CAMA Land Development Plan Update-1984

CAMA LAND DEVELOPMENT PLAN UPDATE
FOR
PENDER COUNTY, NORTH CAROLINA
PREPARED BY
FERREN PLANNING GROUP
Greenville, N.C.
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

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EXECUTIVE SUMMARY
INTRODUCTION
This planning document is a comprehensive update of Pender County's
1976 CAMA Land Use Plan. The land use plan update and the 1976 plan
were prepared in accordance with the Coastal Area Management Act of 1974
and the Act's required land use planning guidelines. The planning
guidelines have been substantially revised since the 1976 plan was
prepared with more emphasis on land use policy development. Pender
County, along with the other 19.counties covered by CAMA, are expected
to update their land use plan again in 1986.
Many Pender County residents probably question why the County has
a land use plan. Perhaps the most important reason is the plan
affords all the residents of Pender County an opportunity to manage the
County's resources in a manner consistent with their own values and needs.
It is also important for Pender County to demonstrate to other land
governments and state and federal officials how land use issues will
be addressed on the local level. The County should then fair better
at influencing state or federal policies affecting Pender County.
PUBLIC PARTICIPATION
One of the most important aspects of any community planning effort
is public input because the finished product should reflect the desires
of the overall community. During the update of Pender County's land
use plan public comments were solicited through public meetings with the
Planning Board and County Commissioners. In 1976 an extensive citizen
survey of public opinion about land use issues was conducted. The
Planning Board and County Commissioners believed that survey's results
still reflect county residents' feelings. A majority of those surveyed
favored moderate population growth, improved job opportunities, and
protecting Pender County's water and land resources for future generations.
POPULATION AND ECONOMY
In contrast to the 1960's when population slightly decreased, Pender
County experienced a rapid population increase during the 1970's. This
was because of a sharp increase in new permanent residential population
locating in eastern Pender County. According to the preliminary 1980 Census
figures Pender County's population increased from 18,149 in 1970 to
22,107 in 1980, a 21.8% rise. The increase can largely be attributed to
migration of new residences seeking recreation -oriented housing or "a
place in the country". This emphasis can be seen in the very sharp 54%
increase in housing units during the 1970's with a majority of all
new units added to Topsail, Burgaw, and Union Townships but all townships
showed significant gains.
Historically, Pender County's economy has been dominated by its
agricultural and coastal water resources and this is still true today;
but increasing employment in non-agricultural jobs, retirement living,
and generally more employment diversity are changing some of this
traditionally rural farm life style at an ever increasing speed. Nearly
one half of all the county's workers are employed outside of Pender
County, mostly in Wilmington -New Hanover County.
i

Average income levels in Pender County remain below average incomes
for the State, but the difference is not as great. In 1970 per capita
income was $1,713 for Pender County and $2,492 for the State, a 45%
difference, whereas by 1975 the difference had shrunk to 35%
($3,646 compared to $4,922).
EXISTING LAND USE
How Pender County land and water resources are used now and in the
future is the main question directed to coastal residents by CAMA.
Perhaps the term" rural" best characterizes existing land uses in Pender "
County. The different types of land uses can be described as
agricultural, forested, and developed. The developed category can be
M
further subdivided.
Approximately 80% of all land in Pender County is covered by
forests, most of which is in the eastern section of the County. Many
of these woodlands are actively farmed for timber and other wood
products. A little more than 15% of the County is used for agricultural
purposes.
Developed lands occupy the remaining 5% of Pender County. Residential
development occurs in three general patterns: stripped along state
roads and highways, in planned subdivisions and in small crossroads
communities like Penderlea. Subdivisions to the east of U.S. 17, such
as Olde Point and Belvedere are becoming increasingly popular for both
permanent and seasonal residents. Commercial development is largely
limited to small grocery stores and service stations with good potential
for increased retail activity near Hampstead. Industrial operations
are concentrated in or near Burgaw.
From all indications, major changes in established land use patterns
are not expected during the planning period.
Residential land uses are concentrated in three areas of the county
including the areas adjacent to the Atlantic coast and the intracoastal
waterway; the Town of Burgaw, Atkinson, Watha, Topsail and Surf City,
and adjacent to highways and state roads. There are very few multi -family
dwellings in Pender County, with most being in the two beach towns.
The housing condition survey indicates overall housing conditions are
good, with 74% of the housing stock rated standard. Of the remaining 26%,
15% was rated deteriorated and 11% dilapidated.
4
In 1980 a total of 1611 mobile homes were counted in Pender County.
Topsail Township, with 546 mobile homes, has a much larger number than
any other township. Countywide, mobile homes comprise 26% of the
housing stock. But in Canetuck Grady, Topsail, and Rocky Point Township,
mobile homes account for approximately 35% of all housing units.
Commercial land uses are generally found in one of two situations
in Pender County. They are either located inside or near the communities
of Burgaw, Topsail Beach, Surf City, Maple Hill or Rocky Point, or located
at a crossroad with a major highway such as U.S. 17, U.S. 421, or N.C. 210.
Strip commercial development is present along all the major highways,
but it is more predominant near a town or community. As in residential
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strip development, strip commercial development can have several adverse
effects.
Most industries in Pender County are concentrated in Burgaw, Hampstead,
Atkinson, and Rocky Point, Practically all of them process natural
resources of Pender County (i.e., timber, farm products, or seafood).
CONSTRAINTS TO DEVELOPMENT
One of the purposes of the Coastal Area Management Act is to insure
land development or use occurs only to the extent that the land is capable
of supporting it. Therefore, it is important for the land use plan to
identify areas or situations where certain types of land use may not
be appropriate.
In Pender County two major constraints to development are flood hazard
areas and soils with a high water table or poor drainage characteristics.
For new construction,conflicts in these areas can be avoided because
of the flood plain regulations and septic tank ordinance.
The availability or absence of public services can be considered a
constraint to development. Like most counties in North Carolina there
is no public sanitary sewer system in Pender County outside of municipal
areas, which causes developments to rely on septic tanks or locate in
towns where a sewer system is available. The absence of sewer limits,
the density of residential developments and the types of commercial
and industrial establishments in rural areas.
ESTIMATED GROWTH DEMAND
The previous sections of the land use plan have focused on existing
conditions in Pender County. This section projects future growth demand.
Population projections indicate the County's population should increase
during the 1980's at an increasing pace. Most of the population growth
will occur in beach areas in or near Burgaw and as in -fill on existing
lots.
The rapid growth in county population between 1970 and 1980 was in
sharp contrast to the historically stable county population base. A
main difference in the 1976 CAMA Plan and this update is the documentation
of Pender County's increasing in -migration of population unveiled by the
1980 Census.
More people moving in means more housing, roads and other construction
activities and the conversion of lands presently in less intensive uses
(farms, forests, etc.). An increase of 2,891 additional housing units
are anticipated by 1990 in Topsail Township. This translates to 1,161
acres. An estimated 500 of this can be absorbed by existing vacant lots.
Burgaw Township should expect the next largest land demand with 247
acres or residential land needed by 1990. Much of this development will
no doubt displace presently cultivated farm land and better drained forests
near Burgaw.
Rocky Point and Union Townships are expected to see moderate increases
in population, housing, and land demand.
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DEVELOPMENT ISSUES AND
The Pender County Board of Commissioners and County Planning Board
considered many different land use issues and initiated several
significant policy directive$ to address them as part of this plan
update. Their action was warranted because of the substantial development
pressures and changes in life styles facing Pender County residents
in the'next five to ten years.
Some of the policy initiatives adopted during the plan update are
listed as follows: continue a county -wide zoning ordinance, identify
substandard housing and seek state and federal assistance to improve
housing conditions, give high priority to preservation of fragile areas,
and encourage light manufacturing and assembly operations which do not
require large amounts of public water for their operations to locate in
those areas with suitable soils and good transportation access. In all,
36 issues were identified and policy alternatives were evaluated and
selected to address each one. This is a major step toward having a growth
management program as an on -going publicly accepted plan for Pender County.
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TABLE OF CONTENTS
EXECUTIVE SUMMARY
CHAPTER 1 - INTRODUCTION
... Purpose of Study
... The Study Area
...Citizen Participation
CHAPTER II - ANALYSIS OF CHANGE
...Introduction
...Population
r ...Economy
...Summary of Existing Land Use Analysis
...Visual Impressions of Pender County
...Current Plans & Policies
CHAPTER III - ESTIMATED GROWTH DEMAND
Ir
...Estimates of Growth Demand
...Summary
CHAPTER IV- DEVELOPMENT ISSUES
...Introduction
...Issue Discussions
CHAPTER V - POLICY STATEMENTS
...Introduction
...Policy Statements
.....Construction of Interstate 40
.....Pollution of Sound Waters
.....Septic Tanks
.....Fishing Industries
.....U.S. 17 (Four-Laning)
.....Solid Waste Disposal
.....Drainage
.....Zoning
.....Rural Crime
.....East-West Intracounty Access Improvement
.....Economic Development
.....U.S. 421-Widening
.....Waterway Access
.....Mobile Homes
.....Subdivision Regulations
.....Tax Mapping
.....Flood Plain Zoning
.....Housing
.....Lea Island Development
.....Seaboard Coastline Railroad Abandonment,
.....Strip Development of Roads
.....Erosion Control Ordinance
.....Loss of Productive Agricultural Land
.....Asthetics
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PAGE
.....Timber Management 78
. ...Truck Farming: Marketing of Products 78
:....Development Pressures - Intracoastal Waterway 79
.....Historic Preservation/Archeological Resources 79.
.....Off -road Vehicles 79
.....Localized Development Conflicts 79
.....County -wide Water System 80
.....Steep Slope Areas 80
.....Inter -County Cooperation to Solve Common Problems 80
.....Areas of Environmental Concern 81
.....Hurricane and Flood Evacuation Plan 81
.....Nuclear Emergency Evacuation Plan 82
.....Types of Urban Growth Patterns Desired 82
.....Redevelopment of Developed Areas 83
.....Commitment to State and Federal Programs 83
.....Mineral Resources: Energy Facilities Siting and Development 83
.....Public Participation 84
CHAPTER VI - LAND CLASSIFICATION 85
...Introduction 85
...Land Classification - Defined 86
. .....Developed 86
.....Transition 86
..Community 87
.....Rural 87
.....Conservation 88
... Summary 88

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LIST OF TABLES
TABLE
PAGE
1.
Population Change for Pender County, 1960-1980
7
2.
Housing Change in Pender County, 1970-1980
8
3.
Housing Change for Towns in Pender County, 1970-1980
9
4.
Population Change for Towns in Pender County, 1970-1980
9
5.
Annual Average Labor Force Estimates, 1970, 1975 & 1979
11
6.
Industrial Employment by Places of Work
11
7.
Retail Sales for Pender County, 1970-1979
13
8.
Housing Survey for Pender County by Township, 1980
17
9.
Industrial Operations in Pender County
20
10.
Population Projections for Pender County, 1990
34
11.
Projection of Residential Land Needs, 1990 by Township
34
LIST OF EXHIBITS
1. Location of Pender County to State and Surrounding
Counties 2
2. Planning Area Map 4
3. Existing Land Use 15
4. Visual Impressions of Pender County 23
5. Land Classification Map 89

CHAPTER I
PURPOSE OF STUDY
Pender County prepared a Land Use Plan in 1976 in response to the
Coastal Area Management Act, passed by the North Carolina Legislature
in 1974. The purpose and intent of the act is best described in Section
.0101 "Introduction to Land Use Planning" Subchapter 7B - Land Use
Planning Guidelines (as amended 9/l/79):
.0101 Introduction
(a) The Coastal Area Management Act of 1974 establishes a cooperative
program of coastal area management between local governments
and the state. Land use planning lies at the center of local
government's involvement, as it gives the local leaders an
opportunity and responsibility to establish and enforce policies
to guide the development of their community.
(b) The purpose of these state guidelines is to assist local
governments in each of the 20 coastal counties with the
preparation of their own individual land use plans. Each
are encouraged to develop a plan which reflects the desires,
needs and best judgment of its citizens. The land use plans
prepared under these guidelines, when considered together,
form the basis for "a comprehensive plan for the protection,
preservation, orderly development and management of the coastal
area of North Carolina," which is the primary objective of the
Coastal Area Management Act of 1974.
Further in the guidelines in Section .0201 (c), the heart of why
North Carolina communities and counties need to prepare land use plans
is described.
.0201 Introduction
(c) Local governments, through the land use planning process, address
issues and adopt policies that guide the development of their
community. Many decisions affecting development are made by
other levels of government, and local policies must take account
of and coincide with established state and federal policies.
Most decisions, however, are primarily of local concern. By
carefully and explicitly addressing these issues, other levels
of government will follow local policies that deal with these
issues. Policies which consider the type of development to be
encouraged, the density and patterns of development, and the
methods of providing beach access are examples of these local
policy decisions.
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More significant even than the "requirement" that communities
prepare Land Use Plans every five years is the uses that are made
of the local plans once they have been completed.. In the publication,
The Impact of State Regulation of Coastal Land in North Carolina,
prepared by Charles D. Liner of the Institute of Government at Chapel
Hill, he noted the impact of local land use plans on state and federal
decisions:
...Land -use plans have a potential effect on (local) land use because:
(a) CAMA Permits may not be issued for development that is
inconsistent with land -use plans (since CAMA permits are
required only in AEC's, this effect is limited to land within
AEC's).
(b) Local ordinances and regulations that apply to AEC's must be `
consistent with the land -use plan; local ordinances and
regulations affecting land outside AEC's are subject to
review by the Coastal Resources Commission, which is authorized
to recommend modifications to the local government.
(c) Federal actions involving grants, licenses, permits, and
development projects must be consistent with local land -
use plans, as required by Section 307 of the FCZMA.
(d) In accordance with the Governor's Executive Order Number 15,
certain state agency actions and policies must be consistent
with land -use plans.
THE STUDY AREA
Pender County is located in the southeastern coastal plain of North
Carolina, north of Wilmington -New Hanover County and southwest of
Jacksonville-Onslow County. The County's location within the state
and coastal region is shown on Exhibit 1.
Exhibit•l.:.Location of Pender County to State and Surrounding. Counties
t,

Pender County contains three distinctive physiographic regions:
(1) about one -tenth of it is coastal maritime with -sound waters, creeks,
and barrier islands; (2) large flat poorly drained pocosin containing
valuable wildlife habitat encompasses the eastern one-third of
Pender County and includes the important Angola Bay and Holly Shelter
game lands; and (3) a majority of the county is inland and rural with
its large expanses of flat timber land and lesser amounts of flat to
gently rolling farm land.
Certainly Pender County is a "coastal" county, one of 20 included
by definition under the Coastal Area Management Act. However, throughout
this plan reference is made to "beach" and "coastal" sections of the
county. Unless otherwise noted, "beach" refers to the barrier islands
east of the Intracoastal Waterway while "coastal" is used in a broader
context meaning sections of Pender County generally along and east of
U.S. Highway 17. This is the most intensively developing section of
Pender County.
The area to be studied is the same as the 1976 CAMA Plan excluding
the Towns of Burgaw, Atkinson, Surf City and Topsail Beach. These
towns are developing their own plans. The study area is shown on
Exhibit 2.
CITIZEN PARTICIPATION
Successful planning for any unit of local government must include
the involvement of the citizens for which the plan is being prepared.
The necessity of citizen participation in the planning process is
recognized by the State of North Carolina and is, therefore, one of the
requirements of the Land Use Planning Guidelines of the CAMA Act.
There are various forms citizen participation can take. Some
are more successful than others. During the preparation of the 1976
CAMA Plan for Pender County two questionnaires were developed. The
second one was used because the first received little response. The second
questionnaire was mailed to every household in the County and the response
rate was good.
In addition to the questionnaire, public forums, regular Planning
Board meetings and media coverage were actively promoted to get citizens
to help develop the 1976 CAMA Plan.
The 1976 surveys and other public response showed that Pender County
citizens were mostly concerned about maintaining rural uncrowded living
conditions, having good water -oriented recreational opportunities
and access to waters, and having access to hunting and fishing areas.
In addition, they were concerned about the lack of employment opportunities,
convenient shopping facilities, and maintaining good roads and educational
facilities. When asked their opinion about increasing County population
and whether it should be controlled or not, most respondents were strongly
in favor of controlled growth to insure quality development.
191

EXHIBIT z
♦ t
u pion r
Col umbla
t
-.
holly
burgaw .
Caswell �. '♦ •
I lk i' - - � ong cree
%
i Brody
canefuck ; ; pain %"-� topsail
PLANNING AREA MAP
County Planning Area
Township Boundaries ---------------- '
Town Planning Areas
CAMA LAND USE PLAN — 1980
Pendsr County, N.C.

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As part of this update, the Planning Board and Ferren Planning Group
personnel have met monthly and at several open public meetings in an
effort to hammer out and refine many of the previously identified issues
and what has or has not happened since 1976 to move toward addressing
the public's concern. Media coverage and two public hearings were employed
to get critical public reviews of the update while in draft form.
An extensive list of issues were identified by the Planning Board. They
are presented in Chapter V.
Also, because the Pender County Board of Commissioners represent
the final decision -making body and necessarily responsible for its
adoption, meetings were held with them to discuss progress and the
recommendations being formulated on various issues. The Commissioners'
comments helped in refining the plan update and enabled them to more
readily decide whether or not to accept or adopt it.
Ferren Planning Group personnel discussed various sections of the
plan in draft form with planning staff from abutting counties and towns
in the area. Detailed reviews were made of CAMA Plans for Wilmington -
New Hanover County, the towns of Burgaw and Topsail, and the City of
Jacksonville. No major conflicts are anticipated amoung the many
policy statements being developed by each jurisdiction and for the most
part, Pender County's neighboring communities have developed similar
approaches to solving common problems.
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CHAPTER II
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INTRODUCTION
Basic to the CAMA planning process is the required examination of
changes that have occurred since the 1976 CAMA Plan was prepared. This
updating has afforded an opportunity to re-examine previously identified
land use issues and short-range projections with five years of hindsight.
Largely, this chapter summarizes recent changes in population,
economy, and land use patterns as indicators of how Pender County's
resources (its people and natural environment) are changing; giving
basis information for projecting future changes and developing local
policies that help direct wise land use management choices.
As will be seen in the following pages, people are coming to
Pender County at a quickening pace, the economic base is also beginning
to change with more employment diversity, and residential development
is spreading out over much of the county.
POPULATION
From 1940 to 1970 Pender County's population increased only
slightly, as it rose from 17,710 to 18,149. However, since 1970
Pender's population has been showing large increases. According
to preliminary 1980 Census the population increased to 22,107, an increase
of 21.8%.
The population increase can be attributed to several factors,
but the principal factor behind the population increase is migration
of new residents into the county. This is borne out by the
information presented in Table 1 , where one can see which townships
have experienced the largest population increases.

