATORY PROGRAMS INFLUENCING THE PROBLEM .
5.1
General
5-1
5.2
CAMA Regulations and Use
Designations
5-1
5.3
Ocean Hazard AEC's
5-2
thru
5-4

'
Contents, Continued
PAGE(S)
'
SECTION 5: Continued
5.4
Estuarine System AEC's 5-4
thru 5-6
'
5.5
N. C. State Building Code- 5-6
thru 5-8
'
5.6
National Federal'Flood
Insurance Program 5-9
thru 5-12
'
Table 5.6.1: Minimum FIA
Requirements for
Regular Phase
Communities
MAP 5.1: Areas of West Onslow
Beach Not Eligible
'
for Coverage Under NFIP
6: STUDY
AREA INVENTORY AND ASSESSMENTS
'
6.1
Population and Growth 6-1
thru 6-2
Table 6.1.1: Onslow County
'
1980 Population
By Area
'
Table 6.1.2: Onslow County
Population By
Township
Table 6.1.3: Onslow County
Future Population
Estimates
'
Table 6.1.4: Population Projections
for West Onslow Beach
'
6.2
Existing and Future Land Use 6-2
thru 6-3
'1981
Table 6.2.1: Existing Land
Uses, Onslow County
Table 6.2.2: Existing Land Uses
West Onslow Beach
Table 6.2.3: Onslow County Land
'
Use Needs
Table 6.2.4: Multi -Unit Condominum
West Onslow Beach

SECTION 6: Continued
6.3
Existing Local Regulations
Ordinances 6-3
thru 6-6
Table 6.3.1': Description of
Zoning Districts
'
Table 6.3.2: Zoning Districts
West Onslow Beach
6.4
Future Development Scenarios .6-6
thru 6-7
Table 6.4.1: Scenario A - Maximum
Buildout Under Existing
Zoning, West Onslow
Beach
Table 6.4.2: Scenarios B and C
Ultimate Buildout
Development Scenarios
'
West Onslow Beach
6.5
Existing Utilities, Roads and
Services 6-8
thru 6-11
Map 6.5: Water System Map
West Onslow Beach
and Environs
6.6
Vulnerability Assessment 6-11
thru 6-19
Table 6.6.1: Definition of
Hazard Areas
Map 6.6.1: Composite Hazard Map
'
Map 6.6.2: Composite Hazard Map
Table 6.6.2: Number of Structures
in Hazard Areas
West Onslow Beach
Table 6.6.3: Summary.of Potential
Hurricane Damages
West Onslow Beach

,
Contents Continued
PAGE(S)
'
SECTION 7: HAZARD MITIGATION PLAN
7.1
Introduction
7-1
r
7.2
Summary of Existing Policies
7-2 thru 7-3
Table 7.2.1: Sumary of Existing
Local Policies In
'
Effect at West
Onslow Beach
7.3
Alternative Mitigation Measures
'
To Reduce Hurricane Damages
7-3 thru 7-15
SECTION 8: STORM
RECONSTRUCTION PLAN
8.1
Introduction/Purpose
8-1 thru 8-2
Table 8.1: Categories of Public
Assistance Available
from FEMA
'
8.2
The Federal Role In Emergency
Response and Procedures For
Obtaining Federal Disaster
Assistance
8-2 thru 8-13
8.3:
The State Role In Emergency
'
Response and Procedures For
Obtaining State Disaster
Assistance
8-13 thru 8-21
Figure 8.1: Timing of Federal
Disaster Assistance
Activities
'
Figure 8.2: Format for Requesting
State Disaster
'
Assistance
Table 8.2: Local Actions During
Three Phases of
Disaster
8.4:
The Local Role In Emergency
Response
8-21 thru 8-23
8.5:
Damage Assessment and
Reconstruction Plan
8-23 thru 8-27

Contents, Continued.
PAGE(S)
ONSLOW COUNTY HURRICANE
DAMAGE ASSESSMENT
'
AND RECONSTRUCTION PLAN
APPENDICIES: Appendix
1 -
Organization Chart
'
Appendix
2 -.Personnel
Roster and
Vehicle Assignments
'
Appendix
3 -
Personnel Roster of
Reconstruction Task Force
Appendix
4
- Sample Damage Assessment
'
Worksheet
Appendix
5
- Damage Assessment Report
SECTION 9: BIBLIOGRAPHY

ACKNOWLEDGEMENTS AND CREDITS
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 Ocean and.
' Coastal Resource Management, National Oceanic and Atmospheric
Administration.
Special appreciation is expressed -.to Mr. Kenneth N. Windley,
' Jr., Onslow County Planning Director, and Mr. Don Herman, Onslow
County Emergency Management Coordinator, for their kind assistance
and input which was invaluable in the preparation of this
' document. Ms. Mary Ellen Johnson, Coastal Land Use Planner, OCM,
Wilmington, also provided valuable input and a critique of the
' draft report which is gratefully acknowledged.
A substantial portion of this document is based on the results
of previous work of William D. McElyea, David J. Brower, Robert R.
Godschalk and Barry Seymour of the Center for Urban and. Regional
Studies, University of North Carolina at Chapel Hill. Their
' report entitled, "Before the Storm: Managing Development to
Reduce Damages" was used as a prime base for the development of
' the expanitory text and the specific recommendations in this
report.

' EXECUTIVE SUMMARY
' The low-lying coastal area of Onslow County faces a strong
threat of damages from a hurricane or. other coastal storms
(northeasters). Rapid development in the immediate coastal area
' and particularly at West Onslow Beach increases the potential for
massive damage and for loss of life and heightens the need for
' Onslow County to prepare now for the inevitable hurricane induced
disaster.
' The purpose of this report is to assist Oslow County in
managing development and post -disaster reconstruction to reduce
the risk of future hurricane damages. It assists the County to
' plan ahead of time for the damages that a hurricane (or other
major storm) can cause.
' This plan covers four related phases of disaster planning:
' mitigation, preparedness, response and recovery.
A. Mitigation. (This phase involves activities which reduce
' the probability that a disaster will occur and minimize
the damage caused by a hurricane). The following key
mitigative actions are recommended for consideration:
(1) The allowable density of development at West Onslow
Beach should be reduced from 14.6 units per acre to
' 8 units per acre in -areas subject to flooding and
high winds and 6 units per acre in high hazard areas
t(as defined herein).
' (2) All non -conforming uses and structures should be
brought into conformity after a storm if they are
damaged beyond 50 percent of their current market
1

value. Slab -on -grade structures should be, replaced
with flood proof, elevated structures when damaged
beyond 15 percent of their market value.
(3) The zoning ordinance should be amended to rezone the
MHP and MHS categories to other categories which do
not allow mobile homes. All mobile home structures
are particularly vulnerable to storm damage and
should not be permitted at West Onslow Beach.
(4) Zoning regulations for all of the flood prone
mainland areas of Onslow County should be
established.
(5) The subdivision ordinance should be amended to
protect maritime forest vegetation from needless
destruction.
(6) A request should be submitted to NCDOT to consider
raising the base elevation of NC Highway 210 on West
Onslow Beach at the high rise bridge to a minimum of
8 feet MSL. This action is needed to prevent the
flooding of the area's major escape route during the
early stages of a storm evacuation.
(7) The "constructive total loss (CTL)" approach towards
the relocation of damaged structures in the high
hazard areas should be adopted (see Section 7.3.5
for details).
(8) A post -disaster reconstruction moritorium ordinance
should be drafted and adopted as soon as possible.
(9) A post -disaster reconstruction permit program should
be established.

I
A.
C.
D
(10) A -mutual aid agreement between the County and its
incorporated municipalities should be concluded as
soon as possible.
Preparedness. (Activities'which immediately precede a
hurricane which help the County to cope with threats to
life and property). It is recommended that the County
adopt the updated Hurricane Evacuation Plan (a separate
companion document) which provides procedures for
evacuation of the vulnerable areas prior to a storm.
Response. .(Activities which immediately follow a
hurricane including search and rescue, damage assessment,
and providing emergency housing and medical care).
Recovery. (Activities which involve the full rang.e of
repair and reconstruction activities which seek to return
the County to a state of normalcy).
The elements of Response and Recovery are addressed in The
Hurricane Damage Assessment Plan included in this report. It is
recommended that the County adopt the plan. Recommended actions
associated with response and recovery are summarized in Table
8.2.
Respectfully submitted,
HENRY VON OESEN AND,ASSOCIATES, INC.
L'
Paul S. Denison, P.E.
Vice President
Environmental Planner

HURRICANE STORM MITIGATION
AND
POST -DISASTER RECONSTRUCTION PLANS
ONSLOW COUNTY, NORTH CAROLINA
SECTION 1: AUTHORITY FOR THE STUDY AND REPORT
This hurricane storm mitigation and post -disaster reconstruc-
tion plan study and report has been prepared at the direction of
the Onslow County Board of Commissioners. The p::reparation of this
document was financed in part through a grant provided by the
i
North Carolina Coastal Management Program. Local funds and
in -kind services were also provided by Onslow County through the
Onslow County Planning Department and the Office of Emergency
Management.
1-1

L
SECTION 2: STUDY PURPOSE AND OBJECTIVE
The purpose and objective of this study
is the development of
storm hazard mitigation and post -disaster
reconstruction plans
that meet the specific needs of Onslow County, conform to the
State rules for storm hazard planning, and facilitate the updating
of the County's hurricane evacuation plan
based on information
developed through the planning process.
The "Onslow County
Hurricane Response Plan" evacuation plan),
P (
has been published as
a separate document. Pertinent portions of
that plan are referred
to herein as appropriate.
2-1

'SECTION 3: BACKGROUND
3.1 General
As barrier islands of North Carolina have experienced
increasing development, there has also been a growing awareness of
a need to protect and preserve the physical and environmental
values of the entire coastal area. At the same time, people have,
increasingly become aware of some of the risks or hazards inherent
in living in the coastal zone. This fact becomes even more
-apparent as more people come to the area, either as permanent
residents, tourists or day visitors, increasing development and
population densities to proportions not realized less than a
decade ago.
In.light of these growth and development experiences, both the
Federal and State governments began to focus attention on the
problems associated with this phenomenon and to take actions
establishingcontrols and guidelines in an effort to preserve the
public values and assets inherent in the coastal region.
Following a broad Federal mandate, the North Carolina General
Assembly passed the Coastal Area Management Act of 1974 (CAMA) in
response to these increasing pressures placed on coastal resources
by growing population, general development and recreational
demands. The act provides two key mechanisms for coordinating
resource management to more effectively protect and enhance the
use of coastal lands and waters; the formulation of local land use
plans and the designation of areas of environmental concern. CAMA
establishes a
cooperative program between the state and local
P
governments. Local governments are assigned the initiative for
3-1

planning and for developing local land use plans which articulate
the objectives of local citizens and their vision of desired
development patterns. The Coastal Resource Commission
(established under the act) is assigned a supportive standards
setting and review capacity which maintains uniformity in the
management of the State's coastal resources. The Commission
establishes guidelines for local land use plans and for
development in areas of environmental concern.l_•/
The Onslow County Land Use Plan?•/ is an outgrowth of the CAMA
program, and is a useful tool contributing to the objectives of
this particular report. Much of the data contained herein is
based on information contained in the land use plan and is so
referenced where appropriate. The broad land use plan is further
reinforced by specific zoning and subdivision regulations
discussed in detail later in this report. The land use planning
program, supported by regulations and guidelines promulgated by
the Coastal Resource Commission (CRC), was a major step towards
influencing the desired preservation, growth and development in
the coastal zone. However, these broad and sometimes general
guidelines did not adequately address the specific questions of
hurricane storm mitigation and post -disaster reconstruction
planning requirements. In recognition of this, the CRC appointed
a Post -Disaster Task Force to study the problem. After nearly two
years of study and recommendations, the CRC adopted changes in its
regulations, mandating that the problems of storm mitigation and
1./ 2./ All references cited are keyed to the Bibliography; see
Section 9.
3-2

post -disaster reconstruction be specifically addressed at the
local level. Limited funding support was made available, and this
Onslow County study and planning effort is one of the first to be
undertaken in the State to meet these requirements.
3.2 Prior Studies
In addition to the Onslow County Land Use Plan referenced
above, numerous studies and reports pertaining to the problem and
questions at issue have been prepared in the past. A few are
directly related to the questions addressed herein, but all
contain information pertinent to the investigation inherent in
this sudy and report. Only those references listed below and/or
included in the bibliography at the end of this report are
included that have specific bearing on this study. However, each
of the referenced reports also have listed biliographies.of other
reports containing information pertinent to the issue. A brief
summary of the most important reports having bearing on this study
are listed as follows and are included in the bibliography:
1./. William D. McElyea, David J. Brower, David R. Godschalk.
Before the Storm: Managing Develo ment_to Reduce
Hurricane Damages. Ocean and Coastal Ecology Program
Center for Urban and Regional Studies, U NC/Chapel Hill;
August 1982.
This excellent publication discusses the hurricane
hazard, possible mitigation actions, tools and programs
for such mitigation, and the planning programs associated
therewith. A typical case study using Topsail Island is
3-3

included, followed by suggestions pertaining to planning
for reconstruction. The information contained in this
report is relied upon heavily in this study related to
Onslow County.
2./ Onslow County Planning Department. Onslow County Land
Use Plan; October 5, 1981.
This document establishes planning goals and
objectives, and contains an excellent data base relating
to the economy, existing population, existing land use
and physical limitations, and constraints related to
development. Future needs and demands are projected, and
policies and objectives are established.
3./ North Carolina Department of Crime Control and Public
Safety. Carolina County Disaster Relief and Assistance
Plan - Prototype (With Annexes and Changes).1981-83.
This useful document was prepared by the N. C. Crime
Control and, Public Safety Department as a prototype for
use by local governments in developing plans to cope with
natural disaster in or near their jurisdictions. The
most applicable annexes include Annex "E" (Emergency
Shelter Plan) and Annex "0" (Hurricane Response Plan).
The general guidelines contained in these publications
are used as a prototype as applicable in corresponding
Onslow County plans.
3-4

4. Onslow Count Office of Emergency Management. Onslow
/ Y 9 Y
County Hurricane Response Plan. Undated.
This brief document was developed to provide for an
orderly and coordinated evacuation of Onslow County
W residents in hurricane vulnerable areas. This current
study effort will update and expand on this basic plan as
appropriate.
5./ Onslow County Board of Commissioners (Supported by Onslow
` County Planning Board and Planning Department). Zoning
Ordinance. Undated.
This document contains current regulations relative
to development criteria and zones or boundaries.
Consideration is given in this report to suggested
that be
changes or modifications to the ordinance may
appropriate to the conclusions and findings of this
study.
6./ Onslow County Board of Commissioners (Supported by Onslow
County Planning Board and Planning Department).
1979.
Subdivision Regulations. October,
This publication is designated to guide the
subdivision of land within the jurisdiction of the County
and to promote orderly use of the land. Modification of
the regulations is.suggested to support the findings and
conclusions of this study.

7./ John J. Hooten and Associates. Condominiums in Barrier
Islands (Preliminary Draft). 1983 - Unpublished.
This report summarizes the barrier island development
phenomenon with specific emphasis on condominium type
projects. It emphasizes the impact on the land and
environmental resources, while pointing out that such
impacts are not restricted to .condominium developments
alone.
8./ U. S. Army Corps of Engineers District, Wilmington.
Reconnaisance Report West Onslow Beach and New River
Inlet, N. C. (Draft). Undated.
This report contains a great deal of historical
information and data pertaining to the West.Onslow Beach
and New River region. Technical information contained in
the report is relied upon where appropriate to this
study.
9./ Federal Emergency Management Agency. Flood Insurance
Study - City of Jacksonville, North Carolina - Onslow
County (Preliminary). May 1983.
This detailed study defines and quantifies floodprone
areas within the City of Jacksonville relative to
hurricanes and related storm events. The information
developed in this plan is referred to related comments
pertinent to the Jacksonville area.
3-6

SECTION 4: AREA DESCRIPTION/INFORMATION
4.1 Gen
eral
The study area involves a narrow segment of barrier islands,
marsh areas and adjacent lowlands comprising the southeastern
boundary of Onslow County at its interface with the Atlantic
Ocean. The County is centrally located on a large embayment
(called "Onslow Bay") formed by the major coastal promontories of
Cape Lookout on the northeast and Cape Fear on the southwest.. A
map showing the study area location follows this page (Map 4.1).
The study area is approximately 29 miles long and is made up
of a system of low barrier islands trisected by three major inlets
(New River, Brown's and Bear Inlets) and bordered by Bogue Inlet
on the northeast. The Atlantic Intracoastal Waterway (AIWW),
wetlands and several small bays and sounds lie behind these
barrier inlands to the west. Low-lying areas on the mainland
fronting these sounds are at elevations subject to flooding and
consideration must be given to these areas in any hurricane and
disaster planning programs.
The United States Marine Corps Base at Camp Lejeune lies in
the middle of the study area and comprises almost one half of the
coastal area involved in the study (the Marine Corps is
responsible for its own hurricane protection and disaster
planning, and no further consideration will be given to this
coastal segment other than to insure coordination with Onslow
County's plans). The northernmost island in Onslow Co unty's
barrier islands chain is generally undeveloped and is the location
4-1

r
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MAP OF STUDY AREA
(MAP 4E1)

of Hammocks Beach State Park This island will be referred to
later in this report, but only minimal planning actions are
necessary associated with its development and use.
The remainder of the Onslow County coastal area is made up of
the northern one—half of Topsail Island (formerly known as "Ashe
Island"). The majority of attention in this study and report is
focused on this area in that it is the only developed barrier
island segment in the study area. This island segment is commonly
known as "West Onslow Beach." This portion of the island is
approximately ten miles long and varies in width from about 900
feet to 6,000 feet. The primary dune system is narrow and varies
in elevation from approximately 10 feet to 25 feet above mean sea
level (MSL). West Onslow Beach is only sparsely developed with
most dwellings used as summer resort housing.
4.2 Other Pertinent Physical Characteristics
As previously mentioned, general elevations on West Onslow
Beach range from 6 to 25 feet above mean sea level. However, with
the exception of some of the higher foredunes, the entire island
is designated as a "floodprone area" subject to inundation during
severe hurricanes. Excluding saltwater marsh areas, the island
has an average width of about 1,000 feet and an average elevation
of 8 feet above mean sea level.