Table 1 ... Population Change for Pender County, 1960-1980
TOWNSHIP
1960
1970
1980*
% Change, 70-80
Burgaw
4,135
4,422
4,940
+11.7%
Canetuck
466
256
330
+28.9%
Caswell
1,171
1,023
996
-2.6%
Columbia
1,691
1,542
1,740
+12.8%
Grady
1,148
1,264
1,360
+7.6%
Holly
1,579
1,373
1,684
+22.7%
Long Creek
1,045
886
1,158
+30.7%
Rocky Point
1,728
1,616
1,941
+20.1%
Topsail
2,431
2,860
4,515
+57.9%
Union
3,114
2,907
3,443
+18.4%
TOTALS
18,508
18,149
22,107
+21.8%
Source: U.S. Census
*1980 figures are the first final count and are subject
to revision.
Topsail, Burgaw and Union Township had the largest increases
since 1970 and these townships also exhibited growing employment
opportunities. The added employment opportunities make it under-
standable why migration into these areas is so high. The population
gains in Topsail Township are directly linked to recreational -resort
opportunities and increasing numbers of Wilmington area workers
moving to Fender's coastal area. Expanding job opportunities in the Town
of Burgaw and Wilmington are largely responsible for the migration of
residents into Burgaw Township. In Union Township additional job
opportunities in Wallace (Duplin County) are resulting in spill over
development .in the township. Population gains in Canetuck, Columbia,
Grady, Holly, Long Creek, and Rocky Point are also related to improving
employment opportunities. Until an age structure, racial and income
breakdown of the 1980 Census are available for analysis, questions
concerning the characteristics of population will necessarily be defined.
Even though population trends indicate growth in Pender County,
perhaps a better indicator of growth is the increase of housing
units over the past ten years (see Table 2). The housing figures
clearly show that Topsail Township has grown at a faster pace
,over the last ten years than the County.'s other townships. But
it is also important to note all townships experienced an increase
in housing units.
I
7

K
Table 2... Housing Change in Pender County, 1970-1980*
Housing
Units
% Change
Household
Size
Township
1970
1980
1970-1980
1970
1980
Burgaw
1413
1816
29%
3.29
2.90
Canetuck
84
148
76%
3.28
2.82
Caswell
374
419
12%
3.25
2.70
Columbia
473
638
35%
3.99
3.25
Grady
370
531
44%
3.84
3.11
Holly
419
610
46%
3.58
3.25
Long Creek
272
387
42%
3.31
2.93
Rocky Point
536
805
50%
3.48
2.81
Topsail
1892
3709
96%
3.24
2.71
Union
925
1334
44%
3.39
3.02
TOTALS
6758
10397
54%
3.42
2.92
Vacancy Rate
1980
10.0%
14.0%
16.3%
14.2%
20.4%
15.3%
5.2%
18.6%
54.6%
14.9%
28.2%
Source: U.S. Census
*1980 figures are the first final count and are subject to revision.
The population per household is also presented in Table 2. From
1970 to 1980 the population per household decreased from 3.42 persons
to 2.92 persons as each township had a significant decrease. Atkinson,
Surf City, and Topsail Beach Towns have the lowest average household
size. A decrease in household size is a nationwide trend and reflects
a decline in the birth rate and out migration of the young people
in Pender County.
The last variable given in Table 2 is the vacancy rate. However,
since the census figures are not in final form, the vacancy rate
does not distinguish between seasonal vacancies and temporarily vacant -
or dilapidated units. Consequently, the figures depict a very high
vacancy rate in Topsail Township where a substantial number of units
are known to be seasonally vacant, particularly in the beach areas.
In fact, vacant units in Topsail Beach and Surf City account for 1424
units of the Township total, or 74%. This indicates most of the
County's seasonal vacancies are in Surf City or Topsail Beach.
Tables 3 and 4 exhibit the phenomenal growth that has occurred in
Topsail Beach and Surf City over the past ten years. Topsail's
population increased by 127% and Surf City's by 135% from 1970
to 1980. The increase in housing units is even more outstanding,
with Surf City showing a 307% increase in housing units and Topsail
Beach a 71% increase. Of course, many of these housing units are
second homes and rental units for vacationeers.
a

Table 3...Housing Change for Towns in Pender County, 1970-1980
HOUSING UNITS
HOUSEHOLD SIZE
TOWNS
1970
1980*
% Change
1970
1980
Burgaw
584
642
+10%
3.11
2.63
Atkinson
124
137
+10%
2.98
2.29
Topsail
471
805
+71%
2.41
2.06
Surf City
255
1,037
+307%
2.81
2.20
Watha
58
71
+22%
3.35
3 nA
Source: U.S. Census
*1980 figures are the first final count and are subject
to revision.
Table 4... Population Change For Towns in Pender County, 1970-1980
TOWNS 1970 1980* Change
Burgaw 1,744 1,570 -10%
Atkinson 1,023 996 -3%
Topsail 108 245 +127%
Surf City 166 390 +135%
Watha 181 185 +2%
Source: U.S. Census
*1980 figures are the first final count and are subject
to revision.
While Topsail and Surf City were having substantial increases
in population, Burgaw, Atkinson and Watha either had a decline
in population or a slight gain from 1970 to 1980. But like the
beach communities, all three experienced an increase in housing
units. The principal reason their populations remained static
or declined is the decrease in household size.
Overall these census figures indicate.the County had a significant
increase in population and housing units over the past ten years and
that most of the gains occurred in beach areas or near employment
centers. With the decreasing household size, the census data suggests
a declining birth rate, out migration of the young adult population
and possibly an increasing elderly population. And lastly, the figures
document a large seasonal population in the coastal communities.
ECONOMY
. Historically, Pender County's economy has been dominated by its
agricultural and coastal resources; and although this is still true
today, information presented here will show rising employment diversity
and increasing in -migration of work force for non-agricultural jobs.
Continuing shifts in economic trends will have a noticeable effect
on the lifestyles of County residents.
a,
i:]

I.
Employment
Pender County has had substantial gains in employment since the
1976 CAMA Plan was prepared. In fact, employment has been steadily
rising throughout the 70's except for the recession years of 1974 and 1975.
Table 5 depicts annual employment estimates as reported by the
N.C. Employment Security Commission. It is important to note that the
labor force, employment, and unemployment estimates are prepared
according to the place of residence of the worker whereas the employ-
ment figures given for the manufacturing and nonmanufacturing
categories include only those persons working in Pender County.
One of the more obvious trends exposed in Table 5 is the steady
decline in agricultural employment. This decrease is related to the
increasing mechanization of farming operations and an actual decline
in the number of farms. Both of these factors are part of a
statewide trend, but the decrease in agricultural employment also
relates to Pender's shifting economic base.
The increase exhibited in manufacturing employment is another
reflection on the changing economic base. It is also apparent that
the manufacturing operations in Pender County complement the County's
natural resources, since about 30% of manufacturing employment is in
the food and wood categories.
Although it is not shown in Table 6, it is safe to presume a
substantial increase in manufacturing employment of Pender residents
in the surrounding counties. This is substantiated by the large
commuting work force reported in 1970 by the Employment Security
Commission. Actually, ESC figures show 46%, of 2,868 Pender County
workers traveled out of the county for work in 1970. A majority of
these persons commuted to New Hanover County and it is expected
the number of out commuting workers has increased substantially
since 1970.
A large commuting work force could have several implications
for Pender County. First it implies there are not adequate jobs
within the County for its residents, but on the other hand one
must consider that the job opportunities in surrounding counties
have attracted many of these residents to Pender County.
Secondly, it means retail trade in Pender County loses!a market,
since a sizable portion of one's income is spent near the place
of employment. And thirdly, financial benefits for the County may
not be sufficient to meet the increased service demand of the
residential development without the accompanying financial benefits
of trade and industrial development.
In the nonmanufacturing employment categories, trade employment
had the greatest increase, as it rose by 710 persons up 113% from
the 1970 level. More modest increases occurred in the remaining
nonmanufacturing categories. On the whole, employment in the
nonmanufacturing categories increased by 1,020 or 53%, which represents
a large portion of all job gains since 1970.
10

PENDER
COUNTY
Table S...ANNUAL AVERAGE
LABOR FORCE
ESTIMATES
1970, 1975 & 1979
1970
1975
1979
CIVILIAN LABOR FORCE/1
6,960
7,190
8,940
UNEMPLOYMENT, TOTAL
460
950
560
Rate of Unemployment
6.6
13.2
6.3
EMPLOYMENT, TOTAL
6,500
6,240
8,380
Agricultural Employment
1,140
1,030
760
Nonag. Wage & Salary Employ.
4,960
4,850
7,110
All Other Nonaq. Employment/2
.400
360
510
Table 6::.INDUSTRY EMPLOYMENT BY PLACE OF WORK/3
Manufacturing
580
290
710
Food
60
60
60
Lumber .and Wood
120
60
130
Other Manufacturing/4
400
170
520
Nonmanufacturing
1,910
2,160
2,930
Construction
60
110
140
Trans., Comm., & P. Util.
90
80
100
Trade
540
770
1,150
Fin., Ins., & Real Estate
30
70
70
Service
250
230
370
Government
900
890
1,080
Other Nonmanufacturing/5
40
10
20
1/ Data based on place of residence.
2/ Includes Nonagricultural self-employed workers, unpaid family workers,
and domestic workers in private households.
3/ Industry segments are not additive to the "Nonag. Wage & Salary Employ."
shown under "CIVILIAN LABOR FORCE" since labor force data are by "Place
of Residence.
4/ Includes Textiles; Apparel; Furniture; Printing; Chemicals; Stone, Clay &
Glass; Elec. Machinery; Instruments; and Misc..Mfg.
5/ Includes Agricultural Services and Fisheries.
Source: N.C. Employment Security Commission
b
11

Retail Sales
From 1970 through 1979, retail sales in Pender County have
increased 138% (see Table 7). But in constant dollar value (a
method of injecting the national inflation rate into the dollar
value) the increase in retail sales amounts to 160. Rising
retail sales is an indication of expansion in Pender's retail sector
as well as increases in employment, population and income.
Retail markets in Wilmington and Jacksonville exert a strong
influence on Pender County's retail sector whereas Pender County
draws only a small amount of retail trade from surrounding counties.
For example, during the fiscal year 1978-1979, Pender County recorded
$6.11 worth of retail apparel sales on a per capita basis and during
the same period Pitt County had $155.22. Even though there are
differences in the economies of these two counties the comparison
supports the claim that nearby retail markets have a large following
of Pender residents.
Pender County's retail trade benefits immensely from the
recreational -tourist traffic, particularly in the beach towns and the
businesses along Highways 17, 421, and 117.
Income
The 1976 CAMA Plan recognized a disparity in income between
County residents and the state. One of the objectives in the plan
was to create opportunities for increased income for County residents
and apparently the efforts are being successful. Recent estimates
by the N.C. Department of Administration show Pender County incomes
rising at a faster pace than North Carolina as a whole. In 1970 per
capita income.in Pender was 45% less than per capita income for the
State, or $1,713 compared to $2,492. By 1975 this difference had
decreased to 35% as Pender County per capita incomes rose to
$3,646 and North Carolina incomes rose to $4,922.
The amount of residents receiving public assistance is another
indication of the County's income relative to the State as a whole
(for the purpose of this comparison public assistance includes
the following programs: Aid to Families with Dependant Children,
Aid to the Aged, Aid to the Disabled, and Aid to the Blind).
The "Profile of North Carolina Counties, 1978", a report prepared
by the N.C. Department of Administration, listed 8.50 of Pender
County's population receiving public assistance while just 6.40
of the statewide population was receiving assistance.
` Both of these factors show that income levels in Pender County
remain below those of the State. But it also shows per capita
income levels in Pender County are rising at a more rapid pace than
State levels.
12

Table 7... Retail Sales for Pender County, 1970 - 1979
Year Dollar Volume % Increase Constant Dollar Value % Increase
1970-71 $20,432,672 $17,102,146
1971-72 24,042,981 18%
1972-73 27,487,031 14%
1973-74 33,853,823 21%
1974-75 36,536,356 8%
1975-76 40,346,464 10%
1976-77 44,286,065 10%
1977-78 44,747,643 1%
1978-79 48,597,876 9% 19,827,933 16%
Source: N.C. Department of Revenue
U.S. Department of Labor, Consumer Price Index
13

SUMMARY OF EXISTING LAND USE SURVEY AND ANALYSIS
INTRODUCTION
The Pender County Planning Department recently prepared a "Land
Use Survey and Analysis". The report was completed in August, 1980.
It was based upon a "windshield survey" of the entire county, conducted
during the first few months of 1980. The "Land Use Survey and Analysis"
provides a detailed description of land uses by categories and by township
within the County. Because of its detailed nature, this section will
simply summarize its findings.
Overall, the survey results indicate land use in Pender County
has not changed significantly in the past twenty years, except in
beach areas where development has accelerated significantly.
The survey results did not include Surf City, Topsail Beach,
Burgaw, or Atkinson because these towns are preparing CAMA plans
separately, but it did include Burgaw's extraterritorial jurisdiction.
RESIDENTIAL LAND USE
Mobile homes, single family dwellings, and multi -family dwellings
are included within the residential land use category. As mentioned
previously, dwelling units were counted and then subjectively rated
according to condition during the "windshield survey". The results of
the survey are provided in Table 8.
Residential land uses are concentrated in three areas of the county
including the areas adjacent to the Atlantic coast and the intracoastal
waterway; the Towns of Burgaw, Atkinson, Watha, Topsail and Surf City,
and adjacent to highways and state roads. There are very few multi -family
dwellings in Pender County, with most being in the two beach towns. But
the increasing number of mobile homes does offer an alternative to the
traditional single family dwelling.
The housing condition survey indicates overall housing conditions are
good, with 74% of the housing stock rated standard. Of the remaining 26%,
15% was rated deteriorated and 11% dilapidated.
Union, Burgaw, Rocky Point, and Columbia Townships had the largest
number of substandard housing units, each having about 200. In
Caswell and Columbia Townships less than 50% of the housing units were
classified as standard, the lowest percentage in the County.
A total of 1611 mobile homes were counted in the survey. Topsail
Township, with 546 mobile homes, has a much larger number than any other
township. Countywide, mobile homes comprise 26% of the County's housing
stock. But in Canetuck, Grady, Topsail, and Rocky Point Townships, mobile
homes account for approximately 35% of all housing units.
.M
14

EXISTING LAND USE EXHIBIT 3
PENDER COUNTY, N.C.
1981
i
Developed
—
L
Farmland
Forests
Wetlands
Waterways
Kepiwed bye ytrr" Plaenlnp fQOW

Most mobile homes are located on individual lots or in small mobile
home parks. Mobile home parks typically range in size from 5 to 25 units
and offer few amenities, such as community water and sewer, paved drives,
or recreation areas. Excepting for deed restricted recreation oriented
coastal subdivisions, mobile homes were seen throughout the County,
often intermixed with conventionally built homes.
Septic tanks for individual residences were reported to be a county-
wide problem in the 1976 CAMA Plan. Undoubtedly, this problem has grown
with the addition of over 3639 housing units in the past five years.
The problem of malfunctioning septic tanks is related to severe
limitations of many of the County's soils and to a generally high water
table. These problems become severe in areas of higher density residential
development, such as in a mobile home park at Surf City, just outside of
Burgaw on Penderlea Road, and at Holiday Hills Subdivision in Topsail
Township.
Aside from the towns, communities and the planned subdivisions between
Highway 17 and the Intracoastal Waterway, residential development
throughout the County generally takes the form of strip development. Strip
residential development is especially concentrated on the State roads and
highways in the areas just outside of the towns and communities. In many
cases, residences are located on land which until the recent past was
farmed. Strip development results in increased costs of delivering public
services, decreases in the capacity and safety of roads and highways,
landlocked tracts of land behind the development, and frequently losses
of prime agricultural or forest lands. Good road access, relatively low
rural land costs, and required large lots for septic tank usage tend to
increase the strip development nature of rural roads. Often, too, large
tract owners find it necessary to sell off a few lots to subsidize
farming and forestry operation, or simply pay taxes. And, it is also
common to divide frontage lots for their children so they can still live
on the farm while working in town.
Another problem for residential land uses is encroachment of
incompatible land uses into residential areas, or vice versa. On the
other hand, in some cases residential uses have located close to poultry
or livestock operation, auto garages, etc. In other cases homes have
been built subsequent to other uses.
Fortunately, Pender County is still rural in nature, which tends to
minimize the noticeable impact of these situations. Many residential
uses are located on large tracts of land and at substantial distances
from nuisances. But as the County continues to urbanize, increasing
development density and problems of incompatible land uses will increasingly
highlight such problems.
y COMMERCIAL LAND USE
The "Land Use Survey and Analysis" classified commercial uses as:
retail and wholesale trade establishments, services and industries.
Industrial land use will be considered separately in a following section
because manufacturing type uses should be highlighted.
Commercial land uses are generally found in one of two situations in
Pender County. They are either located inside or near the communities of
16

Table 8... Housing Survey for Pender County by Township, 1980
HOUSING CONDITIONS
(not
including
mobile
homes)
% OF
% OF
% OF
ALL
% OF
TOWNSHIPS
STD.
TOTAL
DET.
TOTAL
DIL.
TOTAL
UNITS
TOTAL
Burgaw
541
16%
•123
18%
62
12%
726
16%
Canetuck
68
2%
16
2%
11
2%
95
2%
Caswell
99
3%
64
9%
37
7%
200
4%
Columbia
99
3%
ill
16%
68
13%
278
6%
Grady
185
5%
47
7%
24
5%
256
6%
Holly North
235
7%
47
7%
27
5%
309
7%
Holly South
30
1%
10
1%
10
2%
50
1%
Long Creek
134
4%
20
3%
13
3%
167
4%
Topsail
1006
30%
64
9%
48
9%
1118
24%
Rocky Point
361
11%
85
12%
75
15%
521
11%
Union
617
18%
97
14%
135
26%
849
19%
TOTALS
3375
684
510
4569
Source: Land
Use
Survey and
Analysis,
Pender County, N.C.
(1980
Pender
County
Planning
Department)
17

Burgaw, Topsail Beach, Surf City, Maple Hill or Rocky Point, or located
at a crossroad with a major highway such as U.S. 17, U.S. 421, or N.C. 210.
The survey analysis states that most of the highway commercial uses are grocery
store -service station combinations. Frequently, no consideration has
been given to separating commercial uses from residences. This is more of
a problem in the towns and communities because of higher development
densities. Strip commercial development is present along all the major
highways, but it is more predominant near a town or community. As in
residential strip development, strip commercial development can have
several adverse effects. Strip commercial development increases traffic
safety hazards and reduces carrying capacity of affected highways because
of increased traffic movements to and from each commercial enterprise.
• On a township basis, Topsail was found to have the largest number of
commercial establishments, with most commercial uses concentrated in the
Hampstead area or stripped along Highway 17. Union Township has the
second largest number. Most of these are in Willard, Penderlea or Watha.
Burgaw Township followed Union in the total number of commercial establishments.
The Town of Burgaw, contains the heaviest concentration of commercial
development. Other commercial development was scattered about the Township
on state roads and highways, with most located near the Town of Burgaw.
The fourth largest number of commercial establishments was located in
Rocky Point Township, with most located near the intersection of Highways 210
and 117. Columbia, Holly and Grady had the next largest amount of
commercial development. In Columbia Township, Highway 421 had the greatest
concentration of commercial development. The Maple Hill area and Highway 50
had a majority in Holly Township. Grady Township showed concentrations on
Highways 421 and 210 and in the Currie community. Canetuck,Caswell, and
Long Creek Townships did not have any areas of concentrated commercial
development.
INDUSTRIAL
Table 9 provides a listing of industrial operations in Pender County,
including Burgaw, Atkinson, Topsail Beach, and Surf City. These were
omitted from the data collection in the "Land Use Survey and Analysis".
As one can see, most of the industries are concentrated in three areas;
Burgaw, Hampstead, and Rocky Point. It is also evident that practically
all of the industries are based upon the natural resources of Pender
County and the surrounding area, i.e. timber, farm products, or seafood.
GOVERNMENTAL AND INSTITUTIONAI,
Included within this category are churches, schools, cemeteries,
government services, and community buildings, among other things.
Generally speaking, governmental and institutional land uses are
' located predominantly in or near the towns and communities of the County.
Most of the land in this category is occupied by Angola Bay and Holly
Shelter Game preserves. The rest is made up of churches, schools, and
cemeteries.
18

.A .
Hampstead...Wooden pallets and hardwood stock ready for truck
shipment. Deteriorated rail bed foretells of coming Seaboard
Coastline Railroad's abandonment of its Jacksonville to Wilmington
line.
AT 't t' `..A /b
r
Hampstead has seafood processing and an active commercial fishing
industry.
I
IL

Table 9... Industrial Operations in
Pender County
Manufacturer/Products
Location
Established
Employment
1.
American Products, Inc.
packing fresh fruits
Burgaw
1961
50-99
2.
Atlantic Seafood Co.
seafood processing
Hampstead
1979
-
3.
Batson Farmers Exchange
chicken, dairy & hog feed
Burgaw
-
1-4
4.
Coastal Pilot Company
wooden pallets
Hampstead
-
-
5.
Electronic Components Corp.
transformers, copper wires,
silicon laminations
Burgaw
1966
100-249
6.
Filto Pipes
filto tobacco smoking pipe,
tubular paper products,
aluminum tube, aluminum
parts, moulded plastics parts,
packing meterials printed
matter
Burgaw
1962
5-9
7._
Lewis Sausage Co.
sausage products, smoked
sausage links, boneless pork,
beef, poultry
Burgaw
1960
10-19
8.
Murphy Brothers Milling Co.
feed & grain
Burgaw
1957
5-9
9.
Myers Craft Mfg. Co.
wood stretched strips,
stretched art canvas, wood
artist easels, pine, artist
canvas cotton, Pvc shrink
material
Burgaw
1958
20-49
10.
Oxford of Burgaw
womens sportswear jackets
Burgaw
-
-
11.
Pender Lumber Company
lumber, logs pine & hardwood
Burgaw
1949
10-19
12.
Rowe Fiberglass Corp.
fiberglass showers & tubs,
fiberglass camper tops
Burgaw
-
5-9
13.
Southern Printing Co.
commercial printing, paper
Burgaw
-
1-4
20

Manufacturer/Products
Location
Established
Employment
14.
Williams Lumber Com.
plywood, roof decking
Burgaw
1946
5-9
15.
Burgaw Lumber Co.
dimension, chips, logs
hardwood
Rocky Point
-
20-49
16.
C.H. Clark & Son, Inc.
sausage & liver pudding,
pork trimmings, beef melts
Rocky Point
1926
20-49 -
17.
H & P Wood Turning, Inc.
Mfg. of wood products
Rocky Point
-
10-19 '
18.
Pender Packing Company, Inc.
liver pudding, sausage,
bar-b-que, hogs, shoulders,
liver pudding products
Rocky Point
1950
10-19
19.
Holt Hosiery Mills, Inc.
hosiery, yarns, chemicals,
paper products, machinery
& parts
Willard
1968
50-99
21

IL
RECREATION
One of Pender County's greatest resources is outdoor recreation,
because of the large tracts of woodlands, the rivers & streams, the AIWW
and the Atlantic Ocean. Along with these natural recreational opportunities,
there are private golf courses, swimming pools, tennis courts, Moore's
Creek Battleground National Park, ballfields and a racetrack.
As mentioned previously, the many outd000r recreational opportunities
provide one of the prime reasons for the development that has occurred in
Pender County over the past ten years.
TRANSPORTATION, COMMUNICATION, AND UTILITIES
This land use category includes roads and highways, water, sewer
and electric lines or right-of-ways, and the two Seaboard Coastline
Railroad tracks.
VISUAL I14FRESSI0NS Or FENDER COMITY
Early in the,course of getting to know ^ender County,
personnel fron ^erren rlanning Group traveled the County's back roads
and main thoroughfares with camera and note pad in hand. Much insight
was gained from observing the land and talking to people along the way
that was ultimately helpful in discussing possible land use issues and
policies with the Planning Board.
Photographs and brief descriptions of what was observed may be
found in the text. They should help the reader go beyond the pure
statistics that describe Pender County in an unfamiliar and cold way to
any who will hopefully read these pages. Periodically, it is advisable
to get out and observe the county and catch a glimpse of the landscape
as it is today. Tomorrow, sluggish changes occurring before our eyes
will seem drastic.
22

Dumpsters for county
resident's trash. These
two, located in Willard
are typical of others
seen in county ... over-
filled and creating visual
pollution and unsanitary
conditions.
Willard. Once bustling,
this quiet crossroads
community in northern
Pender County established
at junction with
Seaboard Coastline
railroad. The tracks
here are in good
condition. A post
office (not shown)
is here and the vicinity
has many mobile homes
but little other new
construction.

Penderlea. Looking northward along SR 1332 toward the impressive
open green and junior high school. A common road maintenance
problem is evidenced in foreground, where poor drainage has
accelerated pavement deterioration, hence the patchwork.
Looking northwest along SR 1358 from N.C. 11. Forty new homes
on one-half acre lots at Penderlea. Historically, a strong
agricultural area, these home sites have displaced good farm
land. This well -laid out subdivision shows characteristic rural
use of state road for access, swale ditches with corrugated pipe
under driveways for drainage.

Moore's Creek National Battlefield is a well maintained, quiet
park area. This modest tourist attraction together with nearby
Black River could potentially pull in nearby tourist campgrounds
and convenience commercial establishments.
s

Yes ... this is timber country in western Pender County. Many
tracts are well managed. International Paper Company and other
large forestry interests are evident_
Hay stacks indicate intensive labor family farming is still present.
Farms in south central sections are generally smaller than those
in northern Pender County.

Newer homes near
proposed I-40
interchange with
N.C. 210 at
Rocky Point.
Additional traffic
and potential -
attraction of ,`
industry may not
be compatible
neighbors.
Crossroads service
center typical of those
found throughout Pender
County. New I-40
interchange is proposed
one-half mile east of
this convenience store
on U.S. 117 at N.C. 210 and
may provide alternate
site for new convenience
shopping facilities and
other services.
�+...- «... ,�. r

CURRENT PLANS & POLICIES
one of the major purposes of this plan is to develop a set of local
policies related to various types of development which may take place
in the future. Although policy development will be discussed in detail
in Chapter IV, it is necessary at this point to discuss existing plans
and policies which have been either prepared and adopted, or, in the
case of policies not included in plans, determine how these policies
are carried out on a daily basis. These current plans and policies
can then be compared to the analyses which follow to determine if new
plans or policies will be needed in the future.
Local policies can control certain aspects of development, but as
everyone recognizes, the state and federal governments have various
statutes and regulations which may have impacts on various types of
development. This is especially true where development may occur in
environmentally sensitive areas, such as fresh water swamps, marshes,etc.
and in potentially hazardous areas, such as flood plains or near
airports. Following the discussion of local plans and policies is a
listing of all state and federal permitting agencies which may, at
one time or another, have applicability to new developments in Pender
County.
Local Plans & Policies
A Land Use Plan for Pender County (1976 CAMA): This plan was
obviously the predessor to this plan. It provided the basis for the
plan update. Prepared, under the land use planning guidelines of
the 1974 Coastal Area Management Act, it included analyses of
population and the economy as it existed at that time. This plan's
major recommendations and conclusions are discussed in appropriate
sections of this plan update. It is worthy of note, however, that
prior to the preparation of the .1976 CAMA Plan, a land use plan
had been prepared for Pender County.
The 1976 CAMA Plan contains a description of numerous planning
documents and land use regulations developed in the ten years prior
to its publication. These plans mostly dealt with water and sewer
facilities. In 1976 CAMA Plans were also prepared by Topsail Beach,
Surf City and Burgaw.
During the past five years, the County hired a Planning Director.
The Planning Department has been actively working with the Planning Board
in carrying out a number of plans. Briefly these include:
1. Pender County Environmental and Growth Alternatives Study (1978).
The purpose of the study was to identify environmental and man-made
development limitations and suggest policies for the County to address
them in light of development pressures.
2. Four -Year Overall Program for the Pender County Planning Department
3. Five Year Capital Improvement Plan for Pender County (1977-1982).
This plan included programmed improvements in the areas of mosquito
control, landfill operations, schools, and the jail, hospital, and
housing.
29
e

4. Pender County Parks and Recreation Plan 1977-1990. This plan is
a detailed inventory of parks and recreation facilities and outlines
projected land acreages and special facilities needs. Sources for
funding these needed improvements are also included.
Other recent studies include:
1. Resource Conservation Data - Hampstead - Topsail Beach Area Special
Soils Report prepared by SCS, USDA for the Lower Cape Fear Soil
& Water Conservation District. (January 1979 advance report)
2. Soil Survey of the Outer Banks, N.C. Part I Text Material, Part II
Soils Maps (USDA June 1977)
3. Flood Hazard Information - Pender County Coastal Flooding by
Wilmington District Corps of Engineers, U.S. Army, Wilmington, N.C.
Listed below are very brief descriptions of the types of.developments
which may come under the jurisdiction of various state and federal
agencies.. As stated above, some of these types of development may
never take place in Pender County, but it was considered necessary to
list all pertinent agencies which could exercise influence on various
potential developments in the County in the future.
Department of Natural Resources.and Community Development, Division .of
Environmental Management:
..Permits to discharge to surface waters or operate waste water treatment
plants or oil discharge permits; NPDES Permits (G.S. 143-215)
..Permits for septic tanks with a capacity over 300 gallons/day (G.S.143-215:3)
..Permits for withdrawal of surface or ground 'waters in capacity use_
areas (G.S. 143-215.15)
..Permits for air pollution abatement facilities and sources (G.S. 143-215.108)
.Permits for construction of complex sources; e.g. parking lots,
subdivisions, stadiums, etc. (G.S. 143-215.109)
..Permits for construction of a well over 100,000 gallons/day (G.S:. 87-88)
Department of Natural Resources and Community Development, Office of.
Coastal Management
..Permits to dredge and/or fill in estuarine waters, tidelands, etc. (G.S.113-229)
..Permits to undertake development in Areas of Environmental Concern
(G.S.. 113A-118) Note: Minor development permits are issued by the local
government.

Department of Natural Resources and Community Development, Division of
Earth Resources:
..Permits to alter or construct a dam JG.S. 143-215.66)
..Permits to mine (G.S. 74-51)
..Permits to drill an exploratory oil or gas well (G.S. 113-381)
..Permits to conduct geographical exploration (G.S. 113-391)
..Sedimentation erosion control plans for any land disturbing activity of
over one contiguous acre (G.S. 113A-54)
Department of Natural Resources and Community Development, Secretary of NRCD:
..Permits to construct an oil refinery
Department of Administration: ,
..Eastments to fill where lands are proposed to be raised above the normal
high water mark or navigable waters by filling (G.S. 146.6(c))
Department of Human Resources:
..Approval to operate a solid waste disposal site or facility (G.S. 130-166.16)
..Approval for construction of any public water supply facility that
furnishes water to ten or more residences (G.S. 130-160.1)
Army Corps of Engineers (Department of Defense): _
..Permits required under Sections 9 and 10 of the Rivers and Harbors Act
of 1899; permits to construct in navigable waters
..Permits required under Section 103 of the Marine Protection, Research
and Sanctuaries Act of 1972
..Permits required under Section 404 of the Federal Water Pollution Control
Act of 1972; permits to undertake dredging and/or filling activities
Coast Guard (Department of Transportation):
....Permits for bridges, causeways, pipelines over navigable waters; required
under the General Bridge Act of 1946 and the Rivers and Harbors Act of 1899
..Deep water port permits
Geological Survey, Bureau of Land Management (Department of Interior):
..Permits required for off -shore drilling
..Approvals of OCS pipeline corridor rights -of -way
Nuclear Regulatory Committee:
..Licenses for siting, construction and operation of nuclear power plants;
required under the Atomic Energy Act of 1954 and Title II of the Energy
.Reorganization Act of 1974
4
31

9
Federal Energy Regulatory Commission:
..Permits for construction, operation and maintenance in interstate pipelines
facilities required under the Natural Gas Act of 1938
..Orders of interconnection of electric transmission facilities under
Section 202(b) of the Federal Power Act ,
..Permission required for abandonment of natural gas pipeline and
associated facilities under Section 7C(b) of the Natural Gas Act of
1938
..Licenses for non-federal hydro -electric projects and associated transmission
lines under Sections 4 and 15 of the Federal Power Act
32

CHAPTER III
ESTIMATED GROWTH DEMAND
INTRODUCTION
• Having discussed many facets of how existing development has
occurred in Pender County, and having provided analyses of the relative
strengths & weaknesses of existing land use patterns, an attempt will
be made in this chapter to determine future demands on the land. These
demands will include population and economic growth and the relationships
of that growth to future land needs to accomodate it. The period of
concern is from 1980 to 1990.
ESTIMATES OF POPULATION GROWTH
The rapid growth in county population between 1970 and 1980 referred
to in Chapter II was in sharp contrast to the historically stable
population base noted in the preceeding decades. A main difference
in the 1976 CAMA Plan and this update is the documentation of Pender
County's increasing in -migration of population unveiled by the 1980
Census. The earlier plan contained N.C. Department of Administration
population estimates reflecting a stable population trend for 1980
and 1990.
More people moving in means more housing, roads, and other
construction activities and the correlative conversion of lands presently
in less intensive uses (farms, forests,etc.). The township population
projections provided by Table 10 are useful for estimating the
relative future growth demand on Pender County's land resources. How
much land is needed can be strongly influenced by local government
land use regulations and, of course, market demands of those choosing
to build. Table 11 projects 1990 housing unit totals by township
and estimates the amounts of land needed to accomodate them. The
significant factor revealed is the sharp increase demand that will be
experienced in Topsail Township where 2,891 additional housing units.
are anticipated. This translates to1,161 acres in ten years. Certainly,
• much of this can be absorbed by existing vacant lots; how many is not
known, however, because a vacant land survey has not been conducted,
but a 50% absorption rate is assumed.
Burgaw Township should expect the next largest land demand with
247 acres or residential land needed by 1990. Much of this land is
expected to be needed outside of the Town of Burgaw spreading out along
U.S. 117 and N.C. 53 and other rural roads in new subdivision development.
Much of this development will no doubt displace presently cultivated farm
land and better drained forests near Burgaw.
33

Table 10...Population Projections for Pender County, 1990
TOWNSHIP 1960 1970 1980* 1990**
Burgaw, 4,135 4,422 4,940 5,517
Canetuck 466 256 330 425
Caswell 1,171 1,023 996 971
Columbia 1,691 1,542 1,740 1,963
Grady 1,148 1,263 1,360 1,463
Holly 1,579 1,373 1,684 2,066
Long Creek 1,045 886 1,158 1,513
Rocky Point 1,728 1,616 1,941 2,331
Topsail 2,431 2,860 4,515 7,129
Union 3,114 2,907 3,443 4,077
TOTALS 18,508 18,149 22,107 27,455
Source: U.S. Census
*1980 Figures are the first final count and are subject to revision.
**FPG geometric projections by township were calculated. The
county total is the sum of the township projections.
Table 11 - Projection of Residential Land Needs, 1990, by Township
Total
Housing
Units
Additional
Res. Acres
Annual
Township
1970
1980*
1990
1990 HU's
Needed, 1990 Acres Needed
Burgaw
1413
1816
2431
615
247
24.7
Canetuck
84
148
212
64
26
2.6
Caswell
374
419
464
45
18
1.8
Columbia
473
638
803
165
67
6.7
Grady
370
531
692
161
65
6.5
Holly
419
610
801
191
77
7.7
Long Creek
272
387
502
115
46
4.6
Rocky Point
536
805
1074
269
108
10.8
Topsail
1892
3709
6600
2891
1161
116.1
Union
925
1334
1743
409
163
16.3
TOTALS
6758
10397
15322
4925
1978
197.8
Source: U.S. Census
*1980 figures
are the
first final
count and are subject to
revision.
Note: Assumptions: (1) Average
of 20,000
square feet
lots in calculating land
needs for as
yet unplatted lots
as called
for in the proposed zoning ordinance,
(2) 50% of
projected housing will
locate on presently
platted lots
with an
average lot
size estimated at 15,000
square feet.
34

Rocky Point and Union Townships are expected to see moderate increases
in population, housing, and land demand.
Gross population figures are a poor tool for serious analysis
of population demographics. What are the characteristics of population
change? What age groups are increasing and decreasing relative to the
total population. How does seasonal population in 1980 compare to
the 1970 and 1960 eras? Unfortunately, useful 1980 Census socio-
economic data to answer these questions will not be available for
analysis before this plan"update is published.
SUMMARY
The total land demand for residential development for 1990 is
1,978 acres or just over 3 square miles and this amounts to 0.35%
of the County's 857 square miles of land surface. Another 3 square
miles would be needed to accomodate accompanying land demand for new
roads, commercial, industrial and public service lands. Converting
0.700 of Pender County to new development does not seem significant
unless that development is not guided to the most compatible locations
with environmental sensitivity.
Demand on public services, especially County government services,
will increase as the population increases in the next ten years
by 5,348, an equivalent of 3.4 times the number of people enum?rated
in Burgaw in 1980.
35

CHAPTER IV
DEVELOPMENT ISSUES
INTRODUCTION
Much of the Pender County Planning Board's efforts expressed in this
land use plan update have been directed at identifying and discussing
land use issues, determining their relative importance, and recommending
remedial policies to the County Commissioners.
These efforts have been enlightening and fruitful. This chapter
includes brief discussions of issues believed to reflect many concerns
of local citizens about their natural and built-up environment
and where observed development trends seem to be leading. Each
discussion includes statements indicating how the Planning Board and
County Commissioners perceive each land use issue. Chapter VI'contains
policy statements, adopted by the Planning Board and County Commissioners
that reflect their problem -solving stances on each issue. These policies
and the land classification map represent the county's land use
management plan for the next ten years.
Early in the discussion of possible land use issues, FPG asked
each Planning Board member to independently rank them from greatest
concern to least or no concern. Ranking the issues made certain
those of greatest concern received additional attention.
Following are the results:
FIRST PRIORITY
..Impact of Construction of Interstate 40*
..Pollution of Sound Waters*
..Septic Tank Problems
..Fishing Industries
SECOND PRIORITY
..Widening to 4-lanes of U.S. 17*
..Solid Waste Disposal
..Drainage
..Zoning
..East-West Intracounty Access Improvement
..Rural Crime
..Economic Development
36

THIRD PRIORITY
..Widening to 4-lanes of U.S. 421
..Waterway Access
..Mobile Homes & Mobile Home Registration
..Subdivision Regulations
:.Tax Mapping
..Flood Plain Zoning Regulations
—Development Pressures, Cape Fear, Northeast Cape Fear & Other Streams
..Housing
FOURTH PRIORITY
..Lea Island (and others) Development*
..Seaboard Coastline RR Abandonment
...Strip Development of Roads
..Erosion Control Ordinance
..Loss of Productive Agricultural Lands
...Aesthetics (sign control, litter, etc.)
..Timber Production & Management Practices
..Truck Farming & Marketing of Products
—Development Pressures, Intracoastal Waterway
..Historic Preservation/Archeological Resources
..Off -road Vehicles
..Localized Development Conflicts (marinas, second home development)
FIFTH PRIORITY
..County -wide Water System
..Steep Slope Areas along Waterways
..Inter -county Cooperation to Solve Common Problems
*Indicates special issue identified by Coastal Resources Commission
for discussion in Pender County plan.
SPECIAL ISSUES
Included in the preceding list are a number of. special land use issues
identified by the Coastal Resources Commission as having significance
worthy of note to each community preparing CAMA Land Use Plan Updates.
For Pender County the CRC has requested attention be given to these
three special issues:
...Impacts resulting from four-laning U.S. 17 and U.S. 421 and
construction of I-40
...Water quality in sounds
...Lea Island development
ISSUE DISCUSSIONS
FIRST PRIORITY ISSUES.
I-40 Highway Construction
The route for I-40 through Pender County has been selected and
the North Carolina Department of Transportation has begun its construction.
37

Good access ... U.S. 421 leading south to Wilmington. Significant
amounts of land taken by divided four -lane.
��.. __r . .. .. �.. vPel^.'g=ridsi'�:�''..« _q' �,t�k'..eirr ♦D�+6 � 1 _ �.
Clearing and road bed preparation for I-40 interchange with
U.S. 117 north of Burgaw. Looking southeast, this cut illustrates
a significant loss of timberland. Interchanges, especially those
planned for N.C. 53 east of Burgaw and N.C. 210 at Rocky Point,
are potential sites for new industrial and commercial enterprises.