4.3 Winds
Records of the National Oceanic and Atmospheric Administration
(NOAA) weather service station at Wilmington, NC were compiled for
the period 1948 through June 1960 and are shown on the wind rose
diagram following this page (Chart 4.3.1). As indicated, the
predominant winds occur from the southwest, north and northeast
directions. Winds out of the northeast direction, particularly
when associated with northeaster storms, cause considerable
erosion along the entire exposed beach area.
4.4 Wave Data
The nearest wave gauge station located with respect to the
study area is at JohnnyMercer's Pier at Wrightsville Beach, NC
(south of the study area). Wave gauge data was collected during
the period March 1971 to February 1975. The average significant
wave height was 2.55 feet and the average wave period was 7.88
seconds. The gauge location is about 20 miles from the center of
the study area. Similar information was collected at Atlantic
Beach, NC (to the north of the study area) with relatively similar
results. Thus, the general wave and wind information can also be
expected to apply to the study area. (See Reference 8,
Bibliography)
4.5 Tide Data
Records on the tide data have been compiled by NOAA and
predictions published in their tide tables for the east coasts of
North and South America. Mean tides in the study area are
semi -diurnal and indicated to be approximately 3.0 feet with
spring tides running slightly higher at about 3.5 feet.
4-3

WIND DATA
LEGEND
20 KTS
12 - 20 KTS-
7 -20 KTS.
3-7KTS.
WIND SPEED VS. DIRECTION FOR WILMINGTON, N.C. (1948 -1960)
Source: USAED/Wilmington. Reconnaisance Report - West Onslow
Beach and- %w River (Reference 8/) .
cwT 4.3.1

4.6 Storm Tides
NOAA also prepared a storm tide frequency analysis for the
coast of North Carolina south of Cape Lookout. This study was
requested by the Federal Insurance Administration (HUD) in
connection with the National Flood Insurance Program. Flood
insurance studies have been conducted for both Topsail Beach and
Surf City just south of the study area, whereas West On slow Beach
(which is unincorporated) has not yet been studied by FIA.
Nevertheless, storm tide stages for various frequencies along the
Topsail Island coastline taken from NOAA publications are shown
below (Table 4.6.1). These data are considered to be applicable
to the study area. (See Reference 8, Bibliography).
TABLE 4.6.1
Storm Tide Stages for Topsail Island, North Carolina
Probability of Total Tide Height
Return Period Occurence Each Year Static Water Levels
(Years)-, (Percent) (Ft. MSL)
5 20 5.0
10 10 6.6
25 4 9.1
50 2 10.8
100 1 12.6
500 0.2 16.0
The above data are presented as being important to the
considerations applicable in this report. These factors, coupled
with storm history and an overall vulnerability analysis discussed
us b taken into consideration when evaluating roper
below, must e g P
actions and procedures for hurricane evacuation mitigation and
j post disaster reconstruction.
4-4

4.7 Storm History and Vulnerability$•/
.The Topsail Island and West Onslow Beach coastline is highly
vulnerable to hurricanes which produce winds in excess of 100
miles per hour. During the last twenty years, there has been a
storm -free period with no major hurricanes affecting the North
Carolina coastline; however, during the 1950's there was
considerable hurricane activity along North Carolina coastal
areas. Hurricane tracks for the period 1952 through 1960 are
shown on the sketch map following this page (see Map 4.7.1).
Hurricane Donna (September, 1960) was the last storm to pass
directly over the study area. Representative high water marks
compared with tide frequencies for the 100-year return period are
also graphically shown on the sketch following the hurricane path
map (Chart 4.7.2). This information clearly depicts the hurricane
threat potential associated with the Onslow County coastal area.
(Note: A summary of the hurricanes depicted on these charts is
complied in the National Weather Service/NOAA publication
entitled, "Storm Time Frequency Analysis for the Coast of North
Carolina South of Cape Lookout." Technical information relative
to each of these storms, including overall damage assessments, is
included in the referenced report. The reader is referred to the
text of this report for further details).
It should be emphasized that during Hurricane Hazel, which
impacted the N. C. coastline in October 1954, all of Topsail
Island was flooded (except for some higher dunal elevations) such
that storm waves actually impinged on the mainland segment of the
4-5

HURRICANE TRACKS
i
1
1
1
1
1
1
1
1
1
1
1
1
i
1
1
1
14AZEV
"Dl HE OCTOSEPi,
A[1G!JST 1954
1955 4 I
37•
AA:+s•
.P nA.
OLT Ay
•b
3A'
,,CONr44E•' -CAROL~
Fll•�f'.`•T 1 AIIGUST
^BARBARA"
1:55 1954
AUGUST
1963
�DCANA"
SEPTEMBER
1960
••toHE~
—'—"'—• ��
SEPTEMBER
A''
1955
Q
•• H ELEr1E ~
SEP1EMBER
:.�.�
1958
CAPE
•i � ftAl�[
J 4N
ICAPE Lo4KOUT
f � I
4,
1
1 P
i
760
7a•
HURRICANE TRACKS
FOR
1952 - 1960
Source: ' 8/ (See BibliographY)
m4P 4,7,1
79•

HIGH WATER MARKS VS 100-YR
cc _ m w =
W U
J U J F-
w
m Q F m jW w J cc J m Y
m 0 cc Q Q m In W Z U.m 0
U Z a w Z fN J ? W Z 0 0
I� jZ U.
W 0 0 en 1-- 0 Q 0 W
0 a a o w Z a w
z 3
� 1 -
i
20 I 1 l
1 01954 1 } L a (I I
1.1954 I I I S �UDY
A� 1 1
•1954 1 I I I —
I 1I I.
`S 1954
1954
.1954 '_ I I I I I I
•1899r(Oct) 1
• 1960
w 10 —
_ I 1954 • I 91893j(Octlf'.% 1 I
wp 1960• •18991(Aug)}• I 019601 I
t= 1 1955C • i • 1960, ) `• 1954 I I .
1955D 1955C I 1 L_•19551
I 01955C 1955D• 1 11944, 1 ('I `�'••1954:"HAZEC
5 ( • 1960 195510 1019551 I 1 (1 01955C I -
-
0 '
0 50 100 150
DISTANCE FROM N.C.-S.C. BORDER (n.mi.)
Representative hir,i:-water marks compared with tide
frequencies for the 100-yr return period.
Source: 8/ (See Bibliography)
CHART 4.7.2

1 area. The effects of this storm which made landfall in Brunswick
' County, NC indicates what could happen if a storm of similar
intensity to that of Hazel were to affect the area.
r
r
4-6

SECTION 5: REGULATORY PROGRAMS INFLUENCING THE PROBLEM
5.1 General
Innumerable state and federal programs influence and/or
control activities in the coastal zone; however, two of these
programs are of primary concern relative to hurricane storm
mitigation and post -disaster considerations. These are the
previously mentioned Coastal Area Managment Act regulations
administered by the North Carolina Resources Commission (CRC), and
the National Flood Insurance Program established by Congress in
the National Flood Insurance Act of 1968 (Public Law 90-448). The
North Carolina State Building Code also has bearing on the
problem. Factors relative to these activities that impact upon
the objectives of this study and report are summarized in the
following subsections.
5.2 CAMA Regulations and Use Designations
In carrying out its CAMA mandate, the CRC has identified four
categories of areas of environmental concern (AFC's): the
estuarine system, ocean hazard areas, public water supplies, and
natural and cultural resource areas. The AEC categories with
provisions for mitigating hurricane damages are ocean hazard areas
and the estuarine system. A description of these areas follows,
including permitted uses and other requirements for development
within ocean hazard AECs and estuarine system AECs (these
descriptions and related maps are paraphrased from Reference 1).
5-1

5.3 Ocean Hazard AECs
Ocean hazard AECs are most directly related to hurricane '
hazard mitigation. These are areas especially;vulnei"able to
erosion and other adverse effects of sand, wind, and water where
uncontrolled or incompatible development could unreasonably
endanger life or property. Ocean hazard areas include beaches,
frontal dunes, inlet lands, and other areas in which geologic,
vegetative, and soil conditions indicate a substantial possibility
of excessive erosion or flood damage. While presenting a hazard
to development placed on them, these landforms also afford natural
protection to development located landward of them. This
protection of lives on property would be lost if uncontrolled
development were allowed to significantly alter the beaches,
frontal dunes, and.inlet lands. Therefore, regulating development
within ocean hazard areas benefits the entire community.
Absolute safety from the destructive forces of the sea is not
possible for coastal development. It is also not always feasible
or desirable to totally block development within hazardous areas.
However, the appropriate siting and design of structures in ocean ,
hazard areas and the protection of oceanfront landforms can
9Y
reatl reduce the risk to life and property. With this in mind,
the Coastal Resources Commission has developed management policies '
and standards for ocean hazard areas that serve to eliminate
unreasonable danger to life and property and achieve a balance ,
between the financial, safety, and social factors that are
involved in hazard area development. The CRC's standards in ,
furthering CAMA's goals give particular emphasis to minimizing
5-2

losses to life and property resulting from storms and long-term
erosion, preventing encroachment of permanent structures on public
beach areas, and reducing the public costs to inappropriately
sited development.
The CRC has designated three types of ocean hazard AECs:
(1) ocean erodible areas; (2) high hazard flood areas; and
(3) inlet hazard areas.
The ocean erodible area is the beachfront zone which exhibits
a strong possibility of erosion and shoreline fluctuation. The.
ocean erodible area includes all land between the mean low water
line and the CRC's erosion setback line. The erosion setback line
is the distance landward from the first line of stable vegetation
determined by multiplying the long-term annual erosion rate for a
particular segment of beach by 30 (theaveragelife of .a
' building). In no case shall the erosion setback line be less than
60 feet from the vegetation line. The ocean erodible area also
includes a distance landward of the erosion setback line to the
recession line that would be generated by a storm having a one
percent chance to being equalled or exceeded in any given year.
The high hazard flood area corresponds to the "V-zones"
(VI-V30) which appear on the Federal Insurance Administration's
flood insurance rate maps. V-zones are those areas subject to
high velocity waters (such as hurricane wave wash) in a one
percent probability storm (the "base flood"). While V-zones
usually lie along the oceanfront, several communities in North
Carolina have V-zones along their estuarine shorelines. A storm
surge can arise from the State's broad sounds as well as the
5-3

ocean. However, the CRC's designation of V-zones as AECs applies
only to ocean front V-zones. Where the Federal Insurance
Administration has not prepared rate maps for a community, the
local government may use base flood elevation data prepared by
federal, state or other sources to delineate the high hazard flood
area. The data source must be approved by the CRC (a more
detailed description of the National Flood Insurance Program and
its methods of determining coastal flood hazard areas appears
later in this section).
The inlet hazard area, due to its proximity to a dynamic ocean
inlet, is especially vulnerable to erosion, flooding and other
adverse natural processes. The inlet hazard area is an extension
of the ocean erodible area which encompasses those sites where,
based on statistical analysis, the. inlet can be expected to
migrate. The delineation of an inlet hazard area includes such
factors as previous inlet territory., a barrier island's "weak
spots" near the inlet (such as overwash fans and unusually narrow
areas), and external influences (such as jetties and channeliza-
tion projects). Maps designating inlet hazard areas must be
approved by the CRC.
5.4 Estuarine System AECs
Estuarine system AECs also bear a direct relationship to
hurricane hazard mitigation. Where ocean hazard AECs deal with
the dynamics of the oceanfront, estuarine system AECs deal with
the problems attending development in our near estuarine lands and
waters. North Carolina's extensive estuarine system is dynamic -
5-4

subject to the full complement of water, wave and wind forces.
Therefore, development in or near the estuarine system is subject
to erosion and flooding hazards similar to those that accompany
oceanfront development. It must be remembered that a large
portion of the damages that North Carolina has sustained from
hurricanes and other major storms have been the result of
estuarine flooding and erosion, when the storm surge piled into
the State's many sounds.
While the primary intent of the CRC's guidelines for
development in estuarine system AECs is the preservation of the
system's biological productivity, the guidelines also aim to
minimize the likelihood of significant loss of private property
and public resources. The geological processes and rates of
change in the estuarine system are not always as dramatic or as
■ visible as those along the ocean shore, but they are nonetheless
important in exposing development to the destructive forces of
flooding and erosion. Just as the ocean beaches and dune systems
provide protection to landward development, estuarine shorelines
and wetlands help buffer development from erosion and absorb
floodwaters. Significant alterations to these land forms can
weaken the system and put an entire community at risk.
The CRC's has designated four types of AECs within the
estuarine system: (1) coastal wetlands; (2) estuarine waters;
(3) public trust areas; and (4) estuarine shorelines. The
management of estuarine shorelines and coastal wetlands is most
relevant to hurricane hazard mitigation.
IM

Estuarine shorelines are non -ocean shorelines which are
especially vulnerable to erosion, flooding or other adverse
effects of wind and water, and are intimately connected to the
estuary. The Commission has designated the estuarine shoreline
AEC to encompass the area along the estuaries, bays, sounds and
other brackish waters from the mean high water level to a landward
distance of 75 feet. Development within this area can affect the
quality for the estuarine environment and is typically exposed to
erosion and flooding damages.
Coastal wetlands are defined by the CRC as any salt marsh or
other marsh subject to regular or occasional flooding by tides,
including wind tides but not hurricane or tropical storm tides.
These coastal wetlands serve as the first line of defense in
retarding estuarine shoreline erosion. Wetland plant stems and
leaves tend to dissipate wave action, while ,the vast network of
roots and rhizomes resists soil erosion. In this way, the coastal
wetlands serve as barriers against flood damage and control
erosion between the estuary and the uplands.
5.5 N. C. State Building Code_/
Building codes set standards for construction materials,
design, and procedures in order to protect lives and property.
Important in safeguarding the health, safety and welfare of the
public from unsafe construction practices in normal times,
building code standards take on crucial importance during natural
disasters such as hurricanes, when extraordinary stresses are
imposed on manmade structures. In coastal communities subject to
5-6

1
' hurricanes the building code is one of the most important tools
for mitigating hazards to life and property during both the
development that takes place before the storm and the
reconstruction following the storm.
Building codes regulate the construction, alteration,
1 maintenance repair and demolition of buildings and structures.
P g
1 They establish minimally acceptable conditions or standards for
all phases of building construction, based upon the properties of
construction materials, physical and chemical principles, and
engineering and architectural criteria. As legal guides for
designers and contractors building codes are enforced
engineers,, g
by local government building inspectors who check construction
plans prior to issuing building permits and periodically inspect
construction sites to ensure that approved plans are followed.
The two major types of building codes are performance codes
and specification codes. A performance code recommends the
objective to be accomplished and allows the designer to select
from various materials and techniques to achieve the desired
result. A specification code describes in detail the exact
materials and methods to be used. In practice, most codes
emphasize performance standards but also include certain
' specifications for materials and design.
North Carolina's State Building Code (Volume I, General
Construction) applies uniformly to the design, construction,
location and installation of all new residential and commercial
structures thoroughout the State. To be legally effective, any.
' city or county building code must be approved by the Building
5-7

Code Council. In the interest of standardization, local
deviations from the State Building Code are approved only if a
local government can present compelling evidence of necessity for
the deviation. The North Carolina Supreme Court has consistently
ruled that the State Building Code preempts local building code
authority on grounds of the supremacy of state laws over local
ordinances.
'In addition to the State Building Code, the North Carolina
Building Code Council has adopted the North Carolina Residential
Building Code (Volume I-B), which governs the construction,
alteration, repair and removal of one and two-family dwellings.
The Residential Building Code does not apply to apartments,or
multi -family residences for three or more families. The
Residential Building Code's Appendix D, "Wind Resistive
Construction," applies to coastal communities and other areas
where residences are subject to winds of greater than 75 miles per
hour.
Further construction standards have been adopted by the
Coastal Resources Commission. CAMA regulations for ocean hazard
AECs require that buildings comply with Appendix D of the code,
except where more restrictive standards have been set by the CRC.
These standards include requirements for piling size and
embedment, foundation stability during a 100-year storm, and floor
elevation above the 100-year flood height.
5-g

5.6 National Federal Flood Insurance Program (NFIP)_
Congress established the National Flood Insurance Program with
the National Flood Insurance Act of 1968 (Public Law 90-448) to
reduce annual flood losses through more careful planning of
' floodprone areas and to provide property owners in those areas
with affordable insurance against flood damages. The National
' Flood Insurance Program sets guidelines for developers,
homebuilders, and local governments to follow in order to qualify
for flood insurance. The program also contains innovative
provisions for post -disaster reconstruction which facilitate the
relocation of damaged structures out of hazardous areas. The
wide range of federal disaster assistance programs are designed to
ease the burden of rebuilding after a disaster. The requirements
of these programs vary and provide different opportunities for
influencing the character of post -disaster reconstruction.
' Order 11988 "Flood lain Mana ement " directs federal
Executive , p g �
' agencies to avoid encouraging unwise development on floodprone
lands. The Coastal Zone Management Act calls for federal actions
to be consistent with the State's coastal management program,
' which includes state and local hazard mitigation and reconstruc-
tion policies.
' The National Flood Insurance Program, which is administered by
the Federal Emergency Management Agency's Federal Insurance
Administration (FIA), offers flood insurance to property owners in
designated flood hazard areas. In return, local and state
governments enact and enforce comprehensive floodplain management
' measures to protect lives and properties from future flooding.
5-9

These floodplain management measures typically involve land use '
controls and construction standards, as well as other techniques, ,
applied within floodprone sections of a community. These include
all land which would be inundated by the "base flood" or 100-year t
flood (that is, the flood which has one percent chance of being. ,
equalled or exceeded in any given year). The program's main
purpose is to reduce the amount of developed property exposed to '
flooding. It reflects the realization that "non-structural"
measures are just as important as "structural" measures in w
mitigating flood damages.
There are two stages of community participation in the
.National Flood Insurance Program: the Emergency Phase and the
Regular Phase. All of North Carolina's coastal communities are
enrolled in either the Regular Phase or the Emergency Phase. '
Emergency Program. A community enters the Emergency Phase
after the FIA provides it with a "flood hazard boundary map," '
which delineates flood hazard areas based on the best available
data. To be accepted into the Emergency Phase, the community must
have in force preliminary measures for regulating development in '
designated flood hazard areas. The community must require permits
for all construction in the community and must review '
proposed Y
permits to ensure that development is reasonable safe from '
flooding.
Regular Phase. Once the community is in the Emergency Phase, '
the Federal Insurance Administration undertakes a detailed study
of the community's base flood elevations (BFEs) and flood hazard '
areas, including the development of a "flood insurance rate map" ,
5-10

(FIRM). Based on the study, the FIA derives a schedule of
' actuarial (non -subsidized) flood insurance rates and the community
develops more detailed floodplain management regulations. once
the community adopts these regulations, it enters the Regular
Phase, which provides higher levels of insurance coverage for new
and existing residential and non-residential structures. The
' regulations must protect new construction in designated flood
hazard areas from inundation by the 100-year flood (or "base
f lood") .
'
Flood insurance rate maps
for coastal communities
divide the
100-year floodplain into two
adjacent zones: A -zones
and V-zones.
the delineation of A -zones
and V-zones is based
on the best
information available on the
storm surge levels a community
can
'
expect in a 100-year storm.
The A -zone contains that
area of the
100-year,floodplain which
is primarily subject
to "static"
flooding from storm surges (i.e., rising water but
little or no
wave action). The V-zone,
which lies along the
shorefront,,
contains that area of the 100-year floodplain which is subject to
wave action as well as the storm surge. The V-zone (also known as
' the "coastal high hazard flood area") is usually determined by the
inland extent of a three-foot breaking wave.
' An important change is currently underway to refine the NFIP's
determination to base flood elevations (BFEs) in V-zones. Flood
' insurance rate maps developed before 1982 geared V-zone BEFs to
the water level associated with the 100-year storm surge. This
did not account for waves that would appear atop the surge and
damage structures elevated only to the storm surge level. The
5-11

Federal Insurance Administration is now using procedures to
calculate 100-year wave crest elevations. These elevations
(higher than the 100-year storm surge levels previously used) will
become the BFEs for V-zones on all new rate maps and will be used
to revise the BFEs appearing on existing rate maps. This
adjustment will involve changes in local insurance premium
schedules and regulations governing construction in V-zones.
To enroll in the Regular Phase, a community must adopt and
administer a set of development regulations that meets the
National Flood Insurance Program's minimum requirements. These
regulations must be legally enforceable, apply uniformly through
the community, and take precedence over any less -restrictive local
regulations. They apply in addition to those regulations already
adopted under the Emergency Phase. Th'e minimum regulations
required in the Regular Phase are listed in Table 5.6.1 following
this page. "They apply to new construction and substantial
improvements to existing structures.
5.6.1 Areas Not Covered by NFIP
During the 1981-82 time frame, the U.S. Department of Interior
created a Coastal Barriers Task Force to identify "undeveloped"
barrier islands and make recommendations concerning withholding of
federal grants or other funding assistance that might promote
development of these areas. This action was consistent with the
aforementioned Executive Order 11988 directing federal agencies to
avoid encouraging unwise use or development of flood prone lands.
The task forces findings and recommendations resulted in the
passage of the Coastal Barrier Resources Act of 1982 by Congress.
5-12

rr r ar ri rr rr �r �r ■r r r■r rr r rr it r■� r� rr r�
TABLE 5,6.1: MINIMUM FIA REQUIREMENTS FOR REGULAR PHASE COMMUNITIES
Flood Hazard Zone
Development Requirement
A -zone
-Residential structures must be elevated -to the'base flood level (includes mobile
(base flood
homes outside of existing parks or subdivisions).
determined)
-Non-residential structures must be elevated or floodproofed to base flood level
(registered engineer or architect must certify adequacy of floodproofing methods).
-Mobile homes must be elevated to the base flood level iri mobile home parks or mobile
home subdivisions that are new or have been substantially improved (repair,
reconstruction, or expansion exceeding 50 percent of the value of existing streets,
utilities, and pads).
-Mobile homes must be anchored by over -the -top and frame ties to resist flotation,
collapse, and lateral movement.
-Evacuation plans for mobile home parks and mobile home subdivisions must be filed with
appropriate disaster preparedness authorities.
-No new construction or substantial improvement may cause the base flood level to
increase by more than one foot at any point in the community.
-The community must maintain an accurate and up-to-date record of elevation and
f loodproofing heights for all new and substantially improved structures.
V-zone
All of the above apply, plus the following:
-All structures must be landward of the mean high tide line.
-All structures must be elevated to the -base flood level on pilings or columns. A
registered engineer or architect must certify that anchorages between the pilings and
the floor of the.structure are adequate to withstand velocity waters and hurricane wave
wash.
-Fill may not be used for structural support.
-The space below the base flood elevation must be free of obstruction or constructed with
"breakaway walls."
Mobile homes may only be placed in existing mobile home parks or mobile home
subdivisions.
-Man-made alterations of sand dunes are prohibited if they will increase potential flood
damage.
Source: l/ (See Bibliography)