Primary physical impacts expected from right-of-way acquisition, relocation
of buildings, and construction have been evaluated in the Final
Environmental Impact Statement filed by the Federal Highway Administration
July 7, 1979. The one-half mile wide, 25 mile long corridor from north
to south through Pender County will directly impact largely undeveloped
forest and farm lands -- taking them out of production.. Secondary impacts
have not been examined.
New highways have been characterized as catalizing significant
changes in rural areas subject to urbanizing pressures. Three interchanges
are planned. One is to be located at U.S. 117 just east of Willard
and the others are planned for N.C. 53 two miles northeast of Burgaw
and between Rocky Point and U.S. 117 at N.C. 210, respectively.
Interchanges, especially in an urbanizing rural area, draw service,
business and manufacturing enterprises. What are several of the secondary
effects of I-40 construction facing local government decision makers?
Listed here are some:
1. Strip development pressures will be strong between Burgaw and I-40
along N.C. 53 and near the Rocky Point/U.S. 117 interchange.
2. There will be site specific service center development at all three
interchanges.
3. There will be improved accessibility for local work forces into
Wilmington.
4. Industrial development attraction may occur along the U.S. 117, Seaboard
Coastline Railroad line, and I-40 particularly near Burgaw where
sewer services may be available.
5. Will tourist traffic funneling along the coast highway -- U.S. 17 be
diverted to 1-40?
6. Some of the strip commercial development along U.S. 117 will suffer
from loss of traffic exposure. Some of them may shift to I-40.
Pollution of the Sounds
Development pressures are increasing along the:ICWW. Conversion of�
lands adjacent to the sounds increases soil runoff -- a prime source of
pollutants. Septic tank usage, however, constitutes a major present threat
to water quality. Effluent from septic tank nitrification fields serving
second home and non -seasonal development can traverse laterally through
soils and into the water table eventually filtering into surface waters.
Both areas of concern -- surface runoff (siltation, automotive pollutants
and septic tank effluents can be partially controlled by local governments
through adoption of appropriateregulations and strict enforcement using
up-to-date. engineering principles. Increased public awareness of these
problems helps when enforcement questions arise, but private property
owners do not like being told their property is not suitable for septic
tanks and no building can occur.
Soil erosion as a non -point source of water pollution is getting
more attention by State and Federal environmentalists. The problem
is great because having a waterfront home is very much desired and
converting lands from timber or agricultural production often increases
the rate of drainage and soil erosion into streams and estuaries.
Examination of the aerial photographs of coastal Pender County and
discussions with.the Planning Board and the district Soil Conservationist
indicate increasing water pollution from soil runoff.
39

On -site Sewage Disposal (the septic tank)
Hardly any conversation about rural land use can occur without
some mention of septic tanks —their good features and inherent problems
associated with use in Pender County where ground water tables are high
and where ground water and surface water pollution have been attributed
to them. A county -wide public sewer system is unlikely in the near
future and is probably not the most economical or necessarily the best
solution in a low density rural development area. Package treatment
plants for higher density beach or other subdivision areas are expensive
but sometimes a practical solution. Other methods of on -site sewage
disposal are known -- privies, composting toilets, and varieties of
aerobic treatment tanks, evapotransportation systems, and off -lot
systems where wastewater from a cluster of households or commercial users
flows to a common treatment site, such as a soil absorption field.
Several septic tank problem areas have been identified by the County
Health Department and review of septic tank problems should be a
high priority locally.
Fishing Industries
Some of the new problems facing fishermen are: rising fuel costs;
increasing competition from sports -fishermen, pollution, high costs
of new gear and bigger boars along with the rising interest rates
for financing operations. These and other problems are beyond the control
of local fishermen and all but perhaps pollution control are beyond the
county government's control.
The fishing industry, although relatively small in Pender County,
is a particularly important industry for Hampstead and some of the
permanent population of southeastern Topsail Township. In 1979, there
were 51 full-time and 405 part-time licensed commercial fishermen according
to the N.C. Division of Marine Fisheries. Landings of a variety of
fish species sharply increased from 101,100 pounds to 794,100 pounds
from 1976 through 1979. Sales in Pender County to processors likewise
increased from $65,738 to $720,476 for the same period. These sales
represent an increasingly important contribution to diversifying the local
economy. These figures do not represent all sales from Pender County
licensed commercial vessels because some of the catch is sold to
processors in New Hanover County.
Not counting the substantial numbers of sports -fishermen who may
derive supplemental income or food from this part-time pleasure, the
fishing industry provides 456 fishermen and their families part or all
of their income from an important natural resource. What steps can
_ the County take to see that commercial fishing continues to improve the
local economy? A related concern was raised by the County Planning Board
on the growing conflict between commercial fishing operations and local
sports fishing enthusiasts and tourists who are all increasing in numbers
and subsequently competing for a limited resource. Can the County do
anything to reduce this conflict?
40

SECOND PRIORITY ISSUES
U.S. 17
Widening U.S. 17 to 4-lanes will allow for improved vehicular
movement as the design capacity would increase from the existing two-lane
facility (with alternating passing lanes). Increased traffic flow invites
additional development seeking exposure and provides improved
accessibility by reducing travel time between destinations. Some
displacement and relocation of existing businesses and residences may
occur if additional right-of-way is needed. Also, several very old
and beautiful spanish'moss covered live oak trees in the Hampstead area
may be lost, if care is not taken to save them. The 1980-1986
Transportation Improvement Plan for North Carolina does not include
widening of U.S. 17 in Pender County, but eventually four-laning is
expected. In the mean time, development pressures will increase. The
County Commissioners should consider whether to work toward protecting
both the local and through traffic carrying capacity of U.S. 17 via
adoption and enforcement of subdivision regulations and/or zoning. Such
regulations can be drawn to allow adjacent land owners the opportunity
to develop, but in such a way that fewer driveways cuts and direct access
lots would be needed.
U.S. 17 is an extremely important access corridor for eastern Pender
County and should be protected from deterioration through strip development.
Solid Waste Disposal
Solid waste disposal has become a very hot issue for Pender County
.residents in the face of proposals by New Hanover County and Wilmington
to locate a landfill in Pender County. What to do with solid waste
is primarily a local responsibility, with technical assistance and
licensing from the State. Presently the County Planning Department
and Planning Board are drafting a zoning ordinance as one means of
keeping such a landfill out of the County, but this may be difficult
because tailoring the zoning regulations to prohibit one local government
from such an operation may likewise prohibit Pender County's and Burgaw's
landfill operations from expanding or later relocating.
Pender County residents are fortunate to have enough soils suitable .
for landfills and future site selection - expansion plans should be
included in the capital improvement program. As the cost of disposing
of solid waste rises in the future and recycling techniques improve in
efficiency and become cost effective for rural areas, the County should
examine various recycling methods.
Land Drainage
Because of the widespread occurrence of a high ground water table and
nearly flat topography in the County, artificial drainage for most
forms of land use activity is required. Often, solving one property
owner's drainage problem can cause neighbor's properties to receive
additional water that cannot flow through existing ditches. Wildlife
habitat and surface water quality are also impacted directly by
artifically lowering the water table and increasing runoff carrying added
sediments, nutrients, and biodegradable matter. There are differing needs
(and consequences) of land drainage by different land users. Farmers need
41

good drainage maintained in order to insure proper soil moisture for
agriculture. Their drainage requirements may change the groundwater
table, permanently affecting groundwater recharge. Subdivision
development is a more intense use of the land than farming, and impervious
roads and buildings increase runoff and add to some of the existing
drainage problems.
With increasing subdivision development near the County's waterways
and particularly east of U.S. 17, subdivision regulations should be
considered as one means of insuring that some degree of consistency in
artificial drainage design is carried out. For the other land uses,
such as for agriculture and forestry management, drainage problems seem
to be more of a state concern with few local control options. Locally,
most people are concerned that their own lot is drained and that severe
mosquito problems are alleviated. Hence, in recent years the County
has made efforts to channelize ditches and drain swamp lands with the
assistance of the Department of Human Resources Mosquito Control Act
funds. An on -going attempt to catalogue the most pressing drainage
problem areas in the County should be undertaken as a joint venture among
several local agencies and the appropriate state and federal offices to
make sure there is a proper balance between providing a healthful living
environment for people while protecting natural wildlife areas and
important watersheds.
Zoning
Until recently, zoning has been a tool of cities -- not rural areas
and small towns. In the face of increasing suburbanization and non -farm
development pressures occuring in Pender County, the Planning Board and
County Planning Director are presently drafting the county's first attempt
at zoning regulations. The range of land use issues that can be addressed
by such regulations can be large -- touching on measures to restrict
conversion of the county's better agricultural lands into non -farm uses
to ways of buffering existing and anticipated residential developments
from encroachments by nuisance -type land uses.
A zoning ordinance is generally made up of two sections: (1) a map
with the location and type of each zoning district depicted; and (2) a
text specifying zoning requirements. The Planning Board will need to help
the County Commissioners determine the nature and scope of what zoning is
to accomplish in Pender County, while keeping in mind the many pitfalls
that may need to be addressed.
Does the entire county need to be zoned or just those sections
experiencing or expected to experience most of the development pressures?
Some North Carolina counties have chosen only to zone areas surrounding
major road intersections and sensitive lands, such as from U.S. Highway 17
eastward to the ocean. The Planning Board is convinced the entire county
needs to be zoned and this was also reflected in the citizen survey of 1976.
The tedious chore of framing just the right performance controls to
separate incompatible land uses (houses from chicken houses or even sand
dunes) while not overregulating is a sometimes very difficult undertaking
and one requiring much thought and public input from all sectors.
5%

Rural Crime
Rural crime is on the increase nationwide as rural populations have
increased. Pender County is no exception to increasing property vandalism
and break-ins, a phenomena that is even harder to deal with when large
numbers of dwellings are seasonally occupied. "Crime Watch" programs
are being used in some sections of the County to help the Sheriff's
Department patrol vast areas and to alert potential criminals that,
although some properties may appear unattended, neighbors are on the
lookout for suspicious behavior.
East -west Intracounty Access Improvement
There is limited east -west road access in Pender County. Persons
wishing to travel from Topsail Beach to Burgaw, for instance, must either
drive via N.C. 210 or N.C. 50/53; neither route is direct. Highway
improvements planned thus far, call for improving the already good north -
south highways, but no plans exist for lessening travel distances east -west.
The 1976 CAMA Plan and recent discussions with the County Planning Board
have emphasized the desires of locals to have more direct east -west routings.
Economic Development
Since 1976, industrial development opportunities have received one
important boost with the hiring of a full-time director for the Pender.
County Industrial Development Commission who is charged with recruiting.
new industry and assisting existing firms with expansion plans.
In the 1976 CAMA Plan, the County Commissioners adopted several
categorical areas of objectives and standards designed to improve
employment opportunities and income for county residents.
A_ good labor pool,. a good site in a location with good transportation.
corridors, and supportive utilities are three of the essentials in being
able to recruit diversified manufacturing enterprises (given an economic
demand for the product). There will be increasing opportunities for Pender
County to plan for and capture manufacturing firms seeking to locate in
the Wilmington market area. Two Pender County locations can be excellent
opportunity sites for.industrial development because they potentially
exceed the minimum threshold standards most manufacturers seek. These
sites are in the general vicinity of two proposed I-40 interchanges,
at N.C. 53 east of Burgaw and N.C. 210 at Rocky Point. The Rocky Point
area will be within a 15 to 20-minute drive of the blooming Wilmington/
New Hanover County residential areas where a large technically skilled
labor pool exists. Also, N.C. 210 provides this site with direct, good
east -west access for the growing population of eastern Topsail Township
and south central Pender County.
The Burgaw vicinity site can draw on the Burgaw, Wallace and
Wilmington labor pools.
Both sites will provide excellent interstate highway transportation
connections with the Piedmont, I-95, and Wilmington Port facility.
The present lack of either a public water supply with elevated tank and
fire fighting water flow and public sewer would normally be a disadvantage,
but it is not uncommon for "dry" classes of industries to drill for
43

s� ��� nu.
Rural crime ... here's
evidence that "crime
watch" programs are
becoming popular and
practical ways of
stretching limited law
enforcement personnel and
dollars.
n^•
A new acre sized home
site cut-out of the
woods. Most newer homes
are located with ample
setback from road. This
site in southwestern
Pender County needed
extensive clearing and
drainage.
Typical of nineteenth
century home still found
in Pender County, this
one is in good shape.
Many have given way to
a mobile home on the same
lot.

their own water supplies and suffice with on -site sewage disposal.
Other potential plant sites are included in the Industrial Development
Commission's inventory of industrial sites with locations generally in the
immediate vicinity of the smaller towns and communities where good road
and rail access are provided.
Coordination of industrial development policies, land use siting
standards, and the proposed zoning ordinance is a must for successful recruiting.
THIRD PRIORITY ISSUES
U.S. 421 - Widening
The N.C. Transportation Improvement Program 1980-1986 calls for
widening U.S. Highway 421 to a 4-lane facility from Wards Corner at N.C. 53
to N.C. 210, a total of 5.6 miles. Construction is tentatively scheduled
for fiscal year 1982 within existing right-of-way. Under construction
presently is the 16.3 mile four -lane widening of U.S. 421 from north
Wilmington to N.C. 210.
This highway serves west central Pender County with good access
southward into Wilmington and northwesterly to I-95 and the central
Piedmont. Widening from Wards Corner to N.C. 210 will improve driving
times and traffic safety for county residents in western Burgaw Township.
and Caswell, Columbia, and Union Townships. Additional development pressure
for strip commercial retail services will probably focus on the Wards
Corner intersection with N.C. 11 & 53 between the towns of Burgaw and
Atkinson. Because the scheduled 5.6 mile widening project is to occur
within existing right-of-way, little damage to property or lasting
environmental problems are expected However, the two lane 10.5 mile
section north from Wards Corner to the Sampson County line is stripped with
122 structures as of the 1980 Land Use Survey, some of which will probably
loose front yards or need relocation. Additional development that potentially
may occur along the entire stretch of U.S. 421 in Pender_County should be
guided by rational land use design.
Waterway Access (Public access to public waters)
Increasing private subdivision of land and lot sales adjacent.to
the nearly 30 miles of Pender County coastal waters and major inland
waterways is pinching off public access to public waters. The public's
rights to access and the land owner's rights to privacy and freedom
from trespass are often in conflict.
The Pender County Waterway Access Plan prepared by the Cape Fear
Council of Governments (undated) details the existing and growing -
problem of limited public access to Pender County's public waters.
Further, it points out the active facilities development carried out in
recent years by the towns of Topsail Beach and Surf City, and documents
a serious need for similar program actions by county government. The
plan recommends establishment of policies to implement public access -
ways primarily through private developer dedication of street right-of-ways.
This and other suggestions are still to be decided upon by local officials.
The same plan, however, does not pinpoint locations in the County where
the County government should actively seek to establish public access.
This was the primary purpose cited by the Planning Board for commissioning
the study.
45

East of Hampstead. Maritime forest meets the tidal flat marshlands.
Development pressures threaten their loss. Extreme care must be
given to integrate development into maritime forests.
rM-m"
Topsail. Public (ORV) vehicular and pedestrian access to -ocean across
fore -dune helps protect necessary dune grasses while dedicated street
right-of-way to high water mark gives sufficient room for parking.
In Topsail, ordinances control conduct, hours for access, and types of
vehicles. Receptacles provide litter control.

In the mean time, there simply is not a public boat ramp on the sound -
side of Pender County.
Mobile Homes and Registration -
Four problems are generally associated with mobile homes that may
be of concern to local officials, especially with increasing concentrations
of them occuring throughout the county. These are: (1) low personal
property appraised value for advalorem tax purposes compared to conventional
housing, yet public service demands are nearly equal for both housing types;
(2) generally they locate on smaller lots than site -built homes, causing
more septic tank pollution problems; (3) although visual quality is improving,
some people still believe they lower property value when allowed to intrude
standard home subdivisions; (4) although building codes and the mobile home
industry have greatly improved fire safety, mobile homes still have
higher incidence of fire destruction than site -built homes and (5) Pender
County is located in a hurricane zone and mobile homes need to be tied
down to prevent their being damaged.
The major change in Pender County's housing stock in the last 10
years has been the rapid influx of mobile homes for both permanent and
seasonal occupancy. They now constitute 26% of all housing units in
Pender County. Sharply rising site -built housing costs, improved
mobile home size, quality, availability, and long term financing in a
price range that fits well the substantial county demand for seasonal
vacation housing and large population of low income population, are but
some of the reasons they are becoming so prominant.
Mobile homes are becoming an ever increasing percentage of total
housing in the county and it is becoming increasingly important to
see that they are located properly on lots and that owners pay their share
of county advalorem taxes. Mobile homes are listed as personal property
and depreciate in most instances with time rather than appreciate like
site -built homes. Tax revenues may decrease in proportion to the number
.of mobile homes versus site -built homes. Registration of other means of .
keeping track of mobile homes are becoming more common in eastern North
Carolina counties as a means of seeing that mobile homes are properly listed .
for tax purposes and to see they are in compliance with building, zoning,
and health code requirements.
Subdivision Regulations
In a rural county, facing development pressures, subdivision regulations
are often more important than zoning. There may be little public concern,
for whether the land is used for a house or convenience store, but
adequate fire access, improved roads, utilities and lots that can be
built on and protected from flooding or erosion may be of greater concern..
Subdivision regulations can help assure accurate land surveying and recording
of land records.
Subdivision, regulations help to insure that development does not
occur haphazardly, roads are designed to tie in with future access. to
adjoining lands and public services and utilities will be able to serve
residents' needs.
47

i
o Y'
N
Ole
■
y�
Mt,`[
r .te T�f y?n it ,..fiM
Maritime forest has been replaced here by densely packed mobile
home park development with each unit's occupants hungry for a few feet
of soundside frontage with a "view" like the one below.
This mobile home site was created by filling in marsh. Pristine and
ecologically important maritime forest (in distance) left relatively
undisturbed provides natural buffer to storm tides.

The "Four Year Overall Program Design for the Pender County Planning
Department 1977-1990" included subdivision regulation preparation and
adoption as a high priority item. Subdivision plan review needs to be
meticulously carried out; and if the County adopted subdivision regulations
they will require additional staff time to properly administer. However,
they can lessen the problems of coordinating various county and state
development permits reviews and even shorten permit letting times.
Tax Mapping
Good tax maps are essential for efficient and equitable property tax `
administration. They are extremely valuable for land use planning and
can serve as a base for comprehensive land records for public and private
use. Pender County is one of those counties in North Carolina in the r
majority and not having county -wide tax mapping. 'It is expensive and takes
on -going care and personnel to keep them up-to-date as land transactions
occur daily.
The benefits of accurate tax mapping have been proven to exceed their
cost. Also, zoning administration and practical use of subdivision
regulations becomes almost impractical without tax mapping to identify
property boundaries, streets, and other features accurately. Tax maps,
together with large scale aerial photographs and detailed soils maps
will prove invaluable information sources for land use planning and many
other county functions. Furthermore, they can insure that all land parcels
are accurately depicted and title searches and deed transfers have fewer
chances of inaccuracies.
The North Carolina Legislature has enacted legislation requiring
all counties to eventually be tax mapped. Annual funding is also
providedto help off -set the costs involved and some counties have found
they can pool together other sources of funds and even spread the
mapping out over several years to get the job done.
Flood Plain Regulations
Because large sections of Pender County are within the "100-year"
flood plain and properties are subject to periodic inundation, particularly
from hurricanes, the County has already adopted a minimum flood
prevention ordinance in order to afford affected property owners flood
insurance under the "Emergency Flood Insurance Program". Coastal properties
from U.S. 17 eastward have been topographically mapped and accurate
flood plain maps produced. The remaining sections of the County subject
to flooding are presently being mapped by an engineering firm under
contract with the Federal Emergency Management Administration (FEMA).
Once these areas are mapped the County will be required to adopt a flood
plain management ordinance to control construction in flood hazard areas.
Development Pressures - Cape Fear River, NE Cape Fear & Other Streams
The 1980 land use survey and field inspections reveal increasing second
home residential development is occuring at accessible points along the NE
Cape Fear River, including the stretch near Lillington Creek and near
Lanes Ferry Park. So far, none of these developments have reached the size
of those along estuarine waters further east, but the potential for increased
development is real. The NE Cape Fear River is a wide, free -flowing
stream with barge traffic possible as far north as the N.C. 210 bridge.
49

Looking northward from bridge on Black River near Still Bluff.
Pristine setting with little development is ideal for canoe
trips and potential scenic river classification.
Waterfront access and exposure is evident here. Mobile homes
dot the western shoreline of the Northeast Cape Fear River
south of Lane's Ferry Park. International Paper Company boat
access at N.C. 210.

The NE Cape Fear River has limited direct access from the north with
most development having occurred on the New Hanover County southern
bank. The construction of I-40 will help retard any direct eastward
push of waterfront development from U.S. 117.
A low-lying wooded swamp provides a natural buffer to development
along the northern bank of the Cape Fear River. This stretch of flood
plain should remain in its natural state along with the scenic Black
River which is also buffered by hardwood bottom land swamps. For the
next five years, the past trends of strong development pressures being
experienced along Topsail Township waters are not expected along the
inland waterways except at limited easily accessible locations. Conservation
of these natural county assets was promoted in the 1976 CAMA Plan and
should be continued as public policy.
Housing
The 1970 Census revealed that 2,104 housing units out of 5,237 (32.5%)
of all occupied housing units were substandard. Most of these were so
designated because they lacked adequate indoor plumbing facilities,
were overcrowded, or structurally deficient. Although the percentage
of substandard housing to the total inventory is expected to slightly
lower because of the increasing amounts of new construction, the absolute
number of units will remain nearly the same as in 1970.
Problems of poor housing are difficult to correct in rural areas
like Pender County because the population is dispersed and tends to
be older and poor. The County could apply for single purpose
Community Development Block Grant (CDBG) programs for the purposes of
funding housing rehabilitation. This program, however, is being seriously
reviewed by the new Reagan administration and such assistance may dry -up. .
Other Federal rural housing programs primarily work as supplements to the
private home construction industry by reducing rental rates and providing
mortgage guarantees for new construction.
Mobile homes seem to be the immediate answer for an increasing
number of low and moderate income families. Unfortunately, these
units may too easily be turned into modern pre -manufactured "shotgun
slum houses with no real improvement in housing quality.
FOURTH PRIORITY ISSUES
Lea Island Development
A privately owned strand covering roughly 91 acres, Lea Island
lies southwest of Topsail Island between New Topsail Inlet and Old
Topsail Inlet. Access is by boat and no public roads are on the island.
Potential for further development exists because of proximity to access
to intracoastal waterway traffic passing through New Topsail Inlet.
Accessibility is a key determinant of future development pressures
on the island. The Pender County Parks and Recreation Plan 1977-1990
recommends natural state preservation of the island. The 1976 LAMA Plan
placed the island in a "conservation" land classification. This should
be continued if the County determines Lea Island's natural beauty should
be retained. It may be too late, however, The island is in private
ownership and some development is already underway.
51

Seaboard Coastline Railroad Abandonment
Pender County has two railroad lines operated by Seaboard Coastline
Railroad. One parallels U.S. 117 north to south and a secondary service
line runs southwest to northeast parallel to U.S. 17. The railroad is
in the process of seeking approval from the ICC to abandon the line
from Jacksonville to Wilmington along U.S. 17. What impact would
abandonment have on Pender County's economy? Would business; industry,
or farmers suffer from such action? Should the County Commissioners
take a stand on the proposal? Economically less successful rail lines in
Pamlico County and Gates County have been abandoned in the last several
years as an economy measure by Seaboard Coastline.
A balanced transportation network including rail service is a benefit
for local producers marketing their products and the county government will
need to address the railroad abandonment issue. Pender County should
initiate a cooperative effort with the Jacksonville/Onslow County and
Wilmington/New Hanover County on this issue.
Strip Development of Roads
The 1976 CAMA Plan, and more recently the Land Use Survey conducted
by the Pender County Planning Department, clearly point out the strip nature
of development along many roads throughout Pender County. Likewise,
the ills of strip development -- increased public service costs, reduction
of highway traffic carrying capacity, visual clutter, etc. have been
described.
Will the County Planning Board and County Commissioners consider
adopting land use regulations with design standards aimed at dampening
these ill effects? Subdivision regulations could help by requiring
access roads for interior lot development, thus cutting down on the number
of new lots recorded with direct highway frontage. Setback standards
for new buildings, gasoline pump islands, and off-street parking regulations
and driveway design standards could insure better movement of vehicles
on and off of highways where strip development continues to occur.
Erosion Control Ordinance
Even in a "flat" county like Pender, as land is disturbed by
residential subdivisions, road cuts, industrial site development, etc.
soils erode, eventually finding their way to the County's surface waters,
thereby adding to the problems of maintaining good water quality.
Certainly these problems are not as great as in faster developing sections
of North Carolina where there is greater topographic relief; but isolated
developments particularly along the coast cause problems.
Presently, with limited results, primarily because of staffing
shortages, the N.C. Department of Natural Resources and Community Development
is responsible for monitoring and enforcing land disturbing activities
falling under the State's Sedimentation - Erosion Control Act. Depending
partly on intensity of development pressures this State agency is seeking
assistance from local governments in seeing the act's standards are
enforced. Larger urbanized communities have adopted their own parallel
regulations while most counties have been encouraged to help the State
merely by informing NRCD of pending and active developments.
52

Loss of Productive Agricultural Land
The loss of farms and quality agricultural land to development
was expressed as a concern of Pender County residents surveyed in 1976.
Five years is too short a period to see significant reductions of farm
lands by conversion to urbanization especially when noting that except
for the Burgaw area, most,of,Pender County's development is occuring in
forested areas (another increasing conflict) and not on former croplands.
It is significant to note, however, that strip development along rural
roads is highly visible, but.in examining the county land use map in
Exhibit 3, little actual acreage is coming out of farming because of
urbanization, at least not yet.
Planning to save productive agricultural lands so they are not
displaced.by development that can go on less desirable agricultural
lands takes a good monitoring program and strong local land use policies,
based on previse soils information. Agriculture and forestry activities
still represent the major economic, social, and cultural mainstay of
Pender County.
A county -wide detailed soil survey would provide the kind of
information that could be used to classify productive agricultural
lands.
Each soil in Pender County needs to be rated for its potential
to produce crops. The USDA Soil Conservation Service can evaluate each
soil and rate its soil qualities for producing crops. Several counties.
in North Carolina have obtained this information in the form .of a
supplement to their county's published Soil Survey. Soils are grouped
into one of three rating categories based on a combination of soil
qualities, including:
1. Prime Farmland -These soils are best suited for producing food, feed,
fiber, forage, and oil seed crops. They have good soil qualities,
are favorable for all major crops common to the county, have a
favorable growing season, and receive the available moisture needed
to produce high yields on an average of 8 out of every 10 years.,
2. State or Locally Important Farmlands -These soils have either seasonal
wetness, erosion, or droughtiness limiting their suitability for crops.
When treated and managed according to modern farming methods these
soils will produce moderate to high crop yields.
.3. Other Lands -These soils are generally not suited to crop production
without applying extensive management.
Such an inventory would be of great value to preserving Pender County's
strong agricultural based economy.
53

Aesthetics (sign control, litter, etc.)
Scenic quality is what makes Pender County attractive to many
people. Forests, pristine rivers, clean waters, and roadsides are
positive factors in making this county a unique place to live and visit.
But strip development, sign clutter where signs shout at passers-by
for attention, trashy dumpsters and junk piles scattered here and there
are not economic pluses and detract from the natural beauty of Pender County.
All of these nuisances are controllable by caring people. Adoption
and enforcement of tasteful sign controls, litter and junk control
ordinances, and going to well -screened dumpster sites would eliminate much
of the clutter. When organized, much can be done by civic, social, and
church groups at conducting clean-up campaigns.
ti Timber Production & Management Practices
Approximately 80% of Pender County's land surface is classified
as forested. The 1976 CAMA Plan examined forest resources and concluded
that with improved drainage to lower the water table much of this timber-
land could be used to significantly raise manageable forests above
25% of the total presently in production. The land use map in Exhibit 3
shows how forested lands clearly dominate the landscape and how poorer
drained areas preclude active development of this renewable resource.
Unfortunately, draining substantial areas will alter wildlife habitat
and native vegetation, the impact of which is uncertain. Likewise,
increased runoff may change the salinity of brackish waters and could
harm shrimp nursery waters and fish spawning.
Local officials have expressed their concern that additional timber
production from well managed tree farms will be an asset to the local
economy, especially if increased production could result in new companies
processing wood products in Pender County.
S
Truck Farming: Marketing of Products
Tobacco, corn, soybeans, blueberries, and wheat are major cash crops
in Pender County. Each has found its nitch in the local agricultural
community, but as was mentioned in the 1976 CAMA Plan much of the potential
income from marketing and processing these crops is lost out of the county.
With the improving transportation links into Wilmington and the Piedmont,
ready made wholesale markets exist that largely will continue to preclude
increased local processing, but there is still potential for additional
cooperatives that would collectively pool their resources to grow, process,
and market produce much as has happened with blueberries. The County
Industrial Development Commission, Agricultural Extension, and various
growers associations should commission a detailed local processing
marketing study for use in recruiting additional processing plants.
54

Development Pressures - Intracoastal Wacerway
The 1980 Land Use Survey and Analysis and more recent field
reconnaissances verify earlier predictions that the area between U.S. 17
and the ICWW could continue to attract developers. Soundside estuarine water-
front lots are at a premium much like the demand for ocean front lots were a
few years ago. Cutting out a large lot in maritime forest is considered very
desirable by many. Middle Creek, Deerfield, Olde Point, Scottsdale, and Topsail
Plantation are some of. the many waterfront recreational communities that have
developed'in recent years and made Topsail Township the fastest growing section -
of Pender County with a 96% increase in housing units since 1970. Projections '
indicate these trends will continue with a demand for an additional 2891
housing units on 1327 acres by 1990, which does not include lands needed
r
for road right-of-ways, marinas) campgrounds, and commercial development.
Even though there are probably enough platted lots available to
accomodate this growth, additional subdivision will come. Another trend
to look for will be an increasing desire by developers to increase density
in order to off set increasing land and building costs for the.traditional
large lot single family home typical of Belvedere, Olde Point, and Deerfield.
Package sewage treatment plants and increased demands for looking into
some form of public water and wastewater treatment facility are expected.
Access to public waters will become even more critical unless the
policies discussed under that heading are implemented. Likewise, water
pollution and increased conflict between commercial and recreational
fishing are.expected as a result of increasing development along the
ICWW.
Historic Preservation/Archeological Resources
The county has a large number of scattered significant historic and
archeological sites that are afforded little protection. Three National
Register Properties have been previously identified. Public officials
have expressed their appreciation and concern for saving significant
historic buildings. Historic sites are at least visible and the efforts ,
of the Pender County Historical Society and increasing public awareness
does afford some degree of safety, but archeological sites are a different
case. _Except for major Federal or State funded projects, archeological
sites are not systematically reviewed by the Division of Archives and
History. Increased awareness that it is important to look before digging
may save an archeological site, this message needs to get across to developers.
Pender County's archeological and historic resources are part of
its heritage that can also afford potential economic benefits through
tourism as is the case with Moore's Creek National Battlefield,
55

A big draw to recreational
communities are golf
courses like the one at
Olde Point.
U.S. 17 to ICWW. The
trend... hardwoods giving
way to new one-half acre
home sites.
Drainage ... a new dragline
cut designed to lower
water table for new housing
developmemt near
Edgecombe.

Off -road Recreational Vehicles
Off -road recreational vehicles, or ORV's, are in use throughout Pender
County, but any negative effects on the environment caused by their use
is largely limited to the outerbanks and sound areas. Inland, ORV's
and other rough terrain vehicles are often a necessity for hunters,
fishermen, farmers, and foresters to have a reasonable means of access
to private lands. Their environmental impact is minimal compared to
normal practices of land clearing for such purposes as silviculture,
farming, and site clearance for home sites.
The Towns of Surf City and Topsail Beach have local controls over
ORV's by limiting speed limits and providing public access to the beach
strand. Preventing destruction of sensitive wildlife and dune protecting
vegetation on private property is largely left up to the property owner,
-but there is some growing evidence that this is not enough, because
negative effects of dune destruction cross property lines.
Other North Carolina coastal counties have ordinances with varying
enforcement mechanisms restricting ORV usage on the Outer Banks and salt -
marsh zones.
Localized Development Conflicts (Marinas and Second Home Development)
From reviewing the 1976 CAMA_Plan and observing recreational.development
trends, it becomes evident -that the collective development of several thousand
acres of coastal lands is certainly significant, but on the smaller scale
it's often difficult to see how one more marina or 50-lot subdivision on the
sound could make a difference:
The previously mentioned need to develop.county-wide subdivision
regulations, together with zoning standards and policies put forth in
this section will enable the county to work with each new development
on its peculiar siting problems, while at the same time giving a broader
picture of how each, development fits together and creates greater impacts
on natural resources, county services, state roads and so on.
FIFTH PRIORITY ISSUES
County -wide Water System
To some degree, presence of a central community -wide water system
.serving,a widely dispersed population can be a stimulus for new development.
This is.more the case where such a system is placed where on -lot
private wells produce water of lessor -quality or a higher cost.
Typically,,the direct benefits of low cost public water supply supported
largely by low interest Farmers Home Administration loans and grants are
louded, but more subtle secondary long term effects on land use patterns .
are overlooked.
57

The land use analysis update included descriptions of how strip
development pressures can increase with county -wide water systems. Also,
in Pender County where the ground water table is high and septic tanks
are the rule, public water supply is often easily justified. However,
placing the water system in may increase infill development and further
aggravating groundwater pollution problems.
By its low Planning Board ranking it is obvious that a county -wide
water system is not seen as a high priority in the next five years.
Attention should be given though to collecting information in existing
private water systems, identifying septic tank failure areas where private
wells are in use, and determining perhaps design and cost estimates for
ti limited public water systems deployment.
Steep Slope Areas
Even though Pender County topography has little relief, there
are steep slope areas along several stretches of inland streams and
soundside estuarine waters. Steep slopes are defined as those with
greater than 12% slope. Because of the sandy nature of many of the soils
along these waterways, clearing vegetation along them can cause severe
soil erosion and sedimentation under heavy showers. The State's
Sedimentation Erosion Control Act requires buffering acre sized or larger
cleared areas, seeding, silt screening, on -site stormwater retention, etc.
The N.C. Department of Natural Resources and Economic Development enforces
the act in Pender County with limited staff out of the Wilmington
field office. Local governments are encouraged to adopt their own parallel
regulations and enforcement mechanisms to stretch the State's limited
enforcement capability.
Inter -County Cooperation to Solve Common Problems
.Several probable common issues among area counties have been identified
in this chapter. In fact, all of the twenty coastal counties share some
of the same land use related problems and each county government can benefit
from observing and talking over these issues with one another. The CAMA
Guidelines require intergovernmental coordination where a problem crosses
county lines.
Land use decisions in Burgaw, Atkinson, Topsail Beach, and Surf City
often affect land use management decisions by the county.
One issue, for instance, that should be discussed among Onslow
County/Jacksonville, Pender, and Wilmington/New Hanover County officials
is the possible abandonment of Seaboard Coastline Railroad tracks
paralleling U.S. 17. Collectively, a stance on the issue can carry more
weight perhaps than each locality going about their own separate directions.
58