West Onslow Beach was one of the specific areas identified in
the act regarding restrictions on federal aid or assistance to
designated areas. All of the undeveloped gportions of the island
(according to the Act's definition of undeveloped) are not
eligible for coverage under the NFIP. Consequently, any new
' construction or development will not be covered by flood insurance
' under the program. Areas designated as "not -eligible" are shown
on sketch map (Map 5.1) following this page. It is also
emphasized that this federal assistance restriction is not limited
only to flood insurance coverage, but will also limit federal
participation (or funding assistance) in other programs such as
highways, utilities, etc., where such assistance is normally
available. This factor above should specifically influence future
development planning factors related to the West Onslow Beach
area.
1
5-13

SECTION 6: STUDY AREA INVENTORY AND ASSESSMENTS
6.1 Population and
Growth
6.1.1 Existing Population Densities'
Critical to this plan is an understanding of the permanent and
' seasonal population which exists in the beachfront and low-lying
areas of the County. The number of persons in the hurricane
impact area will in part govern when evacuation is ordered and
will also influence post -disaster reactions to the storm.
Table 6.1.1 shows the Onslow County 1980 Census populations by
rarea.. The population of 240 persons at West Onslow Beach reflects
only the permanent population Table 6.1.2 shows the Onslow
County 1980 Census population by township. It should be noted
' that Stump Sound Township contains the West Onslow Beach and
Sneads Ferry areas which are most susceptible to hurricane damage.
6.1.2 Future Population Projections
According to the Onslow County Land Use Plan, based on recent
historical trends, Onslow County's population is projected to
' continue to increase over the next ten years but at a slower pace
than in the past. Previous projections given by the North
Carolina Department of Administration for 1980 (121,653) were
' extremely optimistic in relation to the preliminary estimates by
the U. S. Bureau of the Census (112,165). Therefore, according to
' the Land Use Plan, the Department of Administration's 1990
projection of 124,000 should actually be less, as indicated in
Table 6.1.3.
6-1
1

1
i
1
1
TABLE 6.1.1
ONSLOW COUNTY
1
1980 POPULATION BY AREA
Area
Population
1
Swansboro
976
Richlands
825
'
Holly Ridge
465
West Onslow Beach (UNINC)
240
-,
Camp Lejeune
35,000
Jacksonville
-
22,00.0
Unincorporated
County Areas
53,278
1
COUNTY TOTAL
112,784
SOURCE: Onslow
County Land Use Plan (1981)
Onslow
County Planning Department
1
1
i
1

TABLE 6.1.2
'
ONSLOW COUNTY
POPULATION BY TOWNSHIP
'
TOWNSHIP*
1960
1970
% CHANGE
1980
% CHANGE
Jacksonville
40,834
55,737
36%
54,111
-3%
Richlands
7,331
7,752
3%
9,006
19%
'
Stump Sound
5,486
5,545
1%
7,500
35%
'
Swansboro
21,678
20,800
-4%
23,380
12%
White Oak.
10,879
13,472
24%
18,787
39%
86,208
103,126
20%
112,784
9%
SOURCE: Onslow
County
Land Use
Plan (1981)
*Refer to
Map 4.1
for Township boundaries.
1

TABLE 6.1.3
ONSLOW
COUNTY
FUTURE POPULATION
ESTIMATES
AREA
1980
1990
% CHANGE
Onslow County
112,784
447
122,447
8.6%
Jacksonville Twp.
54,111
56,100
3.7%
Jacksonville City
(22,000)
(25,000)
(13.6%)
Swansboro Twp.
23,380
25,960
11.0%
Swansboro Town
(976)
(1,025)
(4.90)
Stump wPSound Twp.
7,500
8,507
13.4
'
Holly Ridge Town
(465)
(512)
(10.00)
Richlands Twp.
9,006
9,843
9.3%
Richlands Town
(825)
(860)
(4.2%)
White Oak Twp.
18,787
22,037
17.3%
SOURCES: U. S . Bureau of the
Census and Onslow
County Planning
Department.
r
_

Much of the projected growth in Onslow County will continue to
be in the vicinity of the City of Jacksonville with some of this
growth occuring within the extraterritorial jurisidction of the
City.
' An important factor to consider is the impact of the seasonal
population on Onslow County's economy and public facilities.
These visitors will grow in number and will demand many of the
same services provided for full-time residences. Much of the
seasonal population will be located at West Onslow Beach. Listed
in Table 6.1.4 are population projections for that area.
6.2 Existing and Future -Land Use
Existing (1981) land uses for Onslow County and West Onslow
Beach are shown in Tables 6.2.1 and 6.2.2,`respectively. Table
r
6.2.3 shows the future land use needs by category of development.
A good portion of the residential land use needs will be met by
the West Onslow Beach area of the County due to the pressures for
development in that area. A significant factor in that develop-
ment will be the multi -unit condominium type project. A current
listing of new projects in this category is shown in Table 6.2.4.
West Onslow Beach contains approximately 3,283 acres of land.
Of this, 1,789 acres are classified as wetlands (conservation)
where, due to prevailing laws and regulations, little or no
development is allowed to occur. Of the remaining 1,494 acres ,
some 564.3 acres located along some 11.5 miles of oceanfront are
classified as beaches, of which an estimated 50 percent (282.2
acres) is associated in some way with existing development. In
other words, the land in the beaches classification is located
6-2

TABLE 6.2.4
POPULATION PROJECTIONS FOR
WEST ONSLOW BEACH
ONSLOW COUNTY, NORTH CAROLINA
AVERAGE PEAK
MAXIMUM
YEAR
PERMANENT
SEASONAL SEASONAL
POPULATION
1980
240
1,850 3,480
3,770
1985
465
3,515 6,612
7,770
1990
700
5,273 9,918
10,335

TABLE 6.2.1
1981
EXISTING LAND USES
ONSLOW COUNTY
ACREAGE
%
Agriculture (Cultivated)
42,596
8.80
Industry
600
< 1
Commercial Forestry
113,726
23.51
Camp Lejeune
108,480
22.42
Incorporated Areas
8,095
1.67
Hofmann Forest
53,696
11.10
Commercial
561
< 1
Residential
6,170
1.28
Water & Marsh
36,864
7.62
Private & Other Forests
96,002
19.84
RecreationLand (Public)
1,050
< 1
Urban & Rural Non -Farm
16,000
3.31
483,840
100%
'`
SOURCE: Onslow County Land
Use Plan (1981)

TABLE
6.2.2
EXISTING
LAND USES
WEST ONSLOW
BEACH
TOTAL
1981 ACREAGE
% OF TOTAL
USE
1976 ACREAGE %
OF
Residential
155.2
4.7
216.4
6.6
Commercial
26.0
0.7
36.9
1.1
Undeveloped &
R/W 749.0
22.7
676.9
20.7
Wetlands
1,788.5
54.4
1,788.5
54.4
17.2
Beaches
564.3
17.2
564.3
3,283.0
100.0%
3,283.0
100.0%
SOURCE: Onslow County Land Use Plan
(1981)

TABLE 6.2.3
'
ONSLOW COUNTY LAND USE NEEDS
CATEGORY
ACREAGE
OF USE
1980
NEEDED
Recreation
1,050
-----
Residential
6,170
576
Industrial
600
90
Commercial
561
85
Note: Excludes
municipalities
and Camp Lejeune
SOURCE: Onslow
County Land Use
Plan (1981 )
1990
6,746
690
646

TABLE 6.2.4
MULTI -UNIT CONDOMINIUM PROJECTS
WEST ONSLOW BEACH, NORTH CAROLINA*
Project
Number of Units
Number of Acres
Lionel Yow Project
575
40+
340
50+
Permuda Island (Revision)
Oceanbay Village
130
10+
Sp hi Watch Villas
40
5+
Bermuda Landing
72
7+
Topsail Villas
60
4.5+
55
6+
Island Villas
1,272
122.5+
* Source: Onslow County
Planning Department.
List current to
April, 1984.

between existing development and the ocean. This acreage enters
into the calculation of total available developable acreage even
though, due to CAMA regulations, it will essentially remain
untouched. Thus, a total of about 950 acres of land (1981 data)
is available for development at West Onslow Beach.
The development of Topsail Reef Condominiums at the eastern
end of the island foretells the scale of development West Onslow
Beach can expect in the future if current land use plan guidelines
and other constraints remain unchanged. The developer of Topsail
Reef Condominiums has with the approval of the N. C. Division of
Environmental Management, constructed a privately financed and
privately maintained one million gallon per day sewerage disposal
system for West Onslow Beach, with the capacity for expansion to
three million gallons per day. This system serves the first
phases of a 582-unit condominium development he plans to build
just west of Topsail Reef, as well as a 600-unit development that
another developer has proposed for Permuda Island (a low-lying
soundside island that is connected to Topsail Island by a low,
narrow and unpaved causeway:)*
6.3 Existing Local Regulations - Ordinances
In view of the preceeding discussions related to population
and growth projections, the question arises regarding how
effectively existing regulations and ordinances can serve to
* As of this writing, a zoning change to permit the development
has been contested by a law suit by local interests who have
argued that such a development will result in adverse
environmental effects on fisheries in the estuarine waters
adjacent to Permuda Island.
6-3

1
accommodate this expected growth in hurricane vulnerable areas.
State and Federal regulatory programs influencing the problem were
discussed in Section 5. In addition, the following local
regulations or ordinances may or may not affect growth and
development in the areas of Onslow County most susceptible to
storm attack and damage.
6.3.1 Zoning ordinance
This ordinance applies only to West Onslow Beach and County
property at the County airport. Bonafide farms and related uses
are specifically excluded, as are areas within any incorporated
municipalities. The stated purpose of the ordinance is to promote
the health, safety and welfare of the people within the zoning
jurisdiction of Onslow County and regulate the height, number of
stories, size of buildings and other structures; the percentage of
a lot that may be occupied; the size of yards, courts and other
open spaces; the density of population; the location and use of
buildings, structures and land for trade, industry, residence or
other purposes, except farming; to create districts and establish
boundaries for said purposes; to define certain terms used in the
ordinance; and to provide penalties for violation of the ordinance
and for other purposes. A description of the zoning districts is
shown in Table 6.3.1. Table 6.3.2 shows the number of acres of
land associated with each zoning district.
The zoning ordinance permits mobile homes and multi -family
condominium developments at West Onslow Beach, subject to the
ordinance's lot size restrictions. For reconstruction following a
6-4

TABLE 6.3.1
DESCRIPTION OF ZONING DISTRICT'S
ural District - The'purpose of this district
1 RA (Residential -Agricultural) P
shall be to -set aside and protect those lands which are primarily suited
for -agriculture, agricultural -related uses or woodlands.
2 R-40 Residential District - The purpose of this district shall be to
provide large residential lots where they are preferred and to provide
sufficiently low densities where septic tanks are used in marginal or
severe soils to insure a healthful environment.
3 R-20 (Residential District) - The purpose of this district shall be for
low density residential and recreational uses to be protected from undesirable
future development and those residential developments not having access
to central water and sewer will occur in sufficiently low densities to
insure a healthful environment.
4 R-15 Residential District - The purpose of this district shall be to
provide for development of neighborhoods with medium population density
comprised of single-family residences where water or sewer facilities
ti are accessible.
5 R-10 Residential District - The purpose of this district shall be to
provide land for meditun density residential and recreational purposes.
The regulations of this district are intended to discourage any use which
because of its character would substantially interfere with the develop-
ment of residences and which would be detrimental to the quiet residential
nature of the areas included within this district.
6 R-8 Residential District - The purpose of this district shall be to provide
land for single-family, two-family and multi -family residences and recrea-
tional purposes. This district is intended to provide areas of the com-
munity for those persons desiring small residences and multi -family structures
in relatively high density neighborhoods. Any uses shall be discouraged
which interfere with the residential nature of this district (highest,
permissible density is 9.9 units/acre for multi -family residences):
7 R-5 Residential District - The purpose of this district shall be to provide
land for multi -family and other residences and recreational purposes.
This district should provide areas for apartments, townhouses, PUDs and
PRDs (highest permissible density is 14.6 units/acre for multi -family
residences).
8 MHP Mobile Home Park District - The purpose of this district shall be
to provide an area for mobile hammer owners to rent or buy an area in which
to put a mobile home for the purpose of inhabiting it. Mobile home sales
are not permitted in this district.
9 MHS Mobile Home Subdivision - The division of land into lots primarily
designed for mobile home usage but adaptable in many cases to other.residential
uses.
I

1
TABLE 6.3 .1 (font' d)
10 B-1 Highway Business District - The purpose of this district shall be
to provide for the proper grouping and development of roadside business
uses, and for uses not basically related to central or neighborhood business
areas.
11 B-2 General Business District - The purpose of this district shall be
to provide for the proper grouping and development of those uses which
are related to central or neighborhood business districts. Such uses
might include shopping centers and retail or wholesale uses.
12 B-3 Marina Business District - The purpose of this district shall be
to provide an area for conTmrcial marinas and related uses.
13 M-1 Light Industrial - The purpose of this district shall be to establish
areas for offices, warehousing and other light industries located on
tracts of land where the operations involved do not detract from the
development potential of nearby properties.
14 M-2 Heavy Industrial - This district shall be established to acconamdate
all industries including those that could be objectionable to surrounding
areas due to foul odors, smke, dust, noise, glare or vibrations.
15 CON-D Conservation District - The Conservation District is established
as a district in which only partial development of land may occur. The
regulations of this district are intended to protect the floodplain and
estuarine areas of Onslow County. The.permitted uses shall be in conformity
with the uses listed in this ordinance, subject to the appropriate state
and federal laws. This district shall apply to those areas above mean
high water which are covered by marsh protected by the Coastal Area Management
Act and appropriate federal laws. This district shall not apply to marsh
areas above mean high water not protected by the Coastal Area Management
Act and appropriate federal laws.
1

TABLE 6.3.2
Zoning Districts
West Onslow Beachl_/
Zoning District Number of Acres•/ Percent of Total
RA
400.62
12.2%
R-20
536.04
16.3
2.5
R-15
80.61
'
R-10
167.30
5.1
R-5
9.57
0.3
MHP
15.26
0.5
MHS
194.17
5.9
1.9
B-1
63.53
B-2
20.15
0.6
B-3
15.53
0.5
CON-D
(Conservation)
1,788.50
54.5
TOTAL ACREAGE
3,281.51
1
1 ./
Source: Onslow County
Planning Department
(1982).
2./
Acreage estimated by a
compensating polar
planimeter.

hurricane, the Onslow County Zoning Ordinance states that non-
conforming structures and uses may not be reconstructed if damaged
beyond 60 percent of their replacement cost.
The zoning ordinance includes a conservation zoning district
(CON-D) which is designed to protect floodplains and estuaries.
This district covers over half of the land in West Onslow Beach,
entirely on the soundside of the island.
The zoning ordinance does not contain any elevation or
floodP roofing requirements, nor does it contain any reference to
open spaces or breakaway walls for portions of habitable
structures below the flood level in the V-zone. Only slight
restrictions are imposed on mobile homes or multi -family
developments.
6.3.2 Subdivision Regulations
This regulation applies to all areas within Onslow County
Mexcept those lands lying within the jurisdiction of any
municipality. The stated purpose of the regulations is to support
and guide the subdivision of land within the jurisdiction of
Onslow County in order to promote the public health, safety and
1 general welfare of the citizens of Onslow County. These
regulations are designed to promote an orderly use of the land;
for coordination of streets and highways within proposed
subdivisions with existing or planned streets and highways; for
the reservation of rights -of -way or easements for street and
utility purposes; for the distribution of population and traffic
which shall avoid congestion and over -crowding; to provide for
6-5

water, sewerage, parks, schools and playgrounds; and to facilitate
the further resubdivision of larger tracts into smaller parcels of
land.
The subdivision regulations do not specifically address
hurricane hazards.
6.4 Future Development Scenarios
Based on the land available for development at West Onslow
Beach, several future development scenarios were developed to
determine potential future populations which would have to be
evacuated from the vulnerable beach areas during a potential
future hurricane. It should be emphasized here that each of the
scenarios discussed below represent a "planning exercise" and are
not designed to represent a prediction as to actually what will
happen in terms of future development at West Onslow Beach.
However, they do illustrate, albeit to the extreme, what could
happen under certain circumstances.
In the first scenario (A), a projection was made of the
ultimate population of West Onslow Beach based on existing zoning
regulations assuming no zoning variances or changes. Scenario A
is summarized in Table 6.4.1. While this projected pattern of
future growth is admitedly unrealistic (zoning changes will occur
to alter the pattern of growth), it does form a suitable backdrop
or point
of reference for
the -other
two scenarios (B
and
C) to
follow.
Scenario A shows a
potential
future population
of
23,452
persons at West Onslow Beach.

TABLE 6.4.1
SCENARIO "A"
MAXIM7M BUILDC:UT UNDER EXISTINGU ZONING
WEST ONSLOW BEACH
Maximum
Total Number
Permissible
Total Number
Zoning
of Acres In
Density
of Potential
_ Zbtal Potential
District
Zone
(Units/Acre)
Units -
Population
RA
400.62
1/3
134
469
R-20
536.04
4
2,144
7,504
R-15
80.61
5.8
468
1,638
R-10
167.3
8.7
1,456.
5,096
R-5
9.57
14.6
140
490
MHP
15.26
8.7
133
466
MHS
194.17
8.7.
1,689
50,912
B-1
63.53
5.4
343
1,201
B-2
20.15
5.4
109
382
B-3
15.33
5.4
84
294
Totals
6,700
23,452
1./ See Table 6.3.1 for description.
2./ Fran Table 6.3.2.
3./ Based on information provided by Onslow County Planning Department.
4./ Based on 3.5 persons per unit.

r
In the second scenario (B) (see Table 6.4.2), a projection of
the ultimate population of the West Onslow Beach segment of the
island will be about 54,000 persons if present trends involving
multiple zoning changes to allow more multifamily units continue
and if development proceeds at the maximum permissible density of
' s r acre. This projection is obviously a worst -case
14.6 unit per p J Y
situation. Indeed, this level will not be reached in the very
near future. However, it does demonstrate that the population
' projections shown above (see Table 6.1.2) are perhaps too low.
The third scenario (C) illustrated in Table 6.4.2 assumes a
reduction in permissible density to 8 units per acre. The
ultimate population is still high (some 32,000 persons) - well
above the' projections in the Land Use Plan. However, it is
believed that the imposition of such density controls will lessen
the steepness of the growth curve and thereby improve the success
of any future hurricane evacuation.
These scenarios indicate that it would be most prudent to
reduce permissible densities at West Onslow Beach to reduce the
threat to human life from a future hurricane. If the entire
population on the vulnerable beach area is to be evacuated before
a storm, either the densities must be controlled or the
infrastructure (roads) improved to such an extent to allow the
evacuation of .the larger population. Obviously the former course
of action will ultimately be the most cost-effective approach.
1 6-7
[l

TABLE :6.4.2
ULTIMATE BUILDOUT DEVELOPMENT SENARIOS
WEST ONSLOW BEACH
Total Maximum Density Number
Scenario/Description Acreage (Units/Acre) of Units
B. Development based on existing
regulations, zoning, etc.
(1) Existing (1981) 2/ 5/ 4/
Residential Development 499 2.9- 1450
.(2) Future Development 959 .14.63/ 14,001
TOTALS 1458 15,451
C. .Development based on 8 units/
acre maximum density
(1) Existing (1981)2/ 5/ 04/
Residential Development 499 2.9- 14 5
(2) Future Development 959 86/ 7672
TOTALS 1458 9122
Number Ty
Persons-
5,075
49,005
54,080
5,075
26,852
31,924
1/Based on 3.5 persons per unit`.
/Includes "beach" classification associated with existing development.
3/Maximum density possible under existing regulations and development guidelines.
4/Source: Onslow County Planning Department.
5/Calculated value based on known number of units and total developed acreage as of 1981.
6/Proposed density.