FRAGILE NATURAL AREAS
The North Carolina Heritage Program, a Division of the N.C. Department
of Natural Resources and Community Development, has obtained funds from
the state's coastal management program to prepare an inventory of
"significant natural areas" in Pender County. This survey should be
completed by mid-1981. It will identify previously unknown fragile
natural areas and will provide more detailed knowledge of already
identified natural areas within the County. Upon completion of this
survey, it should be examined by the Planning Board to see if any
.amendments to this plan will be required in order to protect newly
identified fragile natural areas.
Almost every document prepared for Pender County in recent years has
included the Angola Bay State Gameland reserve and the Holly Shelter
State Gameland as significant natural areas within the County. Both
of these areas are owned.and managed by the N.C. Wildlife Resources
Commission. Apparently, both reserves contain unique natural characteristics
or the State would not have purchased them. However, what makes them and
other areas in Pender County unique is not common knowledge. Those
reasons are presented here.
Angola Bay has extensive tracts of tall evergreen shrub pocosins,
mixed .pond pine pocosin and pond pine forests. It is believed to serve
as an important wildlife habitat for various endangered or threatened
.species.
Holly Shelter is a 100-square mile wilderness which contains both
low and high pocosin wetlands. It serves as a habitat for bear,
alligators, red -cockaded woodpeckers, eastern diamondback snakes, et.al.
. There have been seven rare plant species identified in this area.
They include the venus fly trap, white wicks (Kalmia Cuneata), rough -
leaf loosestrife (Lysimachia Asperulaefolia) and others. There is also
a 300 acre (sarracenia flava) pitcherplant bog. Near the Holly Shelter
Gameland is an unusually exceptional example of an inland sand ridge
which is in private ownership.
There.are two areas in the general vicinity of the Maple Hill
community which are also considered unique and fragile natural areas. -
One contains an excellent example of an old -growth dry sand ridge
savannah,_with climax long leaf pine and (aristida) wiregrass. It
contains a colony of the threatened red -cockaded woodpeckers as
well as.venus fly traps. (also a threatened species). The whole area
.,is -surrounded by pocosin (an upland swamp). The second area near
Maple'Hill is an abandoned rock quarry. This quarry has the best known
exposure of the fossiliferous Castle -Rayne limestone formation, probably
the most significant geologic layer in eastern North Carolina due to its
water -carrying capacity_.in this part of the State. Near the quarry is a
classic long leaf.pine savannah with diverse grass and fore layer.
Near.Rocky Point there is a 40 acre, badly cut -over bottomland.
called the Rocky Point Marl Forest. It consists of a mixture of pine and
sweet gum trees and contains rare herbaceous species. It also contains
out-croppings of the Castle-Hayne limestone formation marl. This area is the only North Carolina location for the rare carya myristicaeformis
As.stated, when the survey of significant natural areas has been
completed, exact locations of these and newly identified areas will become
available.
There are two islands in Pender County which are considered to be
significant (and fragile) natural areas. They are Lea Island and,
immediately south of that, Hutaff's Beach. Both are barrier islands
59

which have associated wetlands, primarily spartina alterniflora marshes.
Lea Island contains outstanding foredunes and upper beach plant communities.
Hutaff's Beach has well -developed zonation of marsh and dune communities.
It is notable for its large lagoonal flat, dominated by spartine
patens -cord grass. Both islands provide nesting habitats for the loggerhead
sea turtles. Lea Island is known to provide a nesting place for terns
and skimmers and its marshes are heavily used by herons and pelicans
as roosts. There are several other rare species which have been identified
on Lea Island. Both islands are under private ownership. Lea Island is
already experiencing limited development, even though the only access to
it is by water.
Areas of Environmental Concern (AEC's)
AEC's in Pender County are those areas which can be classified as:
1) ocean hazard areas, 2) coastal wetlands, 3) estuarine waters, 4)
estuarine shorelines and 5) inlet hazards. Ocean hazard areas are found
only on Lea Island and Hutaff's Beach, the only barrier islands within
the planning jurisdiction of Pender County. Coastal wetlands make up
a majority of the area lying between the Atlantic Intracoastal Waterway
(AIWW) and the Atlantic Ocean (within the planning jurisdiction). All
estuarine waters (those waters affected by ocean tides) are located
generally between U.S. 17 and the Atlantic Ocean. These include all
creeks, inlets and channels. Estuarine shorelines are located 75 feet
inland from the mean high water line adjacent to all estuarine waters.
Inlet hazard areas include New and Old Topsail Inlet on each end of Lea
Island.
All other navigable streams and other navigable natural bodies of
water to their mean high water mark are considered "public trust" waters,
and as such are also considered AEC's. Public trust waters in Pender
County include the Cape Fear, Northeast Cape Fear and Black Rivers, as
well as major portions of Long, Turkey and Morgans Creeks. The "mean"
or "ordinary" high water mark is defined as the natural or clear line
impressed on the land adjacent to the body of water. It may be
established by erosion or other easily recognized characteristics such as
shelving, change in character of the soil, destruction of terrestrial
vegetation or its inability to grow, the presence of litter and debris, etc.
The ordinary high water mark does not extend beyond the well defined banks
of a river (or other stream) where such banks exist.
The previous section on Fragile Natural Areas includes definitions
of AEC's within the Pender County jurisdiction. The appropriate uses for
these AEC's to insure they are not damaged are described in a publication
entitled: State Guidelines for Areas of Environmental Concern (15 NCAC 7H).
These include utility easements, fishing piers and docks (public and
commercial provided they do not interfere with stream flow), agricultural
uses, as permitted under the North Carolina Dredge & Fill Act, grounds
and facilities for public or non-profit recreation. These were also
described in the 1976 Pender County Plan and no changes are proposed by the
Board of County Commissioners. The policy section of this plan (Chapter V)
contains the county's proposals to protect these areas.
M

CHAPTER V
POLICY STATEMENT'S
INTRODUCTION
The preceding discussion of the various issues of concern to Pender
County pointed out that there are presently no land use controls used
by the County to guide development. It was also pointed out that the
policies related to fragile lands, which were stated in the 1976 CAMA
Plan, are still valid because no significant changes have taken place in
the development trends and environmental consequences noted in 1976.
Certain issues were discussed in the last chapter which are required by the
CAMA land use planning guidelines, but which are not considered significant
to Pender County (i.e., steep slope areas).
An attempt was made in the last chapter to focus each of the issues
discussed by pointing out how each one affects Pender County locally.
With that in mind, the following pages contain: 1) a brief summary of
each issue as it relates to Pender County; 2) alternative approaches for
dealing with each issue; and 3) the selection of the alternative which best
applies to Pender County. The selected alternative is then restated in the
form of a policy statement. Following each policy statement is a discussion
of how each statement can best be implemented except in those cases where
the method of implementation is part of the policy statement itself.
This chapter details the county government's willingness to take action
to solve problems related to some of the identified issues and form a
growth management program for the next ten years.
POLICY STATEMENTS
Construction of Interstate 40
With the construction of I-40 through Pender County development pressures
will grow at its interchanges with U.S. 117, N.C. 53, and N.C. 210,
especially the latter two. All three are outside the jurisdiction of any
other local government in Pender County.
Alternative 1 - The County may elect to wait for a while after the highway
is built before a policy is set on the types, locations, and standards
of development it wishes for those interchanges.
Alternative 2 - With I-40 under construction and with anticipated development
pressures mounting, the County may elect to specify the types and locations
of potential development around each interchange. By doing so, the County
will ensure that each interchange may properly attract industrial and
61

and commercial developments providing future economic benefits.
Alternative 3 - The County may •choose to direct development away from
these interchanges so that additional development will not displace
forest and agricultural lands. This could be done by zoning them
agricultural or residential and not promoting extension of utilities
to serve the areas.
Alternative 4 - The County may choose to not take an active lead in
directing the land use patterns around these interchanges.
Policy Selection - The County selects Alternative 2. The critical and
central location of these interchanges and probable development
pressures make it essential to plan the types and standards of
development to best serve the economic needs of Pender County people
and the needs of those passing through to obtain convenient motoring
services.
POLICY STATEMENT/IMPLEMENTATION - It shall be the County's policy to
encourage development of the interchange areas in a clustered manner
and discourage strip development of the other highways leading to and
from the interchanges. Additionally, the Planning Board will closely
study the land use potentials (soil types, drainage and other environ-
mental issues, traffic considerations, etc.) in planning and recommending
zoning of each interchange area. Likewise, the Economic Development
Commission will be asked to participate with the Planning Board in this
effort along with the property owners and residents in the vicinity of
each interchange.
Pollution of Sound Waters
Water pollution is a threat to the good quality of life desired in
..Pender County.. Topsail Township is the most rapidly developing
township in Pender County, and lands adjacent to or near estuarine.
waters and the sounds are in primary demand for much of this development.'
Unfortunately, water quality (good or poor) of these waters is highly
dependent.upon how and in what type of uses these lands.are developed.
Alternative l - The County may choose to do nothing to solve this problem,
'allowing instead for state and federal agencies to independently handle
the problem as they see fit.
Alternative 2 - The County may choose to investigate the problem further
and if there are clearly problems that can be solved by local means,
then adopt regulations in addition to state and federal ones to solve
.the problem.
Alternative 3 - The County may choose.to cooperate with state and federal
agencies, and other units of local government, in trying to identify
and solve this problem.
Policy Selection - The County selects a combination of Alternatives 2 and 3.
POLICY STATEMENT - Pender County recognizes the high resource value of
the County's waters to tourism, commercial and recreational fishing and
to the enjoyment of Pender County and North Carolina residents. It shall
be the policy of Pender County to continue cooperating with all other levels
of government in trying to identify and solve the water pollution problems
62

in Pender County. Where determined necessary and expedient, the County
will adopt and implement local regulations to help prevent and solve
water pollution problems.
Implementation - The Board of Commissioners will inform the N.C. Division
of Environmental Management and the Environmental Protection Agency of
its policy on this matter and ask that they be kept informed of any
activity on this subject. In addition, representatives of these agencies
will be invited to speak to the Planning Board about their current and
planned activities and policies as they affect water pollution.
(Also see policy discussions on septic tanks, drainage, subdivision
regulations, development near streams, erosion control and steep slope
areas).
Septic Tanks
Septic tanks in most instances can and do provide for adequate
individual home and small business on -site sewage disposal and treatment.
However, as it was pointed out in the 1976 CAMA Plan.and again noted
in this update, septic tanks are causing localized ground and surface
water contamination in Pender County. More widespread surface water
pollution is suspected where development is near streams and estuaries.
Alternative 1 - Continue enforcing existing septic tank regulations.
Alternative 2 - The County may review existing lot sizing and soil testing
methods and standards with the possibility of adopting more restrictive
standards.
Alternative 3 - The County may consider adopting subdivision regulations
so that the County Health Department could review and certify proposed
lots for septic tank usage prior to their being recorded.
Alternative 4 - The County may seek guidance and possibly legislative
authority to give property tax credits for those who use other water
polluting on -site sewage disposal methods.
Alternative 5 - The County may choose to push expansion of community
sewerage systems development with centralized wastewater treatment.
Policy Selection - The County selects a combination of Alternatives 1
and 3.
POLICY STATEMENT - It is County policy that septic tank usage in the County
will be properly regulated to insure containment of sewage effluent
on -site so ground water and surface water pollution from this source
will be kept at a minimum. In areas where water pollution has already
been attributed to septic tank failure, the various County agencies will
work to alleviate the problem.
Implementation - The Board of County Commissioners will inform the
County Health Department of its policy on septic tanks and have the
Planning Director and Planning Board work with Health Department personnel
in reviewing septic tank regulations and enforcement standards. They
shall also coordinate these standards with the lot sizing standards of
the proposed zoning ordinance to insure consistency. If subdivision
regulations are adopted they will be used as a means for early review
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and approval of lot suitability for septic tank usage.
Fishing Industries
Slightly over 5% of the County's estimated work force is employed
either full-time or part-time in commercial fishing. Recreational
fishing constitutes a major tourist attraction and provides important
leisure time enjoyment to County residents. Both activities are
recognized as significant contributors to the local economy. It is
County policy that protection of the County's water resources for
propogation of all indigenous fish species is a high priority.
Alternative 1 - The County can, through its policy of pushing for
improved water quality of the sound and rivers will help maintain these
waters in such a condition that all indigenous fish species will be
able to spawn and multiply, thus improving the conditions needed for
successful commercial and recreational fishing.
Alternative 2 - The County could elect to encourage the N.C. Division
of Marine.Fisheries to periodically review their commercial and recreational
fishing licensing policies with input from local fishermen and fish
processors.
Alternative 3 - The County could elect not to "interfere", allowing
N.C. Marine Fisheries and the various fishing interests to work out
the problems.
Policy Selection - The County selects a combination of Alternatives 1
and 2.
POLICY STATEMENT - Because of the natural resources (fish) located in
the rivers, streams and sounds of Pender County, the County encourages
commercial and recreational fishing in these waters and will cooperate
with other local governments, state and federal agencies to control
pollution of these waters to a condition that commercial and recreational
fishing will increase.
Implementation - The County Board of Commissioners will inform the
N.C. Division of Fisheries of its interest in improving commercial
and recreational fishing opportunities and request that periodic
public hearings be held in Pender County so fishermen and processors
can have an opportunity to air their concerns.
U.S. 17 (Four-Laning)
In all likelihood, the North Carolina Department of Transportation
will one day widen U.S. 17 through Pender County from its present two
and alternate three lane width to a four -lane facility along its present
route. The existing right-of-way may be sufficient for accomodating
this widening, but some disruption is expected. What, if any steps.
will Pender County take to ensure future developments along this route
will not reduce its ability to carry traffic efficiently and safely?
Alternative 1 - The County could adopt standards within the proposed
zoning ordinance and possibly subdivision regulations to direct growth
in such a way that fewer but more efficient driveway cuts are made,
strip development is discouraged, and adequate building setbacks are provided.
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Alternative 2 - The County may choose to allow development along U.S. 17
to occur without controls.
Alternative 3 - The County may choose to ask the N.C. Department of
Transportation to supply proposed highway improvement designs to the
Planning Board for review and comment.
Alternative 4 - The County may choose to discourage the four-laning of
U.S. 17.
Policy Selection - The County selects a combination of Alternatives 1
and 3.
POLICY STATEMENT - The County encourages the State to four -lane U.S. 17
in order to ensure improved access through eastern Pender County for local
and through traffic, thereby helping maintain and improve local and
regional economic opportunities. For its part, the County will
consider development policies and regulations that will guide the
location and design of development along U.S. 17.
Implementation - The Board of Commissioners will inform the N.C.D.O.T.
of its policy and ask that they be kept informed of any planning or
programming on this project, so local input may be made prior to final
design. Additionally, the Planning Board will examine this issue when
studying the proposed zoning ordinance and any other plans or regulations
related to controlling development along U.S. 17.
Solid Waste Disposal
There are two basic problems for the County associated with solid
waste: collection and disposal. The present open "green box" collection
sites scattered about at various crossroads provide an adequate collection
system for rural populations and help minimize random dumping of trash
along roadsides and accompanying health problems and unsightly scenery.
Although a localized problem, the green box collection sites do become
cluttered with trash despite efforts to keep them clean. Some counties
have been successful at minimizing such problems with properly designed
collection points.
Disposal of solid waste has developed into a critical issue in Pender
County with the potentiality that New Hanover County would locate a large
scale landfill operation in Pender County. County residents also want
assurances that any landfill operation, when needed, is carried out in
an efficient, healthful way with minimal social or environmental
disturbance.
Alternative 1 - The County could seek special legislation from the North
Carolina General Assembly to prevent the location of an outside County's
sanitary landfill in Pender County.
Alternative 2 - The County could develop specific design standards and
permitting requirements within the proposed zoning ordinance that
would help insure proper location and operation of any landfill within
the County.
Alternative 3 - The County could choose not to regulate landfill
operations leaving such controls within the purview of the various
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State agencies that already license landfills.
Alternative 4 - The County could explore the idea of developing well -
planned and screened collection sites as an improvement over the
present open "green box" sites.
Alternative 5 - The County could choose to basically leave the "green
box" collection sites as is with additional public education and policing
used to keep them cleaner.
Policy Selection - The County does not choose Alternative 3, but chooses -
both 1 and 2, plus a combination of 4 and 5.
POLICY STATEMENT - It is County policy that large scale landfills such
as that proposed by New Hanover County would be a detriment to the
environmental quality of Pender County, and any efforts to locate such
a landfill in Pender County will be actively challenged. Further, it
is County policy that smaller sanitary landfills may be allowed only
when found to be in the best interests.of Pender County residents
and then only by special permit to insure their presence will not
adversely affect adjacent residents. Stiff environmental controls
will be required to minimize or eliminate adverse environmental effects
on air, water, and wildlife resources.
Implementation - The County has recently obtained special legislation to
prevent New Hanover County from operating a landfill in Pender County.
For those landfills that are allowed, the proposed zoning ordinance
contains design standards to ensure proper siting and safe operation
of any sanitary landfill so they will not adversely affect adjacent
residents or landowners or the environment.
The N.C. Department of Human Resources, Division of Vector Control
and other interested state agencies or local governments .will be notified
of the C.ounty.'s policy.
The County Health Department and Planning Director will be asked
to look into immediate and long range ways of reducing the trash problems
found at the "green box" sites.
Drainage
One of the development standards adopted in the 1976 CAMA Plan
addressed the sometimes volatile subject of land drainage. The
delicate eco-systems that exist in natural watersheds often can be
destroyed by artificial drainage for farming, forestry management, "r
or more intensive uses.. Watershed and drainage management is.largely
a private landowners responsibility, but because watersheds cross
property lines it is necessary, and in the public interest for the County
to see to it that drainage programs are managed wisely and its
consequences understood by County residents.
Drainage advice is presently available to farmers and others in the
County through the District Conservationist of the USDA Soil Conservation
Service. Likewise, forestry management including drainage technical
assistance is available to foresters from the N.C. Division of Forestry.
State law under the N.C. Sedimentation and Erosion Control Act of 1973

places drainage limits on large scale development activities. Better
coordination of various drainage and wetland conservation interests
seems to be needed, however.
Alternative 1 - The County may choose to allow the various drainage
"experts" and property owners to manage their independent drainge needs
without additional County mandated.coordination or controls.
Alternative 2 - The County could adopt engineering design standards such
as stormwater retention within any subdivision regulations that are
adopted.
Alternative 3 -'The County may choose to assign the topic of improved
drainage/wetland management to be studied further by the appropriate
County and State agencies with the intent of developing a county -wide
drainage/wetland plan and policies.
Policy Selection - The County chooses Alternatives 2 and 3.
POLICY STATEMENT/IMPLEMENTATION - A better understanding of drainage and
its many applications throughout the County will be needed before a
definitive County policy statement can be made. However, the general
policy of the County is that existing interested agencies are encouraged
to study this issue further. The District Conservationist will be asked
to coordinate such a study and make recommendations as to specific
policy development needs in 1981.
Zoning
Pender County officials have chosen to proceed with preparation
and adoption of county -wide zoning. The Planning Board is expected to
present an ordinance for consideration to the County Commissioners by
mid-1981.
In developing an approach to county zoning, the Planning Board has
chosen to develop regulations and map the entire County. This is
consistent with the citizen survey responses collected in 1976 whereby
zoning throughout the County was desired by over 80% of the respondents.
Districting only developing areas is possible under N.C. enabling
legislation and some rural counties in the state have gone that route.
Controlling the pace, design and location of development in the face of
increasing development pressures through zoning is a policy statement in
itself.
Implementation - How will zoning be enforced and administered? Zoning
brings with it a large amount of responsibility on the staff, Planning
Board and County Commissioners. Serious consideration toward adding
the necessary personnel to get zoning off to a sound start will be
considered.
Rural Crime
Crime prevention is a community -wide need requiring knowledgeable
cooperation between citizens and law enforcement agencies. Because
population and seasonal housing are on the increase in Pender County,
criminal activities will probably increase as well.
11VA