6.5 Existing Utilities, Roads and Services
6.5.1 Water
A good portion of Onslow County outside of the corporate
limits of Jacksonville, Swansboro, Holly Ridge, Richlands and the
Marine Corps Base of. Camp Lejeune is served by the Onslow County
regional water system. A system plan covering the West Onslow
Beach area and mainland environs is included herewith'as Map 6.5.
The system is fed by a series of wellfields located in the
Catherine Lake area in western Onslow County south of Richlands.
The only treatment afforded the well water is chlorination. The
West Onslow Beach area is served by a 750,000 gallon elevated tank
located on Highway 210 west of the intersection with Highway 172.
Raw water is supplied to the tank from a booster station at
Verona, NC on US Highway 17. A 12-inch pressure main extends from
.the elevated tank along Highway 210 to the junction of SR 1518.
' Thence a 10-inch main extends along Highway 210 to the highrise
bridge over the Atlantic Intracoastal Waterway. The 10-inch main
is attached to the bridge and extends south along Highway 210 to
the Onslow-Pender County line. An 8-inch main extends from the
bridge north along SR 1568 to the New River Inlet area. However,
' an approximate 1,500 linear foot 6-inch main segment (not shown on
Map 6.5) intervenes in the middle of this reach in the Galleon Bay
area. This segment is scheduled for replacement with 8-inch pipe
by the private developer served by the main.
6-8
1

11.72
TR:1 PS -
BAY
Fulcher Landing b.
eru
�'w
a 0 Sneeds
Ferry .56
Mir
CHADWICK ` ri
a ACRES A. '
7 POP.12
1548 1519'
72
1518 1553 ` v� CD
w�
QGrant
1 12" �- (• 1S6® W
i t ,1
U
Mill
• ��` ; _ _ =
EL DS FERRY /
EV"ATED 0!! r I
tsz8 TANK N�
75,0, 00 GAL. 'b10
f
® qs
b �• 8 �� '
tiC.
!� >o
� •��. • � 1529 r GO S-
': ® 4vZ'
�1518
�.9 l531, ' •� 1529
4 ti --g g' • n ri 1544 "
1544
1545 ® 1530 rr
Follatone ; L
.3
17 c9,� 1 LEGEND
b ' 1531 .!!; s . 1584 "
1532 7.? r/C 1586 ao�tt� aao '1 01,
o t c� �� ! r r\ ���r�®® 6 it
.b ®= Thomases 411
' c Landing '! 1583 iioiisAr 211
1535 it,
co •
ELEV.
�s3a n. �o o • STORAGE
b NK
Creek v,� SCALE
1567 r, i MILE
t119S 1.5 1537 i
1533 Bethea it
Morris 1538 11,10 O: _
Landing / , •� r
co :" N 1.4 rr L
1533 .b .2 1538 .4 ;ta � MAP 605
p
ONSLOW COUNTY
c ®. P O ,ICU'
r
a tsao WATER SYSTEM
t (WEST ONSLOW BEACH AREA)
WHOLLY RIDGE 21ti
HENRY VQN OESEN & ASSOCIATES

t
In the case of a hurricane, the distribution system at West
Onslow Beach would most likely be shut down. The overtopping of
the island by storm waves could cause some line dislocations and
breaks which would need to be repaired after the storm and prior
to allowing residents to return.
' 6.5.2 Wastewater
Most of the single family residential development at West
Onslow Beach is served by individual, on -lot sewerage disposal
systems (septic tanks). As of this writing, there are no known
"package" wastewater treatment facilities serving either single
family, campground or multi -family condominium developments.
1
However, it is possible that some units will be installed in the
near future.as the multi -family unit "condominium boom" continues.
As indicated in Section 6.2 above, there is one large
1 privately owned wastewater treatment facility serving a
multi -family development at the north end of West Onslow Beach.
The wastewater treatment facility consists of a large 60-acre
stabilization lagoon followed by a spray irrigation type effluent
disposal system on a 265-acre tract of land located on the
' mainland off NC Highway 210 approximately 1,000 feet from its
junction with NC 172. The present design capacity of this system
is one MGD with capabilities for expansion to 3 MGD. This system
is capable of serving some 13,333 persons* now, and if expanded to
*Projection based on wastewater flow of 75 GPD/capita.
6-9

3 MGD about 40,000 persons i 0 p n the future. Therefore, this system
could represent a significant factor in allowing additional growth
at West Onslow Beach.
The on -island segment of the system consists of a gravity
sewer collection system serving the condominium development, a
1,500 GPM capacity sewerage lift station, and a 12-inch diameter
force main which transmits the collected wastewater to the '
mainland wastewater treatment facility site for treatment and
ultimate disposal. The sanitary sewer lines are equipped with
lock -tight manhole covers to minimize intrusion of water and sand
during flooding. . The lift station controls are located above the
flood level. In the event of a hurricane, sewer line dislocations. ,
could occur, sewer mains could receive inputs of sand and the lift
station could be damaged.
6.5.3 Roads
As previously mentioned, Topsail Island (and West Onslow
Beach) is a barrier island with elevations ranging from zero to a
little over 20 feet m.s.l. at its highest point. The width ranges
from less than one quarter to just over one half mile. These
physical characteristics specifically effect the road net on and
S
servicing the island. There is a single two lane road (NC Highway
'
210 and SR 1568) running north to south over the entire length of
the island. It is connected to the mainland by a relatively new
,
high level fixed span two lane bridge about four miles from the
north end of the island (New River Inlet). Route 210 also extends
southward from West Onslow Beach (through Surf City) with
6-10

connections to the mainland over a two lane large swing span
- bridge at an elevation of about 14 feet above the Atlantic
Intracoastal Waterway (AIWW). The general condition and carrying
capacity of this main traffic artery are limited by its location,
elevation, width and surface quality in some areas. There are
also a limited number of paved streets or feeder roads leading
1 from clusters of developments.or homes adjacent to the main road;
however, these are generally short and narrow with marginal
surface conditions. Other narrow, unpaved roads or trails may be
found throughout the island leading to individual homes or beach
or sound access points. (A detailed discussion of this existing
iroad system may be found in the Onslow County Hurricane Response
Plan4•/)
6.5.4 Power (Electric Service)
Power is provided to Topsail Island by the Jones-Onslow
Electric Membership Corporation. Power distribution lines are
strung overhead on timber poles located adjacent to primary roads.
The distribution system is simple and characteristic of most rural
electric services systems.
6.5.5 Other Community Facilities and Services.
These. are only limited community facilities available to serve
developed areas on Topsail Island. These are generally confined
to the communities of Surf City and Topsail Beach to the south of
West Onslow Beach in Pender County. In general, all schools, fire
and rescue health care and governmental support facilities to
serve the West Onlow Beach area are located on the mainland.
6-11

6.6 Vulnerability Assessment
6.6.1 Severity of Risk1_/ (General)
The severity of risk related to a hurricane storm is basically
a function of the number of physical forces (erosion, wave action,
etc.) that a hurricane is likely to impose on a particular hazard
zone. Table 6.6.1 shows different hazard areas with different
levels of risk.
Area 1 is the area at most severe risk due to its being
subject to the full complement of hurricane forces. Area 4 faces
the least severe risk on the island since, in a major storm, it
can reasonably be expected to suffer only high winds. (This by no
means implies that Area 4 is risk -free; hurricane winds are a
serious force to contend with and must be accounted for in any
hurricane -related planning effort. In the event of a hurricane,
,
all of Topsail Island will face severe damage.) Using the
Composite Risk Maps (see Maps 6.6.1 and 6.6.2) as a guide to the
location of hazard areas and the levels or risk they entail, it is
then possible to get a rough idea of the magnitude of risk facing
West Onslow Beach by comparing the maps to the pattern of existing
r
and expected development on the island.
6.6.2 Magnitude of Risk
is basically function the
,
The magnitude of risk a of size of
the population and the number and value of developed properties
exposed to the hurricane forces likely to affect a hazard area.
To estimate the magnitude of risk facing West Onslow Beach, the
Composite Hazard Map was overlain with the land use maps of West
'
Onslow Beach.
6-12 1

TABLE 6.6.1
' Definition of Hazard Areas
' Forces Present Expected
Area Wave High
Erosion Action Flooding Winds
Boundaries
1
-X X
X X
ocean erodible AECs,
inlet hazard AECs,
estuarine shoreline AECs
(Setbacks as prescribed
by CAMA regulations)
2
X
X X
Flood insurance V-zones
'
(Designation pending
FEMA Flood Hazard
Boundary Map publication)
3
X X
Flood insurance A -zones
(Revisions pending
'
publication of FEMA maps)
4
X
Rest of community.
(Above hurricane flood
elevation)
1
1
1
1
1
1
1

SOURCE ( SEE REFERENCE* I)
SCALE: I" = 1600'
LEGEND
AREA I OCEAN ERODIBLE AECs ,
INLET HAZARD AECs,
ESTUARINE SHORELINE AECs,
(SETBACKS AS PRESCRIBED BY
CAMA REGULATIONS).
AREA 2 FLOOD INSURANCE V-ZONES
(DESIGNATION PENDING FEMA
FLOOD HAZARD BOUNDARY
MAP PUBLICATION)
AREA 3: FLOOD INSURANCE A -ZONES
( REVISIONS PENDING PUBLICATION
OF FEMA MAPS)
AREA 4 REST OF COMMUNITY
(ABOVE HURRICANE FLOOD
ELEVATIONS)
MAP 6. 6.1
HENRY VON OESEN a ASSOCIATES CONSULTING ENGINEERS AND PLANNERS WILMINGTON, N.C.

ti
75' SETBACK
LEGEND
L AREA I OCEAN ERODIBLE AECs,
INLET HAZARD AECs,
ESTUARINE SHORELINE AECs,
(SETBACKS AS PRESCRIBED BY
CAMA REGULATIONS).
AREA 2 FLOOD INSURANCE V-ZONES
(DESIGNATION PENDING FEMA
FLOOD HAZARD BOUNDARY
MAP PUBLICATION )
E3
AREA 3: FLOOD INSURANCE A -ZONES
(REVISIONS PENDING PUBLICATION
OF FEMA MAPS)
AREA 4 REST OF COMMUNITY
(ABOVE HURRICANE FLOOD
ELE VATI ONS)
MAP 6.6.2
SCALE! I = 1600 1
HENRY VON OESEN 6 ASSOCIATES CONSULTING ENGINEERS AND PLANNERS WILMINGTON, N.C.

The Onslow Beach land use maps identifythe location of all
buildings on the island. The maps were coded to indicate
residential and commercial structures. The Onslow County Planning
Department maintains an up-to-date inventory of structures for
West Onslow Beach showing property lines, zoning districts, and
whether or not a property is developed. This map is kept current
as new construction occurs, buildings are moved, or buildings are
torn down.* Maintaining an on -going inventory such as this is a
good idea. It provides a ready source of information concerning
the development pattern of the community and is useful for
post -disaster policy decisions.
6.6.3 Magnitude of Risk Facing Existing Development
An assessment of the magnitude of risk facing existing
development on West Onslow Beach was obtained by counting the
number of residential and commercial structures located in the
various hazard areas identified on the Composite Hazard Maps. The
location of roads, utilities, and public buildings was also
examined.
Because Onslow County is not yet enrolled in the Regular
Program of
the National Flood
Insurance Program,
rate maps
delineating
V-zones do not yet
exist; therefore, the
Composite
Hazard Maps do not show an Area 2 for West Onslow Beach. Area 3
covers the land in West Onslow Beach that is classified as the
"special flood hazard area" (A -zone) by the flood hazard boundary
' map for Onslow County. Of the 1,225 residential units in West
' Onslow Beach (1981 data), about 315 (26 percent) fall into Area 1.
6-13

Another 790 (65 percent) fall into Area 3. Forty-five percent of
the residential units lie in a area of extensive finger canals
that appear in Area 3 but are likely to suffer more storm forces
than just flooding and high winds. A large condominium
development containing 240 units lies at the eastern end of the
island, partially in the ocean erodible AEC and very close to the
inlet hazard area.
Table 6.6.2 also shows the number of commercial units at West
Onslow Beach that fall into the various hazard areas. The
majority of the commerical units (65 percent). are located in Area
3, but some 35 percent are in the most vulnerable Area 1.
The roads, utilities, and other public facilities on West
Onslow Beach were also examined for vulnerability. There is a
single primary road (NC Highway 210 and SR 1568) along the length
of the island. Through Surf City the road is located as far
inland as possible, the right-of-way having been moved from its
original location along the oceanfront. One section of the road
floods consistently in minor storms. North of the Route 210
bridge in West Onslow Beach, the road runs directly adjacent to
the dunes and oceanfront. This section of the road has long been
recognized as hazardous, and private developers working in this
area have already begun taking steps to move it. Everywhere on
the island the primary road is subject to inundation by the
100-year flood. The location of secondary roads on the island
basically coincides with the location of homes and businesses.
6-14

TABLE 6.6.2
Number of Structures in Hazard Areas
West Onslow Beach
(1981 Data)L•-
Number
Percent
Residential Units
Area 1
315
26
Area 2
N/A
Area 3
790
64
Area 4
120
10
Total
1,225
100
Commercial Units
Area 1
6
35
Area 2
N/A
Area 3
11
65
Area 4
0
0
Total
17
100
1./ Source: Reference 1.

The Jones-Onslow Electric membership Corporation's oration's electric
lines are situated on overhead poles along the primary roads.
These poles and overhead power lines pose a danger in the event of
a hurricane. With a single route of evacuation, a fallen pole
with broken wires across the highway could be disastrous.
All communities on Topsail Island have limited community
facilities. All schools, health care facilities and courthouses
are located on the mainland, a sufficient distance inland to be
' relatively safe from hurricane damage,
6.6.4 Damage Assessment (Cost) for Structures
A study conducted in the spring of 1982 by the U.S. Army Corps
' of Engineers sheds light on the cost of damages that existing
development on Topsail Island could expect to suffer during a
hurricane. The Cor 's Wilmington District office surve eyed nearly
P 9 Y Y
' every existing structure on the island, estimated its value, and
estimated the damages to each structure from flooding at different
' levels (the 500-year storm, the 100-year storm, the 50-year storm,
' etc.). The results of the study (see Table 6.6.3) indicate that,
in the 100-year storm, West Onslow Beach can expect over 15
million dollars in damage. The study dealt with damages from
flooding only - not including the further damages that erosion,
' wave action, and high winds would cause.
6.6.5 Magnitude of Risk Facing Water Distribution System
In the case of a hurricane, the County water distribution
system to West Onslow Beach would most likely be shut down. The
' overtopping of the island by storm waves could cause some line
6-15

TABLE 6.6r.r
SUVZ1ARY OF POTENTIAL HURRICANE DAMAGES
WEST ONSLOW BEACH, NORTH CAROLINA
.(March 1982 Price
Level)
Hurricane
Number of
Property Values Affected
Total Damages
g
Avg. Annual
Dune
Frequency
Structures
(In Thousands of Dollars)
(In Thousands)
Damages (AAD)
Protection
(In Years)
Damaged
Real
Personal
Total
(In Thousands)
Residential:
507.97 (Total AAD)
500
1,517
32,381.6
9,714.5
42,096.1
23,749.0
460.47
No
100
1,515•
32,327.6
9,698.3
42,025.9
13,588.8.
311.11
No
50
1,432
29,120.6
8,736.2
37,856.8
6,585.0
210.25
No
30
1,427
28,901.E
8,670.5
37,572.1
3,611.8
142.44
No
25
1,420
28,579.6
8,573.9
37,153.5
2,875.8
120.71
No
20
965
14,917.5
4,475.2
19,392.7
812.8
43.28
Yes
15
905
13,687.0
4,106.1
17,793.1
526.8
32.09
Yes
10
842
12,004.0
3,601.2
15,605.2
312.5
18.11
Yes
8
785
10,740.5
3,222.1
13,962.2
189.4
11.86
Yes
4
0
0.0
0.0
0.0
0.0
0.0
Yes
Commercial:
87.16 (Total AAD)
500
25
1,721.0
2,222.0
3,943.0
2,237.2
82.68
No
100
22
1,371.0
1,637.8
3,008.8
1,485.7
67.78
No
50
21
1,301.0
1,521.6
2,822.6
1,112.0
54.80
No
30
18
1,089.0
1,326.4
2,415.4
787.9
42.17
No
25
18
1,089.0
1,326.4
2,415.4
700.9
37.18
No
20
8
443.0
542.8
985.8
185.3
5.15
Yes
15
7
386.0
448.2
834.2
95.9
2.80
Yes
10
3
66.0
102.3
158.3
25.5
0.77
Yes
8
1
10.0
24.7
24.7
6.1
0.38
Yes
4
0
0.0
0.0
0.0
0.0
0.0.
Yes
Total:
595.13 (Total AAD)
500
1,542
34,102.6
11,936.5
46,039.1
25,986.2
543.15
No
100
1,537
33,698.6
.11,336.1
45,034.7
15,074.5
378.89
No
50
1,453
30,421.6
10,257.8
40,679.4
7,697.0
265.05
No
30
1,445
29,990.6
9,996.9
39,987.5
4,399.7
184.61
No
25
1,438
29,668.6
9,900.3
39,568.9
3,576.7
157.89
No
20
973
15,360.5
5,018.0
20,378.5;..;
998.1
48.43
Yes
15
912
14,073.0
4,554.3
18,627.3
622.7
34.89
Yes
10
845
12,070.0
3,703.5
15,763.5
338.0
18.88
Yes
8
786
10,750.5
3,246.8
13,986.9
195.5
12.24
Yes
4
0
0.0
0.0
0.0
0.0
0.0
Yes
Source: Wilmington
District,
U. S. Army
Corps of Engineers
(November 1982)8/

dislocations and breaks which would completely disrupt service and
' introduce the likelihood of contamination.. Any breaks or failures
would have to be repaired and the line would have to be
' chlorinated and tested prior to restoring services. All of this
would have to be accomplished prior to allowing residents to
return.to their homes. As a general rule, damage to buried water
' mains may be less severe and easier to repair than damages to
other utility systems.
6.6.6 Magnitude of Risk Facing Wastewater (Sewer) Systems
In the case of a hurricane, the on -island segment of the
' existing private sewer system would be especially vulnerable to
damage. With the loss of power, the lift station would not
' function. Elevated water levels and driving rain could cause
damage to the pump station and its electrical control system.
' Also, elevated water levels and rainfall could cause deposition of
' sand in the gravity sewer mains, imparing their proper function.
Wave action could also cause line dislocations. Such failures
' would inevitably cause pollution of surficial sands which would
have to be cleaned up to protect public health. After the storm
' has passed, it will take some time to repair the system, to clean
the sewers of sediment, and to restore the system to a normal
operational mode.
' Beachfront homes served by individual on -lot systems (septic
tanks) may suffer severe damage from erosion such that the septic
tank and/or drain lines are exposed, damaged or dislocated. These
' systems would need to be repaired or relocated on the lot (if
6-16

1
space was available) during the post disaster phase. Polluted
areas resulting from these failures would also have to be cleaned
'
up and decontaminated.
The repair and/or replacement of such systems could be subject
'
to more stringent rules and regulations than those which were in
I
effect when the original structure was permitted for construction.
It is highly likely that, if such rules are enforced to the letter
'
on lots with unsuitable soil conditions, it may not be possible
for the Owner to rebuild.on that lot.
'
6.6.7 Routes of Communication (Roads)
'
An investigation and inspection of West Onlow Beach's only .
its Highway 210 SR
major road and only evacuation route (NC and
1568) revealsthatportions of the road are at elevations of about
6 to 7 feet above mean sea level. Fortuitousl the lowest points
Y.
are at the southern boundary (at the Surf City north limit) and
along much of highly developed north end of the beach area between
the
'
the bridge crossing point and New River Inlet. In many aras,
road passes extremely close to the ocean (where low dunes mayor
,
may not exist), which further increases the roads vulnerability to
tide and wave attack. Finally, the immediate approach road
I
section to the high level bridge crossing is at an elevation below
bridge itself
I
8 feet m.s.l. Thus, the escape access to the could
be inundated relatively early in the storm period. The excellent
h level bridge represents no in ediment to rapid evacuation
new high g p p p
of controlled vehicular traffic.
,
6-17
11

In addition to normal flooding of the road along much of its
' length during a hurricane storm, the likelihood for damage or
breaking of the road in several areas is high. Wave attack and
' erosion forces will cut the road and/or undermine its foundation
' to render it unusable. Major sand deposits will cover the road in
many areas as a result of wave over -wash and flood runoff effects.
' It is anticipated that major clearing and repairs will be required
to put this main traffic artery back into service.
6.6.8 Electric Power Service
' _It may be expected that major damage will occur to the
electric distribution system during a storm. Poles will be
'- toppled b wave and wind forces and b floating debris. Power
PP Y Y
lines will be broken or shorted out by wind/wave action, or as
supporting poles fail. Transformers will be damaged frequently
requiring replacement. Disruption of power (electric service)
will be experienced until the lines are repaired.
6.6.9 Telephone and Communication Services
' Normal telephone services will experience the same problems
' and disruptions described above for electric service. Telephone
communications between the beach area and the mainland will be
' disrupted until services can be restored. This generally follows
restoration ,of the electric distribution system. Radio
' communications may be maintained, but only through battery powered
' radios.
6-18