Alternative 1 - The County may choose to promote more public awareness
of the need to prevent crime via such successful programs as Crime Watch.
Alternative 2 - The County may choose to increase personnel and equipment
to.the Sheriff's Department as the levels of crimes increase.
Policy Selection - The County selects Alternatives 1 and 2.
POLICY STATEMENT - It is County policy to protect its citizens from
criminal activity and the resulting loss of property and lives. Crime
prevention activities will be emphasized with more attention given to
working with community organizations, church groups, and individuals
to step up public awareness of crime prevention techniques.
Implementation - The County Sheriff and town police departments in the
county will be responsible for implementing this policy and over time
reporting crime statistics and crime prevention program successes to the
County Commissioners.
East-West Intracounty Access Improvement
With the increasing development of populations along the County's
coast more demands are placed on shortening the driving distance and
time of travel to central Pender County. The situation was addressed
in the 1976.CAMA Plan objectives, yet no formal proposals or requests
for help have been forwarded to the N.C.D.O.T.
Alternative 1 - The County may choose to leave the problem alone,
allowing the N.C.D.O.T. to eventually address road improvements along
N.C. 210 and N.C. 50/53 as traffic and traffic accidents increase.
After all, North Carolina counties do not have direct responsibility
for roads anyway..
:Alternative 2 - The County may choose to petition the N.C. State Highway
Commission to prepare a thoroughfare plan to address this and other
intracounty transportation issues.
Policy Selection - The County selects Alternative 2.
POLICY STATEMENT - Improved east -west access.is needed in Pender County
for ease and lower cost provision of public services and convenience
to residents and business interests operating in the County.
Implementation - The County Board of Commissioners will inform the
Board of Transportation Commissioner serving Pender County of their
desire to have a sketch thoroughfare plan prepared with particular
emphasis on proposing alternative routes for a new east -west highway
from U.S. 17 to I-40.
Economic Development ,
The County should maintain a position of encouraging a balanced
employment base supporting existing industry (manufacturing, forestry,
farming, etc.) while promoting continued development of industries
'that use and market Pender County resources. A diversified economy fairs
better in times of national economic slow -downs. Increasing area
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.residents' incomes will also result from diversification because higher
skilled labor forces will develop.
Alternative 1 - The County could encourage industrial development anywhere
in the County where adequate land and supporting services could be provided.
The types of industries would not be limited.
Alternative 2 - The County could encourage the location of any type of
industry in or near existing population concentrations.
• Alternative 3 - The County could encourage the location of small, "dry"
(non -water -intensive) industries near existing population concentrations
and along major traffic routes (i.e., I-40 interchanges, U.S. 17, U.S. 421).
Alternative 4 - The County could choose to encourage a diversified
economic base not emphasizing any one segment.
Alternative 5 - The County may choose to emphasize a diversified economic
base with special attention directed at those segments needing additional
help or direction (i.e., fishing, manufacturing).
Policy Selection - The County chooses a combination of Alternatives 3 and 5.
POLICY STATEMENT - It shall be the policy of Pender County to actively
solicit the location of "dry" industries into Pender County. These
industries will be encouraged to locate near existing population
concentrations and along major transportation routes, particularly near
Burgaw and Rocky Point, hopefully taking advantage of I-40 interchanges.
New industries should provide employment which matches the skill levels
and.employment needs of the residents of Pender County.
In addition, the other many "industries" of Pender County will be
promoted in order to maintain a diversified economic base year-round.
Implementation - The County Board of Commissioners through its regular
contacts with and participation in local development promotion with the
Economic Development Commission will make known the above policy.
The Economic Development Commission will be asked to report its activities
periodically to the Board of Commissioners.
U.S 421 - Widening
The existing four -lane section of U.S. 421 in Pender County is a well
designed transportation corridor with limited access. The intersections
with other roads provide opportunities for increased economic development.
The two-lane sections of U.S. 421 are expected to eventually be widened
to four -lane but it is not known whether the entire length in.Pender
County will be limited access. If not, then control of development
(driveways, setbacks, and types of uses) may need to be addressed in the
pending zoning ordinance.
Alternative 1 - The County may choose to discourage the N.C.D.O.T. from
.four-laning the remaining two-lane sections in Pender County so the many
structures fronting there will not be disrupted.
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Alternative 2 - The County may choose to encourage the speedy four-laning
of U.S. 421.
Alternative 3 - The County may choose to ask the N.C.D.O.T. to supply
preliminary highway improvement designs to the Planning Board for review
and comment.
Alternative 4 - The County may choose to control the type of development
along U.S...421.
Policy Selection - The County selects a combination of Alternatives 2, 3 '
and 4.
POLICY STATEMENT - The County encourages the State to four -lane U.S. 421
in order to ensure improved access through western Pender County for local
and through traffic, thereby helping maintain and improve local and
regional economic opportunities. For its part, the County will consider
development policies and regulations that will guide the location and
design of development along U.S. 421.
Implementation - The Board of Commissioners will inform the N.C.D.O.T.
of its policy and ask that they be kept informed of any planning or
programming on this project, so local input may be made prior to final
design. Additionally, the Planning Board will examine this issue when
studying the proposed zoning ordinance and any other plans or regulations
related to controlling development along U.S. 421.
Waterway Access (Public Access to Public Waters)
There presently is not a public access boat ramp on the sound -side
of Pender County. The waterway access study prepared in 1978 for the
County did not pinpoint locations in the County where public access
could_ be sought. Several means are possible for obtaining such access.
Alternative 1 - Commission another study with the specific task
assignment of determining alternate public access points and obtaining
acquisition and development cost estimates.
Alternative 2 - Status quo.
Alternative 3 - Consider adoption of subdivision regulations with design
standards and requirements for either (1) public dedication of waterway
access; or (2) reservation of waterway access and recreation areas for
a specific period during which the County Planning Board and Recreation
Department will have the option to purchase fee simple title to property
or easements in the most favored locations. Consider adoption of a plan
identifying key needed access points to negotiate for dedication when and
if surrounding lands are subdivided or purchase of easements or fee
simple title to'gain access.
Policy Selection - The County selects a combination of Alternatives 1-3.
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POLICY STATEMENT - It is County policy that public access to public water
will be sought as a desirable improvement of water based recreational
activities for County residents and tourists. The County Board of
Commissioners will seek qualified technical assistance in locating possible
access points and examine various funding options for developing facilities.
Implementation - The County Recreation Director will be advised of the
above policy and asked to investigate ways of initiating a plan of
implementation. In addition, the Planning Director and the Planning Board
will explore water access requirements for new shoreline development
as part of any draft subdivision regulations that may be proposed.
Mobile Homes
Two segments of Pender County's housing market will continue to
lead toward more mobile homes locating in the County: 1) large percentage
of low income families and 2) high seasonal second home recreational
usage. How should they be allowed to locate? What can be done to
insure their owners support their fair share of County taxes for public
services required to serve them?
Alternative 1 - Consider additional mobile home parks and single site
placement standards to insure proper set-up and connection to utilities.
..Alternative 2 - Consider mobile home park district regulations to specify
certain areas within the County where mobile home parks will not be
allowed.
Alternative 3 The County may choose to retain existing controls (e.g.,
building.codes, septic tank regulations) with little or no modifications.
Alternative 4 - The..County may choose to adopt zoning regulations to separate
mobile homes from site -built homes.
Alternative 5 - Consider requiring permanent foundations (with underpinning)
of mobile homes and listing them as real property instead of personal
property, thereby stabilizing their value within a neighborhood.
Policy Selection - The County selects Alternatives 1 and 5.
POLICY STATEMENT - Mobile home residents shall not be discriminated against,
and mobile homes may be placed anywhere in the County where other
residential structures are allowed by the proposed zoning ordinance.
However, the County will not interfere with the rights of residential
neighborhood associations or developers from placing restrictive covenants
on their properties forbidding placement of mobile homes. Mobile home
park developers will be required to obtain a special use permit to
develop mobile home parks in order to insure adequate access, design, and
.utility provisions to serve their future residents.
Implementation - The Planning Board is presently studying proposed mobile
home and mobile home park regulations in the draft zoning ordinance.
The, County Planning Board and County Auditor will be askedto explore
further'the idea of requiring permanent foundations for mobile homes
and the property valuation consequences of doing so:
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Subdivision Regulations
Subdivision regulations could be referred to as development insurance
for both the lot or home buyer and local government responsible for
road and utility maintenance. They are a tool for insuring proper
surveying and engineering for drainage, efficient lotting, street
design and numerous other improvements are adequately provided.
They provide an excellent tool for use in giving "fair disclosure" to the
public on what is being bought.
Alternative 1 - The County could choose not to prepare and adopt subdivision
regulations.
Alternative 2 - The County may decide to proceed with preparation and
adoption of subdivision regulations.
Policy Selection - The County selects Alternative 2.
POLICY STATEMENT - It is Pender County's policy that subdivision regulations
become an important land use management tool for insuring future
development is accurately surveyed for recording and engineered with
good planning design principles.
Implementation - Once the Planning Board and County Commissioners complete the
proposed zoning ordinance, the Planning Board and Planning Director will
be responsible for drafting subdivision regulations to fit the development
characteristics of Pender County.
Tax Mapping
Quality tax maps are essential for efficient and equitable tax
assessment and are extremely valuable for land use planning and land
records information systems development.
Alternative 1 - Pender County could decide to continue without tax mapping.
Alternative 2 - Pender County could choose to seek technical and financial
assistance toward obtaining county -wide tax mapping.
Policy Selection - The County selects Alternative 2.
POLICY STATEMENT - It is considered to be in the best interest of Pender
County residents to obtain tax mapping, considered the most accurate land
records information base available to insure equitable land value assess-
ments for taxing levies and to help with land use planning activities.
Implementation - The Planning Director and County Tax Collector will explore
various tax mapping packages and costs with an eye toward presenting
alternative means of achieving cost/effective tax mapping beginning in
fiscal year 1982-83. Their examination should include seeking participation
from the various towns in the County as well. Assistance should be sought
from the State of North Carolina and the North Carolina Property Mappers
Association.
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Flood Plain Zoning
Flood plain zoning regulations are a required element of a complete
and acceptable flood plain management program if county residents are
to remain eligible for flood insurance for their property. The Corps
of Engineers is presently under contract with a mapping firm that will
finish detailed flood hazard area mapping in Pender County in the spring
of 1981. The County Commissioners can expect to be required to adopt
a full set of flood plain requlations within eighteen months. Additional
staff training and possibly more staff will be needed to enforce these
regulations.
y POLICY STATEMENT - Pender County wishes to continue the County's eligibility
under the National Flood Insurance Program because of the need to provide
low cost insurance in the event of a natural flood disaster. The
County Board of Commissioners will continue to cooperate with the Federal
Emergency Management Administration (FEMA) to insure flood plain zoning
is carried our effectively.
Implementation - Local coordination of the flood insurance program
rests with the County Planning Director. The Planning Board will be
responsible for drafting additional flood plain zoning regulations as
necessary.
Development Near Streams
The shorelines of the rivers and sound in Pender County are particularly.
attractive for second home or vacation home developments. These same
shorelines are also desirable for permanent home development. Four
possible problems were discussed earlier concerning development near
streams: 1) cutting off all areas for public access, 2) water pollution
from increased erosion and septic tank effluents, 3) disruption of
wildlife habitat and 4) susceptibility to flooding. These concerns need
to be discussed in light of the beneficial living environment provided to
existing and future residents.
Alternative 1 - The County may choose to discourage development near streams.
Alternative 2- The County may encourage development near streams, but
with development restrictions to address some of the possible problems
listed above.
Alternative 3 - The County may choose to not take a stand to encourage or
discourage development near streams.
Policy Selection - The County selects Alternative 2.
POLICY STATEMENT - It is County policy to allow continued development near
streams provided such development does not severely endanger the
environment and is done with sensitive development principles.
Implementation - The County is presently including site standards for
development in the draft zoning ordinance. Separate policies spelled out in
this chapter address the relationship of subdivision regulations, flood plain
regulations,. erosion control, septic tank regulations, and each relates
directly or indirectly to development near streams.
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Housing
Sound housing is desirable for all County residents, yet the County
government is largely unable financially to undertake entensive redevelop-
ment of substandard housing. New construction and mobile homes are
covered by the N.C. Building Code through enforcement by the County.
Alternative 1 - The County may choose to enact as few regulations as
possible in order that added land development and housing costs are
not adversely increased.
Alternative 2 - The County may choose to continue its efforts at improving
housing conditions via its Community Development Department's activities. r
Alternative 3 - The County may choose to allow for a full range of housing
types and values by not overly limiting residential zoning areas or
through not adopting large lot zoning beyond that required for septic tank
usage or to protect prime agricultural land.
Alternative 4 - The County may choose not to actively influence housing
conditions.
Policy Selection - The County chooses Alternatives 1, 2 and 3.
POLICY STATEMENT - It is County policy to continue actively seeking
improved housing for County residents in substandard housing and to regulate
new housing development only to the point where necessary to protect the
environment, provide safe habitable structures, and provide equal
opportunity in housing choice.
Implementation - The Community Development Director and Pender County
Housing Authority will be responsible for seeking various public and
private funding mechanisms to upgrade housing for the poor. Recently,
50 units of conventional public housing have been applied for and 50 units
of HUD Section 8 existing monies have been approved.
The Planning Board will keep the above policy in mind when proposing
land use regulations.
Lea Island Development
Although privately owned and under limited development, Lea Island
is a fragile natural barrier island with representative maritime plant
species, and outstanding foredune and upper beach plant communities. It
also serves as a primary nesting area for loggerhead turtles and several
rare species of birds.
Alternative 1 - The County may choose to seek improved access and public "
utilities to Lea Island to hasten its development potential.
Alternative 2 - The County may choose to not promote new public access
opportunities or public utilities to the island.
Alternative 3 - The County may continue its land classification of Lea
Island as conservation and apply zoning restrictions in order to limit
its development.
Alternative 4 - The County may choose to informly discuss the development
potential and natural limitations with the owners to convey the County's
concerns over its preservation.
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design criteria for new intersecting roads, etc.
Alternative 3 - Consider zoning of high strip potential roads with design
standards for bff-street parking, driveway design, corner vision clearance,
and setback requirements for new construction.
Policy Selection - The County selects various combinations of Alternatives
1-3.
POLICY STATEMENT - On a limited basis or when widely scattered strip
development is not necessarily detrimental. It is County policy that strip
development of roads shall not be.promoted, however scattered strip
development is not necessarily detrimental and will be tolerated.
Implementation - The Planning Board will take note of the above policy r
in developing zoning, subdivision regulations, and other land use
planning policy recommendations.
Erosion Control Ordinance
Continued development and construction activities means accelerated
erosion will occur in areas even with limited slope.
Alternative 1 - The County could continue to cooperate with the N.C.
Department of Natural Resources and Community Development, assisting
in the identification of new construction projects requiring erosion
control measures under the Sedimentation Erosion Control Act.
Alternative 2 - The County could step up its policing of erosion problems
and reporting them to NRCD.
Alternative 3 - If the County adopts subdivision regulations, preliminary
plats of subdivision could be sent to NRCD for review.
Alternative 4 - The County may adopt a local erosion control ordinance
and enforce it with NRCD's assistance.
Policy Selection - The County chooses Alternatives 1 and 3.
POLICY STATEMENT - Pender County supports the State's efforts to control
erosion caused by development and will assist NRCD to identify cases
for investigation.
Implementation - The Planning Director, District Soil Conservationist
and NRCD will be made aware of the County's policy on the subject. _
Loss of Productive Agricultural Land
Agriculture is of great importance to the County's economic base.
Various means of stopping or slowing displacement of productive agricultural
lands are available to help insure agriculture's future in Pender County
is a good one.
Alternative 1 - The proposed zoning ordinance could include agricultural
zoning to limit development on productive agricultural lands.
Alternative 2 - The land classification map can discourage large scale
development on agricultural lands in rural or conservation classes.
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Alternative 3 - The County may choose to largely allow development throughout
the County without restricting development of productive agricultural lands.
Alternative 4 - The County could choose to actively support farming
interests to use productive agricultural soils for farming, not development.
Policy Selection - The County chooses Alternatives 1, 3 and 4.
POLICY STATEMENT - It is County policy that naturally productive agricultural
lands (prime, unique or important) shall not be developed for other purposes
and development will be steered to other suitable lands.
Implementation - The County will seek assistance from the USDA Soil
Conservation Service to undertake a county -wide soil survey to identify
productive agricultural lands. Where and when specifically identified, and
where development has not already occurred, these soils will be classed
conservation, otherwise agricultural lands as a class will be placed in
the rural classification.
The Planning Board and Planning Director will seek guidance from
others experienced in agricultural land preservation through zoning and other
means to see if their experiences may be of use in the proposed Pender County
zoning ordinance.
Asthetics
People are generally pleased with the mostly clean landscape
that Pender County exhibits and frown when trash and clutter is seen
(see related policy on solid waste).
Alternative 1 - The County could actively seek support of the citizens to
pitch in yearly in a county -wide clean-up campaign and help report
illegal dumping activities to the Sheriff's Department.
Alternative 2 - The County could adopt tasteful sign regulations for
both on premise signs and billboards to reduce sign clutter particularly
near the coast.
Alternative 3 - The County could choose to continue enforcing existing
litter laws.
Policy Selection - The County selects a combination of Alternatives 1, 2 and 3.
_ POLICY STATEMENT - A clean and asthetically pleasing environment is a
' truly unique and greatly important asset to Pender County residents
and visitors. It is County policy that areas cluttered with trash,
junk cars, and signs shall be cleaned up and similar cluttering will
not be tolerated.
Implementation - Civic, church and social groups will be solicited to
gain public support for an annual clean-up campaign. One or more
of these groups may be interested in sponsoring recycling collection
points, too. County litter laws will be enforced and the zoning ordinance
will contain sign controls and junk yard screening provisions.
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Timber Management
Local officials have expressed their understanding of the value of
timber production to the local economy, but they are concerned that
after timber is harvested that there are few industries within the County
who utilize this valuable natural resource. What steps can Pender County
take to ensure Maximum utilization of its forests to the best benefit
of the County?
Alternative 1 - The County may choose to "do nothing" and let the commercial
forest companies handle timber production as they see fit.
Alternative 2 - The County may choose to encourage small land owners who
maintain tracts of forest land to use up-to-date practices so that the
County's forest lands will continue to be of value in the future.
Alternative 3 - The County may choose to encourage the development of
local industries which would utilize the County's timber resources and thus
increase the economic worth of these resources to the County.
Policy Selection - The County selects Alternatives 2 and 3.
POLICY STATEMENT - Pender County encourages commercial forest companies
and private forestland owners to use the most modern timber management
practices. It also encourages the development of new industries within
Pender County which can utilize the local timber harvested in the
production of salable goods.
Implementation - The County Board of Commissioners will ask the N.C. Forest
Service to note this policy and request that they continue to provide
technical assistance to private and corporate owners of forest lands in
up-to-date practices of good forest management. Also, the County Board
of Commissioners will ask the local Economic Development Commission to
consider this policy in its efforts to attract new industry into the
County.
Truck Farming: Marketing of Products
When agricultural products raised in Pender County can also be
processed here the local economy is better off. How can the County maximize
utilization of agricultural production facilities in Pender County?
Alternative 1 - The County may choose to "do nothing" and let farmers, _