6.6.10 Hurricane Evacuation Risk
As previously mentioned, a hurricane evacuation plan has been ,
prepared as a part of the Onslow County Hurricane Response
Plan.4•/ This detailed analysis effectively demonstrates that
between eight (8) and thirteen (13) hours will be required to
evacuate West Onslow Beach during a peak occupancy or visitation
period. This time will increase as growth on the island.
continues. Innumerable factors influence an actual evacuation,
but human response to warnings and/or evacuation orders is a
primary factor. All of the planning in the world is to no avail '
if people do not respond appropriately to the plan of evacuation.
The analysis also shows that there are certain physical '
factors that will influence the success of the evacuation plan.
Principal of these are the extensive areas subject to flooding on
-the island and the limited carrying capacity of the single ,
evacuation route available (NC Highway 210). The low elevations
render much of the West Onslow Beach land area subject to flooding
at an early stage in the hurricane storm event. The evacuation
route is likewise vulnerable to early flooding, cutting off the '
evacuation route long before the hurricane actually strikes the
mainland. Nothing can be done to remedy the low-lying terrain
problem; however, some remedial actions are possible relative to ,
the evacuation route. This point will be discussed later in the
hazard mitigation portion of this study. '
The reader is referred to the above referenced Hurricane ■
Response Plan for a more detailed discussion of this subject.
6-19

SECTION 7: HAZARD MITIGATION PLAN
7.1 Introduction
The purpose of this section of the report is to present a
workable program for insuring that future development is located.
and constructed in a manner that minimizes its susceptibility to
future storm damage. It forms the basic standards for
reconstruction following the. storm. In addition, this section
includes brief consideration of other non -construction related
mitigation actions which can minimize storm damage.
7.2 Summary of Existing Policies
Existing local policies relative to hazard mitigation are
summarized in Table 7.2.1. West Onslow Beach is largely
undeveloped, so existing policies reflect a growth -oriented
attitude towards development and a limited recognition of the
hurricane hazard. The Onslow County Land Use Plan recognizes that
"West Onslow Beach will grow by leaps and bounds barring problems
associated with hurricanes" (Onslow County Planning Department,
1981, p. 81) Development is expected to occur at a high pace,
including single-family residences, condominiums, and hotels. The
County maintains floodplain regulations and elevation requirements
' for West Onslow Beach which are consistent with NFIP regulations.
The County does have zoning and subdivision regulations and
planned unit development (PUD) standards in force on West Onslow
Beach, but.as noted above these are vague and ineffective at
addressing hurricane hazards. Mobile homes and multi -family
condominiums are permitted at West Onslow Beach, subject to the
7-1

1
TABLE 7.2.1*
Summary of Existing Local Policies
in Effect at West Onslow Beach
' Local Policy Status/Description
1. Floodplain regulations Partial
- elevation or floodproofing
d Yes**
require
'
- open space, breakway walls
below flood level in V-zone
- no alteration of dunes
2.
Zoning ordinance
- restrictions on mobile homes
'
- restrictions on -multi -family
3.
Subdivision regulations
'.
4.
Land Use Plan
- development outlook
'
5.
Destruction level to deny
rebuilding nonconformities
'
6.
National Flood Insurance Program
Yes**
Yes
Yes
Slight
Slight
Yes
Yes
High -density
600
Emergency
*Source: Reference 1.
t **By virtue of 1975 Resolution adopting by reference the criteria
set forth in Section 1910 of the National Flood Insurance
Program Regulations.

zoning ordinance's lot size restrictions. For reconstruction
following a hurricane, the Onslow County zoning ordinance states
that non -conforming structures and uses may not be reconstructed
' if damaged beyond 60 percent of replacement cost. The County does
have a "conservation" zone in place that is designed to
protect floodplains and estuaries. This district covers over half
of the land in West Onslow Beach, entirely on the sound -side of
the island. The County's land use plan supports the use of
elevation and setback requirements to protect development from
flood hazards; it also states that the County intends to adopt
more stringent floodplain management regulations once the Federal
Insurance Administration has the County's flood insurance rate
maps prepared and the County enters the Regular Phase of the
National Flood Insurance Program. However, the rate maps are not
ready as of this writing. Meanwhile, development in West Onslow
Beach continues; but most new construction is elevated to take
advantage of lower flood insurance rates. The State's CAMA
regulations also.play a major role in determining whether or*not
new development reasonably protects itself against hurricane
damages by enforcing the ocean erosion setback and standards for
rconstruction in ocean hazard AECs.
In addition to the above local regulations, Onslow County
■ operates under the various requirements -that State agencies use to
govern development (as described in Section 5 above). Onslow
County administers CAMA's standards for minor development projects
in areas of environmental concern. The Office of Coastal
Management handles major projects in AECs as well as proposals to
dredge and fill in estuarine waters and wetlands. All development
7-2

must comply with the State Building Code, which is administered by
the Co unty's Building Inspector.
A review of the local policies now in effect and the potential
for future growth at West Onslow Beach as summarized in Section 6
above points to the need to develop alternative measures for
controlling future development in order to mitigate (minimize or
lessen) storm hazard problems. These factors increase in
importance because of restrictions related to limitations on
federal assistance in designated areas resulting from the Barrier
Islands Resources Act of 1982 (see Section 5.6.1). The measures
are discussed in the following section.
7.3 Alternative Mitigation Measures to Reduce Hurricane Damages
7.3.1 Mitigation Measures for Development _Throughout the
Community (West Onslow Beach)
(1) Create an overlay of the zoning map which shows the
boundaries of the different hazard areas that are subject
to different forces (see Table 6.6.1 and Maps 6.6.1 and
6.6.2). Integrate the hazard area concept into the
zoning ordinance and the descriptions of the zoning
districts (see Table 6.4.1).
(2) Consideration should be given towards reducing the
allowable density of development at West Onslow Beach.
Current zoning laws allow up to 14.6 units per acre. It
is recommened that the zoning law be changed to reduce
the maximum density to 8 units per acre in Hazard zones 3
and 4 and 6 units per acre in Hazard Zones 1 and 2. This
will serve to effectively reduce the maximum number of
7-3

I
persons that will need to be evacuated during a future
storm and the amount of damage that will occur to private
r
property and associated infrastructure. The basic
rationale for this change is that the current infra-
structure is inadequate to accomodate the density of
development which could occur and evacuation times in the
case of severe storms will be inordinately prolonged such
that loss of life is almost certain to occur (see
projections in Table 6.3.1).
(3) By alteration of the zoning law to reduce the allowable
densities in the higher risk zones, higher -density uses
will tend to locate outside of the most hazardous areas.
For such developments as condominiums, further incentives
such as allowances for higher density (up to 10 units per
acre) for planned unit developments (PUDs) which allow
- for clustering of units and maximization of open space
should be considered.
(4) Consideration should be given to amending the zoning
ordinance to the effect that all non -conforming uses and
structures should be brought into conformity after a
storm if they are damaged beyond 50 percent of their
current market value. For slab -on -grade structures, the
owners should be required to rebuild flood proof elevated
structures when the damage is more than 15 percent of the
market value of the structure.
■ (5) The zoning ordinance should be amended to rezone the MHP
and MHS categories to other categories which do not allow
mobile homes. All mobile home structures are particu-
7- 4

larly vulnerable to storm damage and should not be
permitted at West Onslow Beach. With such a zoning
change, all existing mobile homes will become
r
non -conforming structures subject to the proposed new
standards for replacement following a storm as delineated
above.
(6)
Establish zoning regulations for all of the flood prone
mainland areas of Onslow County. Ultimately it would be
prudent to extend zoning to all unincorporated areas of
the County.
(7)
Update the Land Use Plan to reflect actual development in
each of the vulnerable areas identified.in Table 6.6.1.
7.3.2
Mitigation Measures for -Development in Areas Subject to
High Winds (Hazard_ Area 4)
(1)
The key to mitigative measures in this case are strict
regulation of construction materials and practices
including such requirements as structural connections and
bracing adequate to withstand hurricane -force winds and
the proper tie down of mobile home structures (if they
continue as permitted uses). The uniform State Building
Code sets the standards for construction materials,
techniques, and procedures in order to protect lives and
property.
The North Carolina Building Code Council is
,
authorized by N.C.G.S. 143-138 to establish the North
Carolina State Building Code. The Building Code Council
also is responsible for making changes in the State
7-5

rBuilding Code and for reviewing building laws. The
Insurance Commissioner, through the Division of
Engineering of the Department of Insurance, is
responsible for enforcing the State Building Code.
Inspection and enforcement responsibilities are relegated
to local governments. Local governments may not amend
the State Building Code, even by imposing stricter
standards, unless such amendments are approved by the
Building Code Council.
The local building inspector is the link between code
standards and actual construction. The effectiveness of
the building code depends on the inspector's interpreta-
tion of the code, his experience and technical
competence, and the availability of his time and other
resources needed to carry out inspections.
A key obstacle to local regulation of construction
materials and practices is local government's inability
to adopt stricter requirements without the consent of the
Building Code Council. The State Building Code, as it
now stands, falls short in adequately protecting
buildings from the damaging forces of hurricanes and
other coastal storms. The Building Code Council, in
seeking to maintain uniformity of regulation across the
State, has been resistant in the past to allowing more
strigent local
standards.
{Note:
recently the Council
has sponsored a
study of
uniform
construction standards
for coastal hazard areas. The results of this study are
7-6

pending on this writing). Another problem small coastal
communities are likely to face is a lack of fiscal and
staff resources to sponsor the engineering and
architectural studies that the Building Code Council.
requires to justify any local variations of the code.
In view of the above, it appears that the only
mitigative actions the County can impose in this area are
of an educational nature aimed at voluntary compliance.
Thus, it is recommended that the County promote the
publication of a technical manual or set of suggested
guidelines,by NC Sea Grant (or similar agency) to inform
builders about the hazards present in the community and
the different available waysof designing and
constructing buildings to -mitigate them.. (2) Vegetative
cover can dissipate the energy of high winds, helping
shield development from destruction. Vegetation plays a
key role in the formation and stability of dunes and
wetlands. Maintaining vegetative cover is important not
only in dunes and wetlands but in other areas of the
community. For example, homes built in dense stands of
maritime forest can achieve some protection against high
winds by maintaining the forest cover around the house
instead of tearing it down during construction. Of
course, wind and waves that are severe enough will
destroy vegetative cover; fallen trees can cause a great
deal of damage to buildings. Nonetheless, some types of
7-7

A
vegetation, such as maritime forest, are adapted to
withstand high winds and can provide protection.
Thus, it is recommended that the County adopt an
amendment, to the subdivision ordinance to protect
maritime forest vegetation. This amendment should permit
the removal of maritime forest only to the extent needed
to build the structure. The remaining vegetation should
be left untouched. Enforcement and regulation could
possibly be tied in with the CAMA minor permit program.
7.3.3 Mitigation Measures for Development in Areas Subject to
Flooding (Hazard Area 3)
(1) The County should request NCDOT to consider the raising
of the base elevation of NC Highway 210 near the high
rise bridge from its present low elevation to a minimum
of 8 feet MSL. This action is needed to prevent the
flooding of the road during. the early stages of a storm
evacuation (see Section 6 for details). Additional
attention should be centered on relocation of the road
away (landward) from the beach. When major repairs are
effected on the road, minimum elevationsshould be raised
to at least 8 feet MSL. All new roads should be
constructed to at least this elevation.
7-8

7.3.4 Mitigation Measures for Development in Areas Subject to
Wave Action (Hazard Area 2)
As soon as the FEMA Flood Hazard Maps for West Onslow Beach
become available, the stage will be set for the County to enter
into the FIA Regular Insurance Program. Part of that program will
be to establish flood elevations with a factor for wave effects
which will establish base elevations for all insured structures.
It is recommended that the County impose this same level on all
development in Hazard Zones 1 and 2.
7.3.5 Mitigation Measures for Development in Areas Subiect to
Wave Action (Hazard Area 2)
Existing policies and regulations imposed by the Coastal Area
Management Act (CAMA) require an adequate setback from the
oceanfront. The following additional recommendations are offered
to mitigate the effects of severe erosion following a storm.
(1) Establishment of New Setbacks: After the storm and prior
to reconstruction, the local unit of government must
establish the baseline for the CAMA setback. This should
be accomplished in conjunction with the OCM field staff.
Once the setback baseline has been set, all remaining
structures (whether damaged or not above the 50 percent
market value threshold level) which intrude into the new
setback should be relocated. Engineering judgements for
the relocation and/or reconstruction of roads and
utilities (water/sewer mains, power lines, etc.) should
7-9

be based in part on the effects of the new setback on the
layout of the first tier of oceanfront lots. The
reestablishment of setback lines brings up the problem of
property ownership of those lots thus rendered useless
for redevelopment. Possible solutions are discussed
hereinafter.
(2) Recommended Procedures for Relocation of Damaged
Structures: When a structure is damaged by flooding and
the property owner holds a. flood insurance policy, the
Federal Insurance Administration determines the property
owner's claim and pays the cost of repairing or
rebuilding the structure up to the policy's limits.
Until 1980, the National Flood Insurance Program paid
claims with little or no provision for relocating the
structure out of the flood hazard area. The insurance
claim would pay for repairs only to restore the building
to its original condition and location; the property
owner had to bear any costs beyond this for elevating or
relocating the building. Buildings were typically
returned to their original condition, still ripe for
damage by the next storm. Around 1980, this pattern
began to change as the Federal Insurance Administration
began emphasizing hazard mitigation as a high priority
and instituted two innovative elements as part of its
claim procedures: the constructive total loss approach
and the Section 1362 relocation program.
7-10

The constructive total loss (CTL) approach covers
those.cases where a property is not totally destroyed but
has lost its economic value. It requires the full
cooperation of the property owner and the local
government.involved. The approach is used where the
local government takes such action as prohibiting damaged
structures to be rebuilt in areas with a high likelihood
of future flooding. This allows the FIA to declare the
property a "constructive total loss" and pay the owner's
claim up to the policy limits even though the actual
damages do not equal the total covered by the policy.
The owner can then use the money to rebuild on a site
outside the flood hazard area. Ownership of the damaged
property is then dedicated to the community for open
space use. The Federal Insurance Administration is
responsible for deciding to use the approach in any given
situation. The "constructive total loss" approach is
only used in special situations where damages are
particularly severe and the property owner and local
government agree to participate. To date, its use has
been limited, but the approach has proven successful.
The FIA first used the "constructive total loss"
approach in 1979 in Conroe, Texas, to relocate
approximately 50 flood -damaged structures. Thirty-five
of these had been flooded every year since 1972; their
owners had repeatedly recevied federal disaster loans and
7-11
1
1-1
'I

insurance payments. To relocate the homes, the FIA made
available to each owner payments of up to $35,000.
Low -interest loans from the Small Business Administration
also helped cover the costs of relocation.
A variation of the "constructive total loss" approach
was recentlyused in Nags Head North Carolina to
9 r ,
relocate approximately 14 oceanfront homes which faced
imminent collapse due to storm -induced erosion. Several
oceanfront homes in Head damaged by
South Nags were a
storm to a point where the next major storm was certain
to erode the land beneath them and cause them to
collapse. The FIA could have simply paid the claims to
repair the buildings to their original condition in their
that
original locations. However, the FIA realized this
would result in another claims payment after the next
storm and sought a more far-sighted solution. The FIA,
in cooperation with the homeowners and local government,
settled the claims to pay for moving the damaged homes
back from the rapidly eroding shoreline, yet still on the -
owner's lots, and out of the area posing the greatest
hazard in future storms. The decision saved the FIA
about $775,000 in future claims.
Section 1362 of the National Flood Insurance Act
empowers the FIA to purchase insured properties that have
been seriously damaged by flooding, to move the damaged
structures, and to transfer the land as open space to a
7 12

s tate or local government agency. As with
"constructive total loss" approach, the Section 1362
program relies on the full cooperation of the property`
owner and the local government. In order to qualify for
purchase under Section 1362, the damaged property must be
covered by a flood insurance policy and must meet one or.
more of the following criteria:
(a) damaged by flooding "substantially beyond
repair"
/
;
{
(b) damaged by flooding no less than three times in
the past five ears, where the average cost of
P Y g
repairs was no less than 25 percent of the value
of the structure; and
(c) damaged town extent where an existing statute,}
ordinance, or regulation prevents its.
i
restoration or allows its restoration only at a
significantly higher cost.
The property owner can use the money from the sale to
rebuild at another location outside the flood hazard
area. Structures which meet the above criteria must also
show an economic benefit to be gained through acquisition
of the property (such as avoiding future damage. and
reducing flood insurance claim payments and disaster
relief costs).
7-13

The FIA al.so maintains eight "community selection
9 Y
factors",for allocating Section.1362 funds. A community
does not need to meet all the factors. Some of the
factors carry more weight than others when the FIA is
evaluating the community for participation in the
program. A community's ability to rank highly on these
criteria is an important factor in obtaining funding,
expecially since overall funding for the program has been
limited. Congress did not appropriate the money to
administer Section 1362 until 1980, when it allocated 5.4
million dollars for Fiscal Year 1980. Subsequent
appropriations have been as follows: FY81 - $5 million;
FY82 - $1.6 million; and FY83 - $4.8 million (projected).
The community 9 seekin Section 1362 funds must also submit
a "re -use plan" outlining how the community will manage
the acquired land and indicating any changes it expects
to make in existing land use plans and ordinances to
accomodate the uses it proposes for the acquired
properties.
In view of the above, it is recommended that Onslow
County adopt the CTL approach towards the relocation of
damaged structures in Hazard Zone 1. The County should
move rapidly to qualify for the Section 1362 program
including the preparations and submittal of a "re -use
plan" prepared in accord with FIA guidelines.
7-14

For the segments of the island not covered by FIA.as
a result of the Barrier Islands Act exclusions, it is
recommended that consideration be given, towards
establishing a CTL-type program with the private
insurance institutions involved. If at all possible,
►
agreements with private forms to approach reconstruction
using the CTL program should be worked out before a
strikes island.
hurricane the
(3) Other Mitigative Actions:
(a) The County should draft the text of, hold a public
meeting on and pass a post -disaster reconstruction
moratorium ordinance. This will allow essential
public services to be restored first before private
reconstruction efforts resume.
(b) The County should establish a post -disaster
reconstruction permit program.
(c) The County should conclude a mutual aid agreement
its incorporated Section
with municipalities (see
8.4).
(d) The County should take a suitable photo (or photos)
of all new structures immediately prior to issuance
of a certificate of occupancy for the structure.
Copies of these photos should be filed with the
County tax records for retrieval during post
disaster assessment and reconstruction procedures.
r,

(e) The Composite Hazard Maps (Maps 6.6.1 and 6.6.2)
should be updated to include more complete FEMA
information, when it becomes available, as a part of
a the next CAMA land use plan update.
(f) Also, as a part of the next CAMA land use plan
update, undeveloped land on West Onslow Beach should
be accounted for by hazard area.as indicated on Maps
6.6.1 and 6.6.2.
7-16

I
SECTION 8: STORM RECONSTRUCTION PLAN
8.1 Introduction/Purpose
The Storm Reconstruction Plan represents an offical statement
of principles and policies for the County to follow in rebuilding
after a hurricane. The Reconstruction Plan as hereinafter
presented has four (4) purposes:
(1) to expedite community recovery by outlining procedures
and requirements for repairs and reconstruction before
damages occur;
(2) to establish a procedural framework for putting hazard
mitigation measures into effect after disaster strikes
the community and buildings and utilities are being
repaired and rebuilt;
(3) to gather and analyze information concerning the location
and nature of hurricane damages in the community; and
(4) to assess the community's vulnerability to hurricane
damages and guide reconstruction to minimize this
vulnerability.
The plan outlines damage assessment and reconstruction
permitting procedures that should be followed after a disaster
occurs. It identifies information that the local government will
need to make sound permit decisions regarding repairs and
reconstruction and to get state and federal disaster assistance.
Some specific topics that the plan addresses include:
(1) identifying cases where repairs and reconstruction will
not be permitted, or will be permitted only if they meet
certain conditions;

(2) guidelines (drawn from the analysis of hazards and
mitigation measures) for the repair and rebuilding of
damaged structures and utilities; and
high hazard
(3) plans for possible publicacquisition of
areas and the relocation of highly vulnerable and damaged
structures.
By identifying and clarifying all of these policies,
procedures, and information requirements, Onslow County officials
will have a ready set of guidelines by which they can make wise
and expedient decisions regarding reconstruction.' The plan will
help avoid delays as well as`make the community safer from damages
in the long run.
8.2 The Federal Role In Emergency Response and Procedures For
Obtaining Federal Disaster Assistance
Federal procedures provide the context for local recovery
1
activities following a major hurricane. They include very
.specific things that Onslow County must do to 'receive Federal
disaster assistance. Also, they provide a basis for other actions
take its
that the County can to implement own hazard mitigation
policy.
The key federal legislation dealing with disasters is. the
Disaster Relief Act of,1974 (P.L. 93-288), which authorizes a wide
range of financial and direct assistance to state and local
governments and private individuals. While other legislation has
created a number of disaster assistance programs within a variety
2/
8 -

of federal agencies, the Disaster Relief Act and the regulations
g 9
adopted to administer
it set
the guidelines and procedures by
which federal aid is
issued
and vests the Federal Emergency
Management Agency (FEMA) with primary responsibility for
coordinating and providing disaster relief. FEMA follows a
standard set of procedures governing federal responsibilities,
damage assessments, applications for assistance, the granting of
assistance, and post -disaster hazard mitigation planning. Each of
the steps leading up to and including the receipt of assistance is
germain to this report and.is discussed below (Note: this infor-
mation is condensed from Reference No. 1 - see Bibliography).
8.2.1 The Presidential Declaration
FEMA's,disaster response procedures are set into motion by a
Presidential declaration of "emergency" or "major disaster," as
authorized by P.L. 93-288. An "emergency" is any natural disaster
which calls for emergency federal assistance to supplement state
and local efforts to avert the threat of a disaster or to protect
lives, public health, and property. A "major disaster" is one
that causes damages to sufficient severity and magnitude to
warrant major federal assistance above and beyond emergency
services.
FEMA keeps close track of potential disasters, such as the
development and path of a hurricane; it maintains close contact
with the Governor's office in the NC Division of Emergency
Management, as well as other federal agencies responsible for
disaster assistance, as the threat increases and disaster strikes.
8-3

After an initial reconnaissance, Onslow County officials should
immediately report the. nature and extent of damages to the NC
Division of Emergency Management (DOEM). DOEM then advises the
Governor on the seriousness of the situation; the Governor may
declare a state of emergency, put the State's disaster relief and
assistance plan into operation, and direct State resources to
where they are needed. If it becomes apparent that the situation
is of a severity or magnitude that exceeds State and local
capabilities, the Governor can ask the President, via FEMA, to
declare an "emergency" or "major disaster." Only the Governor (or
acting Governor) can make this request.
8.2.2 Preliminary Damage Assessment
If the Govenor asks for a Presidential declaration, State
disaster officials will:
(1) survey the affected areas, jointly with Onslow County
officials and (if possible) FEMA's regional disaster
specialists, to determine the extent of damages;
(2) estimate the types and extent of federal assistance
needed;
(3) consult with FEMA's Regional Director regarding
eligibility requirements; and
(4) advise FEMA's Regional Director of the State's intent to
request a Presidential declaration._
The Governor's request for a Presidential declaration will include
a certification of reasonable state and local expenditures for
disaster relief and an estimate of the federal assistance required
8-4

I
for the State and each affected county. The Governor's request,
addressed to the President, is submitted to FEMA's Regional
Director, who evaluates the estimates of damage and assistance
needs and makes a recommendation to the Director of FEMA. The
Director then recommends a course of action to the President, who
issues the declaration and sets in motion the machinery for
issuing federal disaster assistance to eligible public agencies,
individuals, and businesses.
8.2.3 FEMA's Post -Disaster Procedures
Once the President declares an "emergency" or "major
disaster," the Governor and FEMA's Regional Directorsign n a
9 9
Federal -State Disaster Assistance Agreement which specifies where
and how federal disaster assistance will become available. FEMA's
Associate Director for Disaster Response and Recovery designates
those counties and municipalities that are eligible for federal
assistance and appoints another federal official (usually
disaster pp Y
FEMA's Regional Director) as the Federal Coordinating Officer
(FCO). The FCO performs a number of functions:
(1) determining the types of assistance most urgently needed;
(2) coordinating all federal disaster relief efforts;
(3) coordinating federal activities with those of state and
local agencies and private disaster relief organizations
(such as the Red Cross and the Salvation Army);
(4) informing people in the community about the types of
assistance available;
i 8-5

(5) setting up and operating disaster field offices; and
(6) taking other actions, consistent with his authority, to
help local citizens and public agencies promptly obtain
assistance for which they are eligible.
The FCO is usually supported by one or more deputies who are
delegated to perform some of these functions.
FEMA sets up a temporary Disaster Field Office (DFO) in the
stricken area as a base for federal disaster relief operations.
The Disaster Field Office is usually located in conjunction with a
similar state office operated by the State Coordinating Officer
(from the NC Division of Emergency Managment),'who is the primary
liason between the FCO and state and local officials. The
location and telephone number of the Disaster Field Office is
publicized widely to allow applicants to visit or call when
problems arise.* The Disaster Field Office is staffed by
representatives of FEMA and all other federal agencies with
disaster assistance-resonsibilities in the area. These field
representatives are responsible for providing prompt assistance to
disaster victims and advising local and state agencies on
eligibility requirements, surveying and reporting damages, and
applying for federal assistance. In addition to these agency
representatives, the FEMA Regional Director may dispatch Emergency
Support Teams to provide specialized counseling, to help operate
the Disaster Field Office, and to temporarily supplement local and
state emergency response and damage assessment efforts.
* For the purposes of this plan, it is recommended that the
Disaster Field Office be set up at the Camp Lejeune Marine
Corps Base where Federal telephone service lines to the
Nation's capital already exist.
8-6

The types of federal disaster assistance fall into two general
categories: individual assistance (for individuals, families, and
businesses) and public assistance (for local and state agencies).
FEMA disseminates information about available aid programs via
local radio, television, newspapers, and pamphlets. FEMA will
establish a Disaster Assistance Center (DAC)* in the area to help
individual disaster victims more easily get information and
guidance from the various federal agencies. FEMA may dispatch
mobile teams to help persons in the area who lack easy access to
the Disaster Assistance Center.- At the center, disaster victims
apply for assistance from the various.federal programs available.
In addition to operating the Disaster Assistance Center (mainly
for providing individual assistance), FEMA and NCDOEM personnel
will hold an applicant briefing for local and state officials to
inform them of the public assistance available and the procedures
and eligibility requirements invovled. Items covered at the
briefing will normally include
(1) filing a Notice of Interest in receiving different types
of federal disaster assistance;
(2) preparing Damage Survey Reports (DSRs) to document
damages and present repair costs;
(3) filing a Project Application; and
(4) addressing special considerations, such as environmental
assessments and opportunities for hazard mitigation.
* For the purposes of this plan, it is recommended that the
Disaster Center be set up at the Dixon High School gymnasium
located at the intersection of US Highway 17 and NC Highway 210.
8-7

The Notice of Interest is basically'a checklist on which
local and state officials identify the types of damage sustained
by public facilities. It provides the basis by which FEMA
schedules damaged surveys.
Damaged Survey Reports (DSR)* document the extent 'of damages
to different facilities, identify needed and eligible repairs,
and assess in detail the costs of repairing or rebuilding them.
The DSRs are prepared by a Damage Assessment Team consisting of
federal, state, and local personnel, and are submitted to FEMA and
the NC Division of Emergency Management. The DSR is the basis for
FEMA's approval of applications for public assistance. The Damage
Assessment Team depends on local officials' damage assessments to
measure the severity and magnitude of damage; it is therefore very
inportant for Onslow County to maintain accurate records
property
and conduct its own damage survey before the Damage Assessment
Team arrives. Photographs, maps, and drawings are often included
in the DSR to provide more complete descriptions and
documentation.
FEMA classifies damages that are eligible for public
-assistance into seven categories of "permanent" work and two
categories of "emergency" work (see Table 8.1). A separate DSR is
g P
is prepared for each category of work and for each damage site;
separate DSRs are required for different categories of work at the
same site.
* Copies of these forms are found in the Disaster Reconstruction
Plan which follows.

TABLE 8.1
Categories of Public Assistance Available from FEMA*
"Emergency" Work, "Permanent" Work
Debris removal Road or Street Systems
Emergency Protection Water Control Facilities
(including communictions Public Buildings and Related
and public transportation) Equipment
Public Utilities
Facilities under Construction
Private Non -Profit Facilities
"Other"
* Source: Reference No. 1.

A DSR does not constitute an approval of repair work or a
commitment of federal funds. It simply provides.the most accurate
information available on the extend of damages and estimated
repair costs, which FEMA uses to approve or deny specific line
items requested in the Project Application.
The Project Application* is the formal request for aid that a
local government or state agency submits to FEMA's Regional
Director through the NC Division of Emergency Management (or the
Governor's Authorized Representative). The Project Application
summarizes and combines the Damage Survey Reports for various
projects for public facilities damaged in the community. The
Project Application also provides the formal record of FEMA's and
NCDOEM's review and approval of the different projects for which
federal funds are committed. The Project Application is signed by
the applicant's authorized representative and is accompanied by a
form designating this representative. The Project Application is
also accompanied by the complete Damage Survey Report for each
project listed. The application must be submitted to FEMA's
Regional Director within 90 days of the Presidential declaration
of a "major disaster." The deadline is compressed to 30 days for
an "emergency" declaration. It should be emphasized that, under
current FEMA policy, the federal government will only fund up to
75 percent of the eligible cost of repairs to public facilities.
* Copies of this form are found in Section 7 of Reference No.
8-9

Once a Project Application is approved and FEMA makes
different.forms of public assistance available to Onslow County,or
state agency, FEMA maintainsstandards for project administration.
These include project completion deadlines, progress reports, and
cost overruns. In a community where an "emergency" has been
declared, federal assistance typically ends one month after the
.initial Presidential declaration. Where a "major disaster" has
been declared, federal assistance for "emergency" work
,typically
ends six months after the declaration and federal assistance for
"permanent" work ends after 18 months. Recipients of federal
disaster aid can receive time extensions for a number of
extenuating circumstances. Recipients must submit progress
reports if there are any delays -that would make a project run past
the deadline or if the recipientfaces cost overruns. FEMA or
other federal and state agencies may conduct periodic inspections
of selected projects to make sure that work is progressing in a
timely fashion and according to the appropriate standards,
policies, and procedures,
As work on a -project ends, the recipient notifies the
Governor's Authorized Representative, who arranges for federal or
state personnel to make a final inspection of the work in each
category of funding (i.e. "emergency" or "permanent"). A final
Inspection Report documents the completion of work and is
essential to the recipient's being reimbursed for the cost of
repairs. A project that does not exceed $10,000 usually does not
require a final inspection.
8-10
F]

Once the Final Inspection Report is completed and. approved,
the recipient files a Request for Reimbursement, attaching a
listing of completed line items and their costs. This same form
can be used to request advance payments as well as reimbursements.
It is the final formal claim for the reimbursement of costs for
all repair and reconstruction projects eligible and approved under
FEMA's disaster assistance program.
Throughout the damage assessment/grant application/project
administration/reimbursement process, it is esential for Onslow
County to maintain detailed records. Records pertaining to damage
assessment and repair costs should be well organized and contain
accurate documentation. Damage Survey Reports should be
accompanied by photographs, sketches, and property information
(value, ownership, etc.); unsalvageable damaged equipment should
even be retained for inspection by survey teams. Other records
should be maintained to document repair costs that are contracted
out or borne by the local government itself; this would include
time sheets, equipment use schedules, and invoices should local
staff and financial resources be expended for any project. These
local expenditures may apply to the 25 percent match required of
local and state governments under FEMA's public assistance
program.
In addition to funding local repair and reconstruction
projects, the federal government may deploy its own personnel and
equipment to perform emergency work if local and state personnel
MW and equipment are inadequate to do so. To obtain this "direct"
federal assistance, the local government or state agency must
8-11

submit a request.to FEMA's Regional Director, via the Governor's
Authorized Representative, within ten days after the. Presidential
.declaration. The request takes the form of a resolution by the
local governing body (or body governing a state agency)
accompanied by a statement of why.the work cannot be conducted
with local or state resources. Local government budget
constraints are not considered a sufficient cause for receiving
direct federal assistance. FEMA's Regional Director will either
under
approve or deny the request or., if the requested work falls
the mission of another federal agency, refer the request to that
agency.
At the same time that local governments and state agencies are
applying for federal disaster assistance, FEMA's.Interagency-
Regional Hazard Mitigation Team conducts its analysis of damages
in the community, identifies opportunities for hazard mitigation,-
and issues its report recommending certain actions for federal,
state, and local agencies. Also, FEMA's joint survey team and
joint planning team, operating under Section 406.of the Federal
Disaster Relief Act evaluate hazards in the community,. recommend
specific mitigation measures, and prepare the Section 406 Hazard
Mitigation Plan.
If there is no Presidential declaration, certain types of
federal disaster assistance are still made available to the
community. The procedures for receiving such aid vary, as these M
programs are administered by separate federal agencies. FEMA
plays less of a coordinating function when there is no
Presidential declaration.
8-12

Figure 8.1
illustrates the timetable
under which FEMA's
disaster assistance procedures operate. It
includes deadlines for
damage surveys,
project applications, and project
completion.
8.3 The State
Role in Emergency Response
and Procedures For
obtaining
State Disaster Assistance
The State role
in disaster situations is
to.allocate the State
resources needed to cope with a disaster and avert losses of life
and property. As with federal disaster assistance efforts, State
actions are considered supplementary to local actions and are
taken only if local resources are inadequate to deal with the
situation. The State does play an active and important role in
coordinating federal, state and local disaster relief efforts.
All requests by local governments for federal disaster assistance
must go through and be coordinated by the State government to
ensure that proper procedures are followed d and that assistance
reaches the community as quickly as possible.
The lead state agency for disaster preparedness and response
is the Division of Emergency Management in the NC Department of
Crime Control and Public Safety. To coordinate state and local
disaster efforts, the Division of Emergency Management has.
developed and maintains the North Carolina Disaster Relief and
Assistance Plan, under authority of the NC Civil Preparedness Act
(NCGS Chapter 166). The Plan outlines procedures for the state
and local governments to follow in -planning for disasters,
responding to disasters and.seeking outside assistance.
8-13

r rrr � rr � ■r rr � r� � r� r �. �, r r ■r +� r
FIGURE 8.1
Timing of Federal Disaster Assistance Activitieslr/
Activity Days 0 15 30 4.5 90 105 180 540
(3 mos.) (6 mos.) (18 mos.)
Disaster Event X
Preliminary Damage
Assessment
Presidential
Declaration X
Establishment of Field
Offices and Applicant
Briefings HN#iH
Damage Survey Reports
filtiHHiNNHiiiN N;iiN Niiiiiii.K#iiMiiHNH N�
Project Applicatins
and Approvals?•/
HtHfitHf#!H H#f fH HHffiH Htff#tHf�i HtffHffMi1
Project Completion and
Final Inspection:
a. "Emergency" work
b. "Permanent" work
Htftfttlt�iftftttttt tntftf
Interagency Reg. Haz.
Mitigation Team
a. Recommendations
b. Progress Report""'����������������
1'fHttNHMiiiN HNiN lifi�N Niifif#i HiHi HHH
Section 406 Planning
a. Survey
b. Plan HitHH�HHiHHHHiHHiH#fNtlfffHtfHHfifM*filtH�iiHHiHHHf#iHNIHHH!!�
MfliiHHitHNf H#1fHi#*HMtiiHiif�ifiiitHifN
1./ Source: Reference No. 1.
T.-/ Thirty -day deadline if only an "emergency" is declared, not a "major disaster.

The stated purpose of the NC Disaster Relief and Assistance
Plan (NCDRAP) is "to provide direction and guidance to State and
local governments for preemergency preparedness, emergency
9 Y
response, and postemergency recovery action." The plan sets the
procedures and principles for state and. local agencies to follow
in responding to disaster by
(1) defining the roles and responsibilities of state and
local.officials;
(2) defining the emergency -related missions of local
governments and state agencies;
(3) directing the execution of measures to provide relief and
assistance; and
4 outlining forms of recover assistance available from
( ) u g y c
' state and federal agencies and the local actions required
to get it.
The NCDRAP identifies four levels of response to an emergency
or disaster, each of which entails different levels and types of
state involvement.
Level A -- Local Response - applies to those situations that
local resources can handle on their own.
Level B -- Local Response With State Assistance - applies to
those situations where the local government has declared a "state
of emergency" and some assistance is needed from different state
agencies to supplement local efforts.
Level C -- State of Disaster Response - applies to those
situations that are so severe that they call for a Gubernatorial
declaration of a "state of disaster" and a full commitment of
state resources.
8-14

Level D -- Response With Federal Assistance Under the Disaster
Relief Act - applies to those situations which state resources
cannot handle on their own an which call for a Presidential
declaration of disaster and ,for federal disaster relief.
The NC Disaster Relief and Assistance Plan is geared to
procedures for Levels B, C and D.
Local governments bear primary responsibility for emergency
response within their respective jurisdictions. The four levels
of response identified above set up a hierarchy of actions that
address disaster situations of different intensities. Assistance
from higher levels of government is obtained by requests from the,
head of the affected local government to the head of the next
higher level of government when (1) local resources are fully
committed and found to be inadequate to cope with the situation
and (2).a particular capability is required and is not locally
available.
in the event of a disaster, the Governor has overall
responsibility for directing state resources to disaster -stricken
communities and in requesting federal disaster assistance. The
Governor is assisted in this task by the Secretary of the
Department of Crime Control and Public Safety, who oversees the
Division of Emergency Management. The State Emergency Management
Coordinator (the Director of the Division of Emergency Management)
coordinates response operations, maintains.response and assistance
procedures, and guides and assists local and state agencies.
(Either the Director of DOEM or the Assistant Secretary for Public
Safety will serve as the State Coordinating Officer and Governor's
1
1
1
1
1
8-15

Authorized Representative if there is a Presidential.declaration).
Area Emergency Management Coordinators monitor state and federal
field activities in their respective regions, provide a liaison
between local governments and the State EMC, help coordinate the
State's response, and provide situation information to the State
EMC. The heads of other state departments and agencies carry out
their own contingency plans and cooperative agreements, provide
assistance at the State Emergency Operating Center, receive
functional assignments from the Governor and the State EMC, and
direct their own resources, as appropriate, to the community.
County Emergency Management Coordinators* are the principal
operatives at the local government level; it is their
responsibility to coordinate all local government activities in
their respective counties (including emergency operations, damage
assessment and reporting, and requests for state and federal
assistance).
The key "command center" for disaster activities is the State
Emergency Operating Center (EOC), located at the Division of
Emergency Management's Raleigh Office. The State EOC is used by
the Governor and other state officials to direct and coordinate
emergency response activities. A Disaster Field Office (DFO) may
be set up in the region during and after a disaster to facilitate
communication. between state and local personnel and to expedite
' * The Onslow County Emergency Management Coordinator is Mr. Don
Herman.
8-16

the assignment of State resources to different problems. The DFO
is staffed by the State Emergency Management Coordinator and other
State employees as required for damage surveys, public and
individual assistance, and public information. The DFO is usually
co -located with the federal Disaster.Field Office, when there is a
Presidential disaster declaration. In addition to the DFO,.the
State is likely to set up Field Emergency Operating Facilities
throughout the damaged region to provide on -the -scene
coordination, staff, and equipment. Each county will also have a
Local Emergency Operating Center where county and municipal
officials direct local response activities. and maintain
communications with the other state and federal emergency
centers.*
Requests for State assistance are made to the Governor by the
local governing body (see Figure 8.2 for the standard format); the
Governor then directs the Division of Emergency Management and
other state agencies to provide various types of assistance.
Personnel from different state agencies may be called to help in
the disaster relief effort by providing specific skills or
expertise pertaining to their different departments. Special
teams, made up of personnel from several departments, may be
called on to address particular problems, State personnel may be
called on to help with damage assessment, counseling applicants
for state and federal aid, debris removal, and other disaster
response and recovery tasks.
* For Onslow County that center is located at the Agricultural
Building, Jacksonville, NC.
8-17

1
i
1
1
1
1
1
1
1
1
1
1
1
1
i
1
FIGURE 8.2
Format for Requesting State Disaster AssistanceL•/
REQUEST
Jurisdication - Onslow County Date
A. Purpose (Statement of need - why the assistance is requested).
B. Type of Assistance (Form of assistance - what assistance is
requested).
C. Amount (In terms of personnel, material, equipment, facilities
and duration - how much assistance)
D. Statement that necessary written clearances, releases,
indemnifications have been or will be obtained.
E. Request is made on the authority of the Chairman of the Board
of County Commissioners, acting for the governing body of the
jurisdiction.
1_/ Source: Adapted from Reference 1.

To the maximum extent feasible, state agencies receive
assignments that are closely related to their regular missions.
For example, the NC Department of Transportation typically plays
' the primary role in debris removal, expecially on public roads.
The Division of Health Services (Department of Human Resources)
will test water supplies and help assess damages to public water
systems. Several departments will provide engineering services to
help with surveying damages, identifying the feasibility of
repairs and safety considerations, and recommending ways to
restore essential public services. The Governor can call on the
North Carolina National Guard, which can provide communications
and transportation, search and rescue, food and water, sanitary
and medical services, shelter, property protection, electricity
generation, damage assessment, debris clearance, and repair of
roads and bridges. The State Emergency Management Coordinator can
call on the Civil Air Patrol and/or the Marine Corps, which can
provide aerial surveillance of surface routes and traffic as well
as aerial photography and reconnaissance to aid in damage
assessment.
The NC Disaster Relief and Assistance Plan outlines local
responsibilities for the three phases of disaster activity: the
warning phase, the emergency operations phase, and the post -
emergency phase (see Table 8.2). The Plan authorizes local
governments to:
(1) assign employees and equipment for emergency operations;
(2) establish local emergency operating centers;
8'18

TABLE 8.2
' Local Actions During Three Phases of Disaster•/
WARNING PHASE - Increased Readiness
1. Establish situation monitoring in local EOC and staff as
appropriate. Conduct communications checks.
2. Alert and brief key officials and department personnel.
3. -Disseminate appropriate warnings to the public and verify
warning effectiveness.
4.
Advise utilities, businesses, and 'industry.
5.
Maintain liaison with local Red Cross and other local relief
agencies.
6.
If evacuation is indicated, insure route marking and shelter
designation. Deploy shelter management teams in conjunction
with the Red Cross and open shelters for voluntary use when
situation indicates.
7.
Meet with local news media to review public information
policy.
8.
Keep the public informed and provide necessary instructions.
9.
Keep the State EOC informed and advise adjacent jurisdictions
of the situation.
10.
Maintain liaison with the Area EMC.
11.
Be prepared to proclaim a local "state of emergency" when
warranted.
EMERGENCY OPERATIONS PHASE
1.
Take necessary measures to protect life and property as
conditions permit.
2. Report situation to State EOC and maintain liason with AREA
EMC.
3. Maintain contact with adjoining jurisdictions and provide
information on own situation to the extent practicable.
1./ Source: Reference No. 1.

i
1
Table 8.2, Continued
EMERGENCY OPERATIONS PHASE, Continued
4.
Based on own capability and severity of the situation,
activate mutual aid agreements.
5.
If situation is beyond local capabilities, request assistance
from next higher level of government.
6.
Keep situation reports and damage assessments current and
establish priorities for repair and restoration of essential
services.
7.
Keep public informed and provide instructions.
8.
Proclaim a local "state of emergency" if warranted.
POST -EMERGENCY PHASE- Immediate Recovery and Rehabilitation
1.
Continue . emergency operations as necessary.
Y
2.
Evaluate situation from reports received and initiate damage
'
assessment. Use photography to the extent feasible.
'
3.
Determine requirements for outside assistance and request
such assistance when beyond local capabilities.
4.
Keep the State EOC and Area EMC informed using Situation and
Damage Reports.
5.
Keep the public informed and provide instructions.
'
6.
Assemble and maintain records of actions taken and
expenditures and obligations incurred.
7.
Proclaim a local "state of emergency" if warranted.
8.
Commence cleanup, debris removal and utility restoration.
Coordinate and facilitate restoration by private utility
companies.
9.
Undertake repair and restoration of essential public
'
facilities and services in accordance with priorities
developed through the situation evaluations.

(3) establish mutual aid agreements with other local
governments and mutual understandings with public and
private agencies; and
(4) declare a "local state of emergency" which (a) activates
any local emergency plans and agreements, and (b)
implements provisions of local emergency. ordinances.
The State prototype plan encourages local governments to
prepare local disaster plans. Throughout all phases of disaster
activity, the local government must appoint one or more persons to
act as chief coordinators of local activities and liaisons with
state and federal personnel. The local government must also
provide space for federal disaster assistance centers. It must
also maintain procedures for accurate reporting, recordkeeping,
and accounting to identify and document funds it expended which
may be reimbursed by the state and federal governments or which
may fullfill any match requirements for federal disaster
' assistance.
In requesting and receiving state assistance, the local
government must file a series of three reports: the Situation
Report, the Damage Assessment Report, and the Expenditure/
Obligation Report.
9 P
County and municipal governments submit initial Situation
Reports through the County EOC to the State EOC immediately upon
' the threat or occurence of a disaster. Follow-up reports may be
submitted or requested as the situation develops. The Situation
' Report contains any information and preliminary assessments which
8-1g

local officials deem are appropriate to let the State know the
severity and magnitude of the situation and what types of
- assistance the community might need.
The Damage Assessment Report is submitted by the County
,
government no later than 48 hours after the disaster event. While
the County government and any municipal governments in the County
individually assess damages in their respective jurisdictions, the
County government is responsible for consolidating all data for
the entire County into one Damage Assessment Report. If a local
'
government wants state assistance, the County transmits the report
,
to the State EOC and the Area Emergency Management Coordinator.
The Damage Assessment Report groups damages by property ownership.
and use according to the following:
(1) public property - state, local, and private non-profit;
'
and
private property - agricultural, residential, and
(2) Y
P P _
business/industrial.
'
The report presents damages for each category in:
total of properties;
(1) number
(2) degree of damage (destroyed, major, minor); and
O 3 total dollar losses (as best estimates).
'
The State EOC uses the Damage Assessment Report to determine what
types of assistance to provide to the community.
The Expenditure/Obligation Report is submitted by the County
'
government to the State EOC at the State's request. The report
presents data for the entire County (municipalities included). It
8-20

presents the extent of local response in financial terms,
including that "local commitment" for which no reimbursement will
be requested and which can be used to meet any state or federal
rmatch requirements. The NC Disaster Relief and Assistance Plan
r
stresses that local governments must keep "records of actions
! taken and expenditures and obligations of funds, from the outset
despite the stress and urgency of an emergency situation." Local
records will be subject to state and federal audits if the local
government receives outside disaster assistance. Once the
Expenditure/Obligation Report is approved by the State, the local
government can be reimbursed or credited for its expenditures.
8.4 The Local Role In Emergency Response
In the light of the information presented in Sections 8.2 and
8.3 above, it is apparent that -'state and federal policies call for
Onslow County to bear the ultimate responsibility for emergency
operations, assessing and reporting damages, requesting outside
assistance, and managing reconstruction. While state and federal
agencies set the procedures for granting assistance to a
disaster -stricken community, such assistance will not be available
unless Onslow County acts properly and quickly according to state
and federal guidelines. In response to a disaster situation,
Onslow County should expect to commit all of its resources to
different response and recovery activities.
To help local governments cope with this task, the NC Disaster
Relief and Assistance Plan calls for local governments in the
State to prepare their own disaster relief and assistance plans.
8-2,

These plans are to outline the responsibilities of local officials
during disaster response and recovery and to outline procedures
for various emergency activities, damage assessment, disaster
assistance centers, and public information. To aid local
governments in developing such plans, in 1981 the NC Division of
Emergency Management prepared a Carolina County Prototype Disaster
Relief and Assistance Plan (Reference No. 3 ) . The prototype
applies to all disasters (from tornados to nuclear reactor
accidents) and must be tailored by the local government to fit its
individual geography, governmental organization, and specific
hazards.
Onslow County has prepared its own Disaster Relief and
Assistance Plan based on the format of the State prototype. The
Onslow County Disaster Relief and Assistance Plan (DRAP) includes
the text of an existing ordinance for setting up the basic civil
preparedness functions within the County government. It contains
.an executed agreement between the County and the American National
Red Cross. It is important that the Plan also contain a mutual
aid agreement between the County and its incorporated
municipalities.
The Onslow County DRA Plan also outlines a set of procedures
for communication and warning systems. These systems are modified
and enhanced by the updated Onslow County Hurricane Response Plan
(January, 1984) which compliments this Storm Reconstruction Plan.
In addition, the DRA Plan identifies emergency shelters and
procedures for transporting, registering, feeding, and bunking
8-22

persons using them. It designates the Disaster Assistance Center,
outlines DAC procedures, and identifies the responsibilities of
federal, state and local personnel as well as personnel from
private relief organizations. Finally, it sets up a plan for
temporary housing units including hotel/motel spaces, private
rental properties, government -provided trailers, sites appropriate
for temporary mobile homes, and the responsibilities of federal,
state and local personnel relative to temporary housing of
disaster victims.* In view of the fact that the Onslow County
Disaster Relief and Assistance Plan covers the above items in
detail, it will not be repeated herein. Therefore, it should be
used as a guide towards:
(1) the assignment of local staff responsibilities during the
emergency preparation and response stages;
(2) identifying communications and warning systems;
(3) setting up emergency shelters and moving people to them.
8.5 Damage Assessment and Reconstruction Plan
8.5.1 Introduction
This section presents standard procedures for the assessment
of damages resulting from a hurricane. It also forms a basis for
procedures and decisions relative to local reconstruction. The
Damage Assessment and Reconstruction Plan assists County officials
to:
* Note: Implementation of this portion of the Plan calls for
close coordination and cooperation with the National American
Red Cross.
8-23

IJ
,
(1)
Assign responsibilities and to provide instructions for
9 P
on -the -scene damage surveys consistent with the
,
aforementioned state and federal requirements for
reporting damages. in order to receive state and federal
,
assistance.
(2),
Establish the responsibilities of the County's Emergency
Management Coordinator, Damage Assessment Officer, Damage
'
Assessment Teams and the Recovery Task Force.
(3)
Designate Damage Assessment Teams and the Recovery Task
'
Force before the inevitable hurricane strikes so people
'
know their responsibilities and are prepared to act. The
designation of the Damage Assessment Teams and the
'
Recovery Task Force before the fact will insure that the
required responses and actions will be positive,
expeditious,and organized and hopefully devoid of
"brinkmanship,"
delays and confusion.
(4)
Select the appropriate types of persons which could be
'
used for Damage Assessment Teams and the Recovery Task
Force.
(5)
Set the procedures to follow (including their sequence
and timing) in assessing damages and permitting repairs
and reconstruction.
,
(6)
Set standards for development that repairs and
reconstruction must follow to reduce the risk of future
damages. These standards are based in part on the
'
recommendations found in the Hazard Mitigation Plan (see
Section 7).
,
8-24

(7) Assist in the identification of particularly hazardous
areas which are likely to need special treatment (such as
the relocation of buildings, roads and utility lines)
after a hurricane strikes, as well as, the types of
action that could be taken.
It should be noted that the reconstruction plan cannot cover
all contingencies and make all decisions beforehand since nobody
can accurately predict the exact type, amount, and location of
' damages Onslow Count will suffer during a specific hurricane
Y P
' event. Therefore, the plan simply embodies a policy framework and
a procedural framework for the specific decisions that can only be
' made during reconstruction, such as those dealing with the
relocation of roads and utilities. To facilitate these decisions,
the reconstruction ) ( plan spells out 1 who is to make these
P P
decisions, and (2) what criteria they shall use tou make the
decisions. Even though the decisions themselves cannot be made
until after disaster strikes, the reconstruction plan lays the
foundation of policies, priorities, and procedures on which these
decisions are based.
Included with the Damage Assessment and Reconstruction Plan
which follows is a sample worksheet which the damage assessment
' teams can use to assess the damages. Based on prior discussions
with the County's Emergency Management Coordinator and. the
' Director of Planning,it was decided to use the "percentage of
P 9
damage method" to assess the damages. This method will allow the
damage assessment teams to concentrate on a field determination of
' 8-25

the percent damage to the structure and property. Estimates of
dollar values associated with the damages will be applied by the
'
Damage Assessment Officer (DAO). In this case, it was decided to
,
use the County Tax Supervisor as the designated DAO. The Tax
Supervisor will use existing tax records to assign the damage
'
values. To expedite the work, he will also employ. assistants to
enable him to complete the necessary paperwork within the
'
previously mentioned time constraints imposed by the state and
federal requirements. The Damage Assessment Plan outlines
procedures for filing Damage Assessment Reports with the State.
'
The procedures break damages into four categories:
(1) destroyed (repairs costing more than 80 percent of
'
value) ;
'
(2) major (repairs more than 30 percent of value);
(3) minor (repairs less than 30 percent which render the
'
structure uninhabitable); and
(4) habitable (repairs less than 1.5 percent of value).
'
The Damage Assessment and Reconstruction Plan modifies the
'
above classification scheme with the local hazard mitigation and
reconstruction policies developed in Section 7 above. For
'
example, in Section 7 it is recommended that the. existing zoning
be -conforming to
'
ordinance amended to require all non structures
meet current standards after being damaged beyond 50 percent.
'
Also it is recommended that all slab -on -grade structures be
rebuilt as elevated structures when the damage amounts to more
,
than 15 percent and that all mobile homes be replaced by
8-26

conforming elevated structures if damaged beyond the 50 percent
' - level. The Plan requires a special Reconstruction Building Permit
' for all such reconstruction work.
To assist in visualizing the overall extent of the damages
following a hurricane, the information gathered by the damage
assessment teams should be translated onto property tax maps to
readily identify those areas where repairs and reconstruction must
meet certain requirements. When the damage assessment is
completed, the Damage Assessment Team fills out a form identifying
' the level of damages sustained, or damage classification, of each
property and any special requirmeents for repairs and :r
reconstruction; the form is then mailed or otherwise delivered to
the property owner. The form includes any other information the
property owner should know regarding recovery procedures (such as
' a moritorium on construction, permit requirements, filing
deadlines, and public meeting dates, etc.).
8.5.2 The Damage Assessment and Reconstruction Plan
' The text of the Damage Assessment Plan follows this page. It
is designed to stand alone as a singular working document in the
' case of a hurricane disaster.
8-27

ONSLOW COUNTY
HURRICANE DAMAGE ASSESSMENT
AND RECONSTRUCTION PLAN`
' MARCH, 1984
' Prepared at the Direction of
Onslow County Office of Emergency Management
and
Onslow County Board of Commissioners
The preparation. of this document was financed in part through a
grant from the North Carolina Office of Coastal Management through'-
funds provided by the Coastal Zone Management Act of 1972, as
amended, which is administered by the Office of Ocean and Coastal
' Resources Management, National Oceanic and Atmospheric
Administration.
HENRY VON OESEN AND ASSOCIATES, INC.
' Consulting Engineers & Planners
611 Princess Street ** P. 0. Drawer 2087
Wilmington, North Carolina 28402

ONSLOW
COUNTY HURRICANE DAMAGE ASSESSMENT AND RECONSTRUCTION PLAN
TABLE OF CONTENTS
PAGE
'
RECORD
OF CHANGES
.
. . . . . . . . . .
1.
PURPOSE
1
2I.
AUTHORITIES
311.
ORGANIZATION
. . . . . . . . . ..
2.
4V.
CONCEPT OF OPERATION . .
2
RESPONSIBILITIES
3
5.
6I.
INSTRUCTIONS
FOR DAMAGE ASSESSMENT
7
7II.
INSTRUCTIONS
FOR RECONSTRUCTION TASK FORCE
'
ACTIVITIES .
. . . . . . . . . . . . . . . ... . .
10
8III.
APPROVAL
Attachment 1
- Organizational Chart, Damage .
Assessment Teams
'
Attachment 2
- Personnel Rosters and Vehicle
Assignments, Damage Assessment
'
Teams
Attachment 3
- Personnel Roster, Reconstruction
Task Force
Attachment 4
- Sample Damage Assessment Worksheet
.and Instructions
Attachment 5'
- Damage Assessment Report

1
ONSLOW COUNTY
' HURRICANE DAMAGE ASSESSMENT AND RECONSTRUCTION PLAN
RECORD OF CHANGES
ii

ONSLOW COUNTY
® HURRICANE DAMAGE ASSESSMENT AND RECONSTRUCTION PLAN
■
I. PURPOSE
This plan sets forth the authority, organization, concept,
assigns responsibilities and provides instructions for the conduct
of damage assessment and reconstruction operations by means of
on -the -scene surveys following a hurricane disaster in Onslow.
County. For definition of damage assessment, see Paragraph VI.A.
The information obtained during the survey is essential in
assessing the extent of damage within the County and is required
when requesting State and Federal assistance. This plan will be
. , used for assessing damage caused by a hurricane. However, it also
may be used to access damages caused by other types of disasters
such as a flash flood tornado` winter storm (northeaster), etc.'
II. AUTHORITIES
A. Public Law 93-288
B. NC General Statutes Chapter 166A
C. Civil Preparedness Ordinances and Agreements_
(1) Jacksonville-Onslow County Civil Preparedness
Resolution
(2) Jacksonville-Onslow County Disaster Operations Plan
(3) Jacksonville-Onslow County -American National Red
Cross Agreement
(4) County of Onslow State of Emergency Ordinance, as
amended.

2
III. ORGANIZATION
A. Damage Assessment Operations. The organization for damage
assessment operations;
will be as shown in Appendix
1 -
Organization Chart to
this Plan. Personnel Rosters
and
Vehicle Assigments are
shown in Appendix 2.
B. Reconstruction Task
Force. The organization of
the
Reconstruction Task Force will be as shown in Appendix
3.
IV. CONCEPT OF OPERATION
A. Pre -Disaster. County Emergency Operating Center (EOC)
personnel and Damage Assessment Section (DAS) will
maintain equipment and supplies (maps, forms, city '
directories, photo records of structures, tax value `
information, etc.) in readiness condition. The Damage
Assessment Section (DAS) will be provided damage
assessment training, at least anually. The Reconstruction
Task Force (RTF) will meet to discuss procedure
coordination at least anually.
B. During the Disaster. DAS and RTF personnel will remain in
shelters, listen to the radio, and prepare to respond to -a
telephone call, commercial radio and television or other
message to report for duty.
C. Post -Disaster. As soon as safety conditions permit, DAS
and RTF personnel when notified will report to the County
EOC, receive assignments and pick up equipment and
supplies, move to emergency or disaster area in vehicles
equipped with two-way radios, survey assigned areas, '
i
1

1
1
1
i
1
1
1
1
1
1V.
3
record damage, transmit general damage assessment
information via radio or other means to EOC, return to EOC
when directed, and provide specific written report to EOC.
Damage assessment will continue until all suspect areas
are covered even though Federal or State assistance has
arrived. The Reconstruction Task Force will meet to
recommend the declaration of a moritorium on repairs and
new development (if necessary) in accord with the County
of Onslow State of Emergency Ordinance, as amended. Also,
the RTF will oversee the reconstruction process and advise'
the County Commissioners on any policy questions which may
arise. The RTF will work closely with the State and
Federal representatives on the Interagency Regional Hazard
Mitigation team and the Section 406 Hazard Mitigation
Survey and Planning teams.
RESPONSIBILITIES
A. Emergency Management Coordinator (EMC)
(1) Ensure that equipment and supplies (damage assessment
planning maps, photo records of all existing
structures, property evaluation and insurance data,
damage assessment forms, city directories, etc.) are
readily available in the EOC. Schedule damage
assessment training for the DASA and provide for the
instruction at least anually and no later than March
of each year. Update this plan annually.

4
(2) Notify the County Damage Assessment Officer that an
emergency or disaster is.imminent or has occured and
arrange to assist. him in notifying the Survey Teams
And Recovery Task Force members via telephone,
commercial radio and TV or other means. Provide
situation briefing in EOC and in coordination with
the Damage Assessment Officer dispatch teams as
needed to affected areas. Remain in the EOC and
receive damage reports from the Damage Assessment
Officer, analyze same and advise heads of local
governments of situation. Provide consolidated
dama e.assessment.data to the State Emergency
9 9 Y
Management at the State EOC in Raleigh; or to the
State Emergency Response Team (SERT) at its Field
Command Post if it is operational.
(3) Retain reports for use in future to support disaster
impact data (see Paragraph VI A (9) below).
B. Damage Assessment Officer (DAO)
(1) Assist the County EMC in maintaining DAS readiness to
include this plan, equipment and supplies, and
training. Update damage assessment planning maps,
�.
t a l
photo records of all existing structures and property
evaluation and insurance data to include information
available in the Onslow County Tax Office and from
local insurance firms. Update
personnel rosters and
vehicle assignments.

C.
r
5
(2) Upon notification of an emergency or disaster, report
to the EOC and notify Survey Teams. In coordination
with the EMC, dispatch appropriate teams to the
affected area. Remain in the EOC and receive damage
data from the teams, review for accuracy, record and
plot information, access values to damages, and
advise EMC of the situation. Contact local American
Red Cross Chapter for damage assessment data.
Prepare consolidated damage assessment data in
prescribed format for transmittal by the EMC to State
Division of Emergency Management. (See Appendix 5 of
the Plan).
Damage Assessment Teams (DATs)
(1) Assist DOA and EMC in maintaining readiness by
checking equipment and supplies, attending training
sessions and reporting any changes to personnel
rosters.
.(2) Upon official notification, report to the EOC as soon
as safety conditions permit, receive assignments,
pick up equipment and supplies, .move in vehicles
equipped with two-way radios to the emergency or
disaster area assigned, survey area, record damage,
transmit general damage assessment information via
radio to EOC, return to EOC when directed and provide
specific written reports to Damage Assessment
Of f icer.

6
D. Reconstruction Task Force (RTF)
(1)
Review the nature of damages, identify and evaluate
alternate approaches .for repairs and reconstruction,
and formulate recommendations for handling community
recovery.
(2)
Recommend to the County Commissioners the declaration
of a moratorium on repairs and new development.
(3)
Set a calendar of milestones for reconstruction
tasks.
( 4)
Initiate orders for repairs to critical utilities
P
and facilities.
(5)
Recommend the lifting of -a -moratorium for "minor"
repairs.
(6)
Recommend the lifting of a moratorium for "major"
repairs to conforming structures.
(7)
Evaluate hazards and the effectiveness of mitigation
policies and recommend the amendment of policies, if
necessary.
(8)
Initiate negotiations for relocations and
acquisitions of property.
(9)
Recommend the lifting of moratorium on "major"
repairs (with approved changes to conform).
(10)
Participate in federal hazard mitigation planning.
(11)
Recommend the lifting of moratorium on new
development.

7
VI. INSTRUCTIONS FOR DAMAGE ASSESSMENT
A. Definition. Damage assessment is a rapid means of
determining a realistic estimate of the amount of damage
caused by a hurricane (or other emergency or disaster).
For the purpose of this plan,'it is expressed in terms of
numbers of structures, type of damage (destroyed, major
damage, minor damage, habitable or uninhabitable),
estimated total dollar loss, estimated total dollar loss
covered by insurance, and information describing the
impact of the disaster. Disaster impact information may
include but is not limited to the following:
(1) Number homes inacessible (due to loss or roads,
bridges, presence of overwash fans, or for other
reasons).
(2) Number of people displaced and in need of housing.
(3) Number of substandard homes damaged or destroyed.
(4) Unemployment estimates, businesses affected and
estimated length of problem.
(5) Needs for food, clothing, and medicine.
(6) Needs of elderly.
(7) Minority problems.
(8) Economic conditions of community - normal or
depressed.
(9) History of past disasters.
(10) Debris problems.
(11) Emergency protective measures taken by government.

8
(12) Resources available to meet the needs of people.
(13) Resources needed and unavailable in terms of type,
quantity and duration.
B. Reports
(1) To State. Damage Assessment Reports will be
submitted by the County government for.the entire
County and will consolidate municipal and County
data. Reports will be submitted to the State
Director, NC Division of Emergency Management and a
copy provided to the Area Coordinator as soon as
possible, generally within -24 hours, but no later
than 48 hours following the occurence. The reports
will be in the format prescribed in the Onslow
County Disaster Relief and Assistance Plan, and as
shown in Appendix 5 of this Plan.
(2) To County. Survey team reports will be completed by
Team Captains in accordance with the procedure shown
below, reported as rapidly as practicable using best
available means of communication, and confirmed with
a completed form when the team returns to the EOC.
C. Team Procedure. Form EM-39 (Percentage of Value Method).
will be used by the teams (or team members) who will
estimate the extent of damage sustained expressed as a
percentage of the total value of the structure (See
Appendix 4). Determination of estimated dollar loss will
be calculated by the Damage Assessment Officer using best
available property value listings and other information.

M
(1)
Survey area assigned perferably.by on -site visit.
(Note: If not possible, obtain data by other means,
e.q., telephone or other personal contacts).
(2)
Complete the Damage Assessment Worksheet (Form EM-39
- Percentage of Value Method), a copy of which is
shown in Appendix 4, in accordance with the Damage
Assessment Worksheet Instructions.
(3)
Transmit general damage assessment information via
radio or other means to the EOC. Provide followup
written reports of general damage to the Damage
Assessment Officer.
D. Section Procedure. Damage Assessment Officer will:
(1)
Review all team worksheets for accuracy.
(2)
Consolidate all team worksheets.
(3)
Using the Damage Assessment Planning Map, photo
files, and Property Evaluation and Insurance Data on
file, complete that portion of the worksheets
entitled "For Use By Damage Assessment Officer" in
accordance with instruction contained in the reverse
of each worksheet.
(4)
Using the above data, complete Section A of the
County Damage Assessment Report in accordance with
instructions contained in Appendix 5.
(5)
Obtain "Private Property - Agricultural" data from
the County USDA Emergency Board and enter in Part B
of the report.

10
(6)
Complete Section C - Economic Impact and Section D`-
Public Property in accordance with Appendix 5.
(7)
Pass report to EMC and retain one copy for files.
VII. INSTRUCTIONS FOR RECONSTRUCTION TASK FORCE ACTIVITIES
-- A. Task
Force Procedures
-Based on damage assessment reports,
-(1)
preliminary
recommend the declaration of a moratorium on repairs
and all new development by County Commission.
(2)
Prepare a calendar of milestones for reconstruction
�.
and set priorities for repairs to roads, water and
systems,
sewer telephone and electrical power line/!
facilities, waterways, beach dunes, public
structures, etc.
(3)
Initiate orders for repair of infrastructure based
on establishment priorities.
(4)
Initiate special reconstruction permitting
procedures using the resources of the existing
County Building Inspectors office.
(5)
Meet on site to (a) establish the new CAMA setback
line for all beachfront construction, (b) establish
the locations of roads, utilities, etc., (c) mediate
*decisions regarding relocation of structures away
from hazardareas, and (d) negotiate the acquisition
of land for public use.
(6)
Recommend specific further mitigation of hazards
based on presently unknown conditions extant
following the storm.

(7)
Recommend the gradual lifting of moratoria as
reconstruction progresses.
(8).
Conduct a post reconstruction meeting to review the
disaster experience. and to modify the role of the
Task Force as needed.
(9)
Revise the Hurricane Damage Assessment and
Reconstruction Plan as.required to meet future
needs.
(10)
Prepare a final disaster recovery report following
the reconstruction period.
VIII. APPROVAL
Emergency Management Coordinator Damage Assessment officer

i
APPENDICIES
1.
Organizational Chart, Damage Assessment Teams
2.
Personnel Rosters and Vehicle Assignments,.Damage Assessment
Teams
3.
Personnel Roster, Reconstruction Task Force
4.
Sample Damage Assessment-Worksheet and Instructions
5.
Damage Assessment Report
9 P

APPENDIX 1
ORGANIZATION CHART
[Onslow County Damage Assessment Section (DAS)
County
Emergency Management
Coordinator
County
Assistant
Damage Assessment
Recorders
Officer
Public Property
Business and Industry
Private Dwellings
Private Dwellings
Survey Team
Survey Team
Survey Team No. 1
Survey Team No. 2
- Volunteer Firemen
- Tax Collector (C)
- FmHA Representative
- Building
Inspector (C)
- Public Works Engineer
- Building Inspector
- Vol. Firemen (D)
- Building Inspector
- Realtor
- Realtor
- Realtor (D)
- Architect/Civil
- Arcitect/Civil
- Architect/Civil
- Architect/Civil
Engineer
Engineer
Engineer
Engineer
C = Team Captain
D = Driver
NOTE: The orginzation shown above is designed to show the various sources of personnel which may be available
for survey teams. Onslow County should specify the composition
of the teams.

Public
Property
Business
•
Industry
®--®®
®®
Private
Dwellings
No.
Dwellings
•®�®
No.
®®®�-
®���■s®
TELEPHONE
ASSESSMENT
AGENCY
NAME
OFFICE
HOME
SECTION
Damage
Assessment
Officer
Assistant
Assessment
Officer
Assistant
Assessment
Officer

APPENDIX 3
PERSONNEL ROSTER OF RECONSTRUCTION TASK FORCE
Telephone
Wl� - - of f i [-P - Hnma
1. Chairman, Onslow County Board of
Commissioners (Team Leader)
2. Onslow County Emergency Management
Coordinator
3. Damage Assessment Officer
(County Tax Supervisor)
4. County Sanitarian
5. County Sheriff
6. County Building Inspector
B. Private Sector Personnel
1. Realtor
2. Civil Engineer
3. Architect
4. Banker -
C. Designated Representatives From
Following Public Agencies or
Private Corporations
1 Onslow/Jones County Electrical
Membership Corporation
2. Carolina Telephone Company
3. NC Department of Transportation
4. NC Division of Environmental
Management
5., NC Office of Coastal Management
6. US Army Corps of Engineers
7. Farmers Home Administration

S Mon M"" M am. t t
Check (./) Type
Check (V') Extent of Damage
For Use By Damage Assessment Officer
of Building
M
r
m
o
Unusable/Uninhabitable
Usable/
g
c
o
Sr
M
S
g
u
Habitable
Property Address
Name of Owner
s
Value of
Destroyed or
Extensive Exterior
Damage to
Mostly Exterior
a
Essentially
and Interior
Exterior and
Surface Damage,
Building
Estimated
% Insurance
Destroyed, Small
Damage. Portions
Interior of Such
Broken Window
(Exclusive of
Dollar Loss
Coverage
Percentage of
of Roof or Walls
Magnitude to
Glass, etc.
Land, Contents)
Structure Remains
Destroyed. or
Render Building
Building is Usable.
Intact, or Flood
Flood Water Lme 8
Unusable. or Flood
Flood Water Line
Water Line 8 Feet
Feet Above Floor.
Water Line 3 Feet
Above Floor.
Above Floor.
(x 0.70)
Above Floor.
(x 0.10).
(x 1.00)
(x 0.30)
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
rs
20.
Notes:
Incident
Area/Zone
Date of Insp.
1. Check if single family, enter number of families
a Assessment Worksheet
It multi -family, duplex, or apartments.
2. Check and describe on reverse side of form.
(Percentage) Of Value Method)
Assessor
Sht. No.
Of
3. Use reverse for notes; sketch maps, etc.
form EM-39 a-Bi

9/30/81
DAMAGE ASSESSMENT WORKSHEET INSTRUCTIONS
(Percentage of Value Method)
This form is used by local/county government damage assessment teams
following.a disaster to assess losses to private property. Assessment is
based upon on -site inspections and classification of damages according to
"Extent of Damage" columns on the form. Estimated dollar losses are cal-
culated by the Damage Assessment Officer.
INSTRUCTIONS:
Damage Assessment Team -
a. Complete bottom of form indicating type of incident (flood, tornado,
ice storm, etc.), area or zone of assignment covered by this work.sheet,
date of inspections, name of assessor, and sheet number (serially by
assessor, area/zone, or incident, depending upon local preference).
b. List damage property assessed by indicating address, name of owner (or
business name, building name, etc.), and type of building. In case of
multi -family housing, use figure to indicate number of families. For property
not covered by types listed, check "Other" and describe under "Remarks" below.
c. Indicate usability and extent of damage by checking the most appropriate
column.
d. Upon completion of the inspections, submit worksheets to the Damage
Assessment Officer.
Damage Assessment•Officer -
a. Review worksheets for completeness and legibility while assessor is
present. Have any incomplete information added and any illegible entries
clarified before releasing assessor.
b. Enter property values from available -listings, being sure to exclude
value of land and building contents.
c. Determine estimated dollar loss by multiplying value of building by
percentage multiplier indicated in Damage column checked.
d. Using best available information, enter % of property value covered by.
insurance.
e. Consolidate damage figures and transmit to the State Emergency Operating
Center (EOC) using Damage Assessment Report format used by the local Emergency
Management Coordinator.
-----------------------------------------------------------------------------
REMARKS:

DAMAGE ASSESSMENT REPORT 9/30/81
COUNTY: NUMBER: DATE:
Section A. Private Property - Non -Agricultural
TYPE OF
PROPERTY
UNINHABITABLE
USABLE/
HABITABLE
TOTAL
DOLLAR
LOSS
AVERAGE %
INSURANCE
COVERAGE
NUMBER
DESTROYED
NUMBER
MAJOR
DAMAGE
NUMBER
MINOR
DAMAGE
NUMBER
DAMAGED
1. Houses
2. Mobile Homes
3. Multi -family
4. Businesses
5. Utilities
N/A
5. Other (Specify
TOTAL
Section B. Private Property - Agricultural
.TYPE OF
PROPERTY
UNINHABITABLE
USABLE/
HABITABLE
TOTAL
DOLLAR
LOSS
AVERAGE %
INSURANCE
COVERAGE
NUMBER
DESTROYED
NUMBER
MAJOR
DAMAGE
NUMBER
MINOR
DAMAGE
NUMBER
DAMAGED
1. Houses
2. Mobile Homes
3. Farm buildings
4. Equipment
5. Livestock
N/A
6. Poultry
7. Timber
S. Crops
9. Farm fencing
10. Irrigation
System
ril—Other (Specify)
TOTAL
Form EM-40-A&B
9/81

9/30/81
DAMAGE ASSESSMENT REPORT INSTRUCTIONS
Reports will be made by county governments and State Departments
and will cover damages within the entire county including municipalities.
The Damage Assessment Report will be submitted following a signifi-
cant emergency or disaster. Assessments are required in numerical and
dollar value terms. They must be made by qualified personnel and should
be the best estimates that can be made in the immediate post -emergency/
disaster period. Numbers and.dollar values are totals for the county.
In completing Sections A and B below the following definitions will
apply:
DESTROYED - More than 80% of value to repair; unusable, uninhabitable.
MAJOR DAMAGE - More than 30% of value of a structure; uninhabitable.
MINOR DAMAGE - 30 % or less of the value of a structure; uninhabitable.
HABITABLE - Damage amounting to 15% of less of value of structure
usable for intended purpose.
UNINHABITABLE - Unusable for intended purpose.
TOTAL DOLLAR LOSS - Repair/replacement cost at current prices; restore
to pre -disaster conditions (present standards).
INSURANCE COVERAGE - Average insurance coverage by type of property
expressed in percentage of total property value.
N/A - Not Applicable.
Section A - Private Property - nonagriculture - includes all dwellings,
businesses large and small commercial concerns) and privately owned
utilities in urban, suburban and rural areas except properties of individuals
principally engaged in agriculture.
Section B - Private Property. - agriculture - reports damages to
agricultural property including dwellings of farmers. Care should be taken
to ensure that damaged dwellings are reported in only one Section.
Appendix 7
�J
L�
F1
F

9/30/81
Section C. Economic Impact
1. Business Losses:
NAMES OF
BUSINESSES
DAMAGED
TYPE OF PRODUCTS
OR SERVICES
ESTIMATED
NUMBER DAYS OUT
OF OPERATION
NUMBER
OF
EMPLOYEES
(Indicate if goods/services are essential and not available elsewhere in area
by use of *.)
2. Losses of Property by Income Level:
INCOME LEVEL
_ AVERAGE % INS.COVERAGE
=
Low
Medium
High
3. Effects Upon Transportation: (Narrative)
Public:
Private:
4. Effects Upon Farm Employment: (Narrative)
FORM EM-40-C

9/ 33/ 31 . I
Section C - Economic Impact - includes information necessary to
estimate the amount of individual assistance which will be needed in
categories such as temporary housing, food stamps, unemployment compensation,
individual and family grants, and Small Business Administration Loans.
Section C, Economic Impact is completed as follows:
.1. Business Losses - List information requested based on conversation with
owners or managers of damaged businesses.
2. Losses by Income Level:
a. From Section A, determine total dollar loss for all types of property.
b. From Section B, determine total'dollar loss for all -types of property.
c. Add a and b above to obtain grand total dollar loss.
d. On the basis of the Damage Assessment Officer's knowledge of the
prices of the damaged/destroyed property, divide C (grand total dollar
loss) into three parts; that which could be attributed to low, middle,
and high income families. For example, if 2/3 of the dollar value of
private property damage was sustained by low income families/individuals,
then 2/3 of the total dollar loss would fall under the "Dollar Loss" column
in the "Low" (Income) row. Divide the remaining 1/3 appropriately between
middle and high income groups, using the same procedure. Enter these
figures under the "Dollar Losses" column.
e. Based on the Damage Assessment Officer's knowledge of the damage communi-
ties, estimate the average insurance coverage in the high, middle and
low income groups and enter these figures under the average % insurance
coverage column.
f. Compute the uninsured losses for the three income levels by multiplying
the dollar loss figures for each income group times the appropriate V
insurance coverage and subtract the result from the appropriate income
level dollar loss figure. Enter the result under the Uninsured Losses
column in the appropriate Income Level Row.
3. Effects on Transportation - Give a verbal and/or numerical description of
the effects of the disaster on public and private transportation.
4. Effects upon farm employment. From the County ASCS Emergency Board, obtain
an estimate of the number of farm and migrant workers who are affected by
the disaster.

r 30/ 81
Section D. Public Property (Including Private Non -Profit Facilities)
TOTAL
NUMBER NUMBER DOLLAR
CATEGORY DESCRIPTION DESTROYED DAMAGED LOSS
A
Public Streets, R/W
Debris
Other Public Property
Clearance
Private Property (in the
public interest)
Within Channels
B
Life & Safety
Protective
Measures
Health
Property
Stream/Drainage Channels
C
Roads and Highways
i
Road
Bridges
Systems
Culverts
(Non -State
Traffic Control
Maintained)
Other (Specify)
D
Dikes
Water
Levees
1
Control .Damn
Facilities
Drainage Channels
E
Irrigation Work
Public Buildings
Public
Supplies, Inventory
Buildings,
Vehicles, Equipment,
Equipment,
Communications
and
Transportation Systems
Communica-
Higher Education
ti ons
Facilities
F
Water
Public
Storm Drainage
Utility
Sanitary Sewer
Systems
Power and Light
Other (Specify)
G
Public Facilities
Facilities
(Specify)
Under
Private Non -Profit
Construction
(Specify)
H
Educational
Private
Medical
Non-
Emergency
Profit
Custodial Care
Facilities
Utility (incl.Elec.Co-ops)
Other (Specify)
I
Park Facilities
Other
Recreational Facilities
a * Theses stems are not normally insurable.
Y Y
AVERAGE %
INSURANCE
COVERAGE
Form EM-40-D
9/81

9/30/81
Section D - Public Property - includes all properties and facilities
ownded by legal governmental entitites within the county including publicly
owned utility systems. It also includes damages to private nonprofit
educational,'utility, emergency medical and custodial care facilities which
have an effective.ruling letter from the Internal Revenue Service granting
tax exemption.
All sections are required for a complete Damage Assessment Report. Where
any of the three categories of property (private, agricultural, public)
received no damages, it should be noted as "none."
Normally, one complete Damage Assessment Report will be submitted and will
be shown as report number one: Changes or additions can be made by. submitting
revised reports which will be reports number two, three, etc.

SECTION 9: BIBLIOGRAPHY -
1/William D. McElyea, David J. Brower, David R. Godschalk.
Before the Storm; Management Development to 'Reduce Hurricane
Damages. _Ocean and Coastal Ecology Program Center for
Urban and Regional Studies, UNC/Chapel Hill; August 1982.
2/
Onslow County Planning Department. Onslow County Land
Use Plan. October 1981.
3/
- North Carolina Department of Crime Control and Public
Safety. Carolina County Disaster Relief and Assistance
Plan - Prototype (With Annexes and Changes) 1981-83.
4/Onslow County Office of Emergency Management. Onslow County
Hurricane Response Plan_(Including Hurricane Evacuation Plan).
January 1984.
5/Onslow County Board of Commissioners (supported by Onslow
County Planning Board and Planning Department). Zoning
Ordinance. Undated.
6 /
- Onslow County Board of Commissioners (supported by Onslow
County Planning Board and Planning. Department). Subdivision
Regulations. October 1979.
Z/John J. Hooten and Associates. Condominiums in Barrier
Islands (Preliminary Draft). 1983 - Unpublished.
8/U. S. Army Corps of Engineers District, Wilmington.
Reconnaisance Report - West Onslow Beach and New River
Inlet, N. C. (Draft). Undated.
9/Federal Emergency Management Agency. Flood Insurance
Study - City of Jacksonville, North Carolina - Onslow
Count (Preliminary). May 1983.
10/Federal Emergency Management Agency. Federal Disaster
Assistance Program - Handbook for Applicants Pursuant to
Public Law 93288. March 1981.
11/John R. Stone; UNC Sea Grant College Program. Hurricane_
Emergency Planning; Estimating Evacuation Times for Non -
Metropolitan Coastal Communities (Working Paper 83-2).
April 1983.
12/Larry R. Goode, P. E.; N. C. Department of Transportation.
Series of inter -agency memoranda entitled Estimated Evacuation
Time for (Designated Coastal Counties). 1983

13/David Brower, Etal; Department of City and Regional Planning,
UNC/Chapel Hill. Currituck County, Outer Banks Carrying
Capacity Study. June 1983.
14/Onslow County Office of Emergency Management. Onslow County
Emergency Management Ordinance. Undated.
15/ h Carolina State Building Code, Volume I. March 1982.
North g
(With Amendments, June 1982)
l6/
N. C. Building Inspectors' Association. North Carolina
Uniform Residential Building Code (1969-76)(Adopted by
the North Carolina Building Code Council).
17/U. S. Water Resources Council. Regulation of Flood Hazard_
Areas to Reduce Flood Losses (Volume 2). Undated.