their cooperatives, Farm Bureau, and the N.C. Agricultural Extension
service work on improving truck farming and marketing crops.
Alternative 2 - The County may choose to encourage local processing and
locating new markets by pressing for a detailed marketing study.
Alternative 3 - The County could encourage the Economic Development
Commission to seek out manufacturers that can use local agricultural products.
Policy Selection - The County chooses Alternatives 2 and 3.
POLICY STATEMENT - Pender County encourages development of additional local
markets for its agricultural output and development of truck farming opportunities.
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Implementation - The County Commissioners will ask the Economic Development
Commission, Agricultural Extension, and various growers associations
to commission a local processing marketing study for use in recruiting
processing plants. The County's support of improved highway access
to Wilmington and the Piedmont should help improve truck farming
opportunities.
Development Pressures - Intracoastal Waterway
The policy alternatives and policy statement developed under the
topic of "Development near Streams" will apply equally to development
near the ICWW, so additional statements are unnecessary.
Historic Preservation/Archeological Resources
The present and past history are linked largely by the limited
remaining historic structures and archeological sites. How can these
valuable resources be preserved?
Alternative 1 - The County could encourage and support the Pender County
Historic Society's efforts to identify and seek National Register listings
of significant historic structures.
Alternative 2 - The County could choose to not take an active role in
promoting historic preservation and archeological site preservation.
Policy Selection - The County selects Alternative 1.
POLICY STATEMENT - Pender County policy is that preservation of the County's
historic and archeological resources is good for the local economy
and is important to the understanding of how the County has developed.
Implementation - The County Commissioners will express their gratitude
to the Pender County Historic Society for its efforts at preserving
the County's heritage for future generations and pledge support for
obtaining additional National Register nominations. -
Off -Road Vehicles
Given the present lack of hard evidence of environmental damage
occuring as a result of ORV usage in Pender County, further study of
the ORV issue is needed before proper policy questions can be answered.
Implementation - The Planning Board and Planning Director will be charged
with studying the issue and recommending County actions as needed in 1982.
Localized Development Conflicts
Other than mixed use strip development (discussed previously), few
significant localized development conflicts were noted in the Planning
Board's discussions with Ferren Planning Group staff. The Planning Board
and County Commissioners believe that collectively development conflicts
with natural environments and among some uses (i.e., junk yards and
houses) are largely going to be headed off by adoption of the zoning
ordinance. No additional policy statement is needed.
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County -wide Water System
Little interest has been shown by county officials and local residents
in developing a county -wide water system. Certain higher density
areas of the County, however, are in need of improved community
water supplies, such as Maple Hill and clusters of development along
N.C. 210.
Alternative 1 - The County may choose to not develop a county -wide water
system in the next five years. ,
Alternative 2 - The County may choose to commission an update of the 1969
engineering study of the feasibility and costs of initiating a county- r
wide water system.
Alternative 3 - The County may choose to develop special service district
approach for public water supply in areas needing a safe potable water
supply and when industry needing water is planned.
Policy Selection - The County chooses Alternatives 1, 2, and 3.
POLICY STATEMENT - The still largely dispersed rural population of
Pender County and accompanying high cost of developing a county -wide
water system will prevent the development of a system within the five
year planning period, however,an updated engineering study concentrated
on providing limited service to concentrated population areas and
industrial sites is justified.
Implementation - Within the next five years the County Commissioners
will seek assistance from the Farmers Home Administration and EPA for
funding to commission an updated engineering study for targeted areas
to be determined by reference to the dommunity and transition areas on the
Land Classification Map.
Steep Slope Areas
This subject is covered in policy statements under the topic of
"Erosion Control" and no further statements are needed.
Inter -County Cooperation to Solve Common Problems
It shall be the County policy that consultation and cooperation
with other area local governments will be pursued to solve common problems.
An example of where an effort will be initiated along these lines was
addressed under "Seaboard Coastline Railroad Abandonment".
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Areas of Environmental Concern
Protecting fragile natural areas and AEC's is the primary purpose
of the Coastal Area Management Act. Pender County is fortunate to have
significant amounts of these areas. Their protection was listed in the
1976 Citizen Survey as a top priority. The County Commissioners have a
number of ways they can help insure fragile natural habitats containing
rare plant and animal species will be protected.
Alternative 1 - Pender County could through a proposed zoning ordinance
provide regulations and procedures to protect known fragile natural
areas and those subsequently identified.
Alternative 2 - Through its building permit program, the County could notify
developers of AEC locations and the State's AEC Permit Office of pending
development proposals (this is presently being done).
Alternative 3 - The County could choose not to take an active role and let
the State and Federal agencies do what they can to protect these areas.
Policy Selection - The County selects a combination of Alternatives 1 and 2.
POLICY STATEMENT - The residents of Pender County are fortunate to have
pristine natural areas and the AEC's already identified and those that
may yet be identified must be protected to insure future generations
will be just as fortunate. These areas will be placed under the
conservation category on the Land Classification Map.
Implementation - The Planning Board and Board of County Commissioners
are presently in the final stages of reviewing a proposed county -wide
zoning ordinance. Either prior to its adoption or shortly after in 1981
or early 1982, the following section will be publicized as a proposed
amendment to the zoning ordinance:
Prior to issuance of any zoning permit, septic tank installation
permit, zoning change, or conditional use permit, the zoning
administrator and local AEC Permit Officer shall determine
whether the proposed use or structure is located within an area
of environmental concern. This determination shall result from
an on -site investigation and a review of the official AEC overlay
map. If the proposed use or structure is located in an area of
environmental concern, the zoning administrator and local AEC
Permit Officer shall certify the proposed use or structure complies
> with development standards of the State Guidelines for Areas of
Environmental Concern (15 NCAC 7H) prior to issuing any permits.
This zoning provision or one similar to it will be adopted.
Hurricane and Flood Evacuation Plan
The Pender County Board of Commissioners adopted the "fender County
Hurricane Evacuation Plan" March 7, 1977. The plan is on file with the
county's Civil Defense Coordinator in Burgaw. The plan is being updated
and is expected to be re -adopted by the County Commissioners in
September 1981. No further policy statement is considered necessary.
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Nuclear Emergency Evacuation Plan
There is a nuclear plant at Southport, N.C. operated by Carolina
Power & Light Company. The Civil Defense Coordinator's Office in Burgaw
has not developed an evacuation plan in the event of a nuclear emergency,
although the office personnel are aware of emergency -preparedness programs
of counties close to the plant. Such plans are in effect in New Hanover
and Brunswick Counties and mock drills are periodically carried out by
CP & L with cooperation of local and state officials.
The Pender County Civil Defense Coordinator is responsible for
advising Pender County officials of any needed emergency planning.
No future policy statement is considered necessary.
Types of Urban Growth Patterns Desired
Modest growth near existing development is desired by the Planning
Board and County Commissioners and reflects the desires of most County
residents surveyed in 1976. Productive agricultural land, natural
habitat and important timber land are highly prized as well. As mentioned
in other issue discussions and policy statements on these topics,. it is
clear development should be directed in or near existing development in
the county.
Alternative 1 - Pender County could choose to discourage all types of
development, but this would not allow new industry and jobs. Likewise
fulfilling some of the tremendous demand for outsiders to become new
residents must be accomodated.
Alternative 2 - Pender County could choose to allow growth but guide
its types and densities to lands most suited to accomodate growth. This
could be done by adopting county -wide zoning and subdivision reulations..
Alternative 3 - The County could choose to neither encourage nor
.'discourage growth as in the past, with the exception of continuing to
encourage new and expanded manufacturing and other industrial enterprises
to locate in the County.
Policy Selection - The County chooses Alternative 2.
POLICY.STATEMENT - It shall be the policy of Pender County to guide new
growth and redevelopment of old areas through use of modern zoning,
subdivision regulations, and other growth management techniques.
New growth should occur in or very near existing developing areas and away
from productive agricultural lands, natural hazard areas, AEC's, flood
hazard areas and natural wildlife habitat.
Implementation - The County Board of Commissioners will proceed to adopt
the new zoning ordinance for Pender County (expected in the Fall of 1981).
Once this is done, the County Planning Board and Planning Director will
be charged to proceed with the preparations of county -wide subdivision
regulations. These two basic land use regulations will be used to guide
growth in all its valued forms to develop on lands suitable for such purposes.
Available information on flood plains and flood hazard areas, natural
areas, AEC's, and soils will be used to aid in determining the most
appropriate types of uses and densities to be classified on the zoning map.
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Redevelopment of Developed Areas and Creation of New Subdivisions
Pender County officials are very interested in improving living
conditions for residents, taking direct action to establish a Department
of Community Development and participating in the Department of Hbusing
and Urban Development's Community Development Block Grant Program
(3 years). Recent applications have not been funded, however, and Pender
County does not have the resources to undertake extensive redevelopment
programs without federal or state funding. Reference should be made to
the policy on housing continued in this chapter. No additional policy
statements are necessary here.
New subdivision development will be required to absorb as much as
50% of the estimated 4925 housing units project to enter Pender County's
developing areas in the next ten years. Existing platted lots should
accomodate the remaining units.
The County will address new development through creation of a
progressive growth management program. Reference should be made to
other policies in this chapter including: zoning, subdivision regulations,
economic development, mobile homes, strip development, and development
pressures.
Commitment to State and Federal Programs
Pender County has participated in and used funds from state and federal
programs of various types. While state and federal funds for local
programs have diminished in recent years, it is the policy of Pender
County to pursue state and federal funding for local programs. No other
alternatives were considered.
The CAMA Guidelines also require comment by local governments of their
commitment to supporting state and federal programs including erosion
control, public access, highway programs, ect. These issues and policies
addressing them are continued under those subheadings in this chapter and
the preceding ones.
Mineral Resources and Energy Facility Siting and Development
Marl is Pender County's only known mineral resource with a foreseeable
market value. Extensive areas of central and northeastern parts of the
county have more, at or near the surface. The Pender County Environmental
and Growth Alternatives Study.(1978, Pender County Planning Department)
shows these areas in greater detail. An area southwest of Maple Hill and
southeast of Hwy. 53 has the best deposits. There is very little value
in marl, however, and its mining, if carried out, would be limited.
Pender County's policy in mining marl is to allow it in rural
classification areas and under proper permitting by the state's Division
of Environmental Management. No other alternatives were considered
relevant.
The likelihood of an oil refinery of any size locating in the county
is extremely remote because the sound waters and NE Cape Fear River lack
depth and protection for oil tanks or sizable barges. These facilities
will be drawn toward the port facilities at Morehead City and Wilmington.
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Likewise, a coal slurry or stock pile facility would need to locate in
closer proximity to large scale coal fired electric plants or the port
facilities. No policy will be adopted concerning these facilities
because they are not relevant to Pender County.
Public Participation
Public information meetings, newspaper articles and announcements
in the local media of planning board meetings have been used to obtain
public comments about this plan update. The Planning Board is active and
informed, representing a very good cross section of the public (farmer,
forester, commercial fishing, small towns, elderly, etc.) and --they have
shown enthusiasm about developing the recommended policies in this plan.
Alternative 1 The County could choose to limit public participation
in the planning process after completion of this plan, after all, are they
not unsophisticated about planning issues?
Alternative 2 - The County could choose to actively seek public participation
in the planning process because planning activities and public policies
affect Pender County's residents and they will be affected either directly
or indirectly by what is developed in County plans.
Policy Selection - The County selects Alternative 2.
.POLICY STATEMENT - Because planning is important to everyone in the County,
is shall be Pender County's policy to actively seek public involvement
in plans developed for the County.
Implementation - During the preparation of plans, the Planning Board will
hold public information meetings to discuss proposals being made in draft
plans. On a regular basis, it shall be the Planning,Director's
responsibility to advertise Planning Board meetings and the subjects
being discussed. Whenever land use regulations are proposed, the
Planning Board will conduct public forums in publically accessible meeting
rooms in.several areas within the County.
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CHAPTER VI
LAND CLASSIFICATION
a
INTRODUCTION
A land classification system has been developed by the North Carolina
Coastal Resources Commission as a means of assisting in the implementation
of the policies developed within local CAMA Land Use Plans, such as this one.
By showing land classification on a map and describing them in narrative
form, Pender County specified those areas where the policies described
in the last chapter will apply. It should also be noted that the various
land classification also show areas which come under the purview of various
state and federal statutes and regulations. (See "Current Plans and
Policies".) Although certain areas are outlined on the Land Classification
Map, it must be remembered that land classification is merely a tool
to help implement policies and not a struct regulatory mechanism.
The designation of land classes permits Pender County to illustrate
its policy statements as to where and to what density it wants growth to
ccour, and where it wants to conserve natural and cultural resources by
guiding growth.
The land classification system, other land use guides and standards
as well as land use controls (such as zoning) cannot be divorced from
county land use policies. The importance of explicitly expressing those
policies cannot be overemphasized if the county land use plan is to
reflect anything more than much text and graphics. Land is not being
made, only converted from one use to another.
Because land is a limited resource a public guide for its use can prove
to be one of the more significant public policies that the County can have.
What is needed to form the basic elements of the land use plan that will
guide how conversion will occur when it is necessary?
a. An estimation of future land needs for various uses within a
specific future time period, say five years. This was examined
in Chapters II, II, and IV.
b. Location of growth areas is presented in this chapter via the
land classification map.
c. Development of policy guidelines or standards is presented in
two ways-- the written policies in Chapter VI and the land
classification system presented in this chapter.
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Each of these elements may be further refined thusly:
a. How much land will be needed within the planning period? This
was determined in Chapter IV by obtaining:
..Population projections
..Development land peeds to accommodate growth
..Available and suitable land locations
b. Determining land classifications
..Which areas should be excluded from development (eg., conservation
class and conserving land for rural purposes)?
..Which are the best lands to develop considering environmental,
economic, energy, and social consequences?
..What development density is most appropriate (e.g., rural,
community, transition, developed) considering ability to
provide orderly and cost effective public services? The
proposed county zoning ordinance further details residential,
commercial, and industrial land use density by setting minimum
lot size standards --largely tied in with septic tank regulations.
LAND CLASSIFICATIONS - DEFINED
There are five broad classifications within the land classification
system. These are used by all 20 coastal counties. They are defined
as follows:
Developed Land - Areas classified as developed include those lands already
developed for urban purposes with a density at or approaching 500 dwelling
units per square mile. These areas usually have already been provided with
typical urban services (i.e., public water,.sewer, recreational facilities,
police and fire protection)..
:There are no areas within the planning -jurisdiction of Pender County which
meet both the density and the public urban services criteria as stated in
the -above. definition. Therefore, no developed lands are shown on the
Land Classification Map. The only developed lands in the County are located
within'the planning jurisdictions of the Town of Burgaw, Surf City and
Topsail Beach. Reference should be made to the Land Classification Map
included in'this LAMA Land Use Plan.Update (1981).
Transition Land - Land classified as transition are those developable lands
which will be needed to meet anticipated population and economic growth.
These areas must either be served or be readily served by public water,
sewer and other urban services including public streets, and be generally ►~
free of severe physical limitations for urban development. Lands classified
as transition are the'only areas which would be under active consideration
by Pender County for intensive urban development requiring urban services.
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These are the areas where detailed land use and public investment
planning will occur. State and federal expenditures on projects
associated with urban development, such as water, sewer, urban streets,
etc. would be guided to these areas by the County.
The designation of transition classification of areas within the planning
jurisdiction of Pender County are shown on the Land Classification Map.
The narrow strip running along N.C. 50 from the Surf City planning
jurisdiction for roughly 1,000 feet inland is proposed to receive
public sewer service in the "201" Facilities Plan being prepared for
~ Onslow County, Topsail Beach, Surf City, portions of Topsail Island
and Pender County along N.C. 50. This small area therefore is shown in
the transition classification.
Community Land - Lands classified as community are those areas within
the planning jurisdiction needed to provide for clustered land development
to help meet housing, shopping, employment and public service needs within
the rural areas of the county. These areas are characterized by small
groupings of mixed land uses, such as residences, small stores, churches,
school, etc., which are suitable for small clusters of rural development
not requiring public sewer service.
The areas so designated in Pender County are shown on the Land Classification
Map and include the small communities of Willard, Currie, Long
Creek, Rocky Point, Penderlea, and Maple Hill, In addition, the general
area of Hampstead and Scotts Hill from U.S. 17 to the sound are included
with more land area than the other crossroads communities combined.
Both of these coastal community areas are rapidly developing with a
mixture of mobile homes and planned residential communities. Private
water systems and package sewage treatment systems serve several -of the
developments.
Public sewer systems are unlikely to be developed in the communities
listed because of low densities and the high public cost involved and
none have the minimum of 500 dwelling units per square mile needed for
transition classification. The Pender County Board of Commissioners
do not anticipate participation in any program to promote development
of public sewer systems in areas classified community, density in these
areas should remain low. However, if chronic health problems resulting
from malfunctioning on -site sewage disposal systems occurs within.a
community area, the County Commissioners will examine the County's
responsibility for assisting existing residents with adequate public
sewerage systems.
Rural Land -Lands classified as rural are all other agricultural and
forested areas which are not classified as either transitional, community
or conservation. These lands are best suited for agriculture, forestry
management and other low intensity uses. Small subdivisions with no
more than 25 one-half acres or larger lots may be located within "rural"
areas where urban services are not required and where natural resources
will not be permanently impaired. By far the greatest amount of Pender
County is classified as rural. Areas classified as rural are shown on
the Land Classification Map. Most "development" within rural classified
land occurs as scattered housing sites, churches, and crossroads
service station/stores along paved state roads.
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Conservation Land -Lands classified as conservation are those lands which
contain: major wetlands, wooded swamps; essentially undeveloped shorelands
that are unique, fragile or hazardous for development; necessary wildlife
habitats; publicly owned water supply watersheds and aquifers and forest
lands that are undeveloped and will remain undeveloped for commercial
purposes.
While lands classified as conservation are generally not considered suitable
for urban development, there are certain uses which may be permitted. It
must be pointed out that because of the small scale of the Land
Classification Map shown in this document, there may be small land parcels
of several acres that do not meet the criteria of the conservation
classification and should not be considered such. Therefore, determination
of whether or not a certain parcel of land meets this classification should
be made by determining that it is not: 1) in the flood plain of a
continuously flowing stream of water; 2) on soils which have severe limitations
for septic tanks, building foundations or poor drainage; 3) in an area
considered to be an unique natural or cultural resource or which has been
classified as an Area of Environmental Concern (AEC) by the N.C. Coastal
Resources Commission and which would suffer irrepairable damage as a
result of development and/or in areas which would otherwise be hazardous
to developments, or which would be detrimental to the surrounding environment.
These determinations will be made on a case -by -case basis, should they arise.
The Planning. Board will have the responsibility of making these determinations
with the advice and assistance of the local Health Department, Soil
Conservation Service and the Office of Coastal Management. References will
be made to the most recent detailed soils analysis, flood plain studies
and local, state and federal regulations. .
Summary
All land in Pender County has been classified in this chapter and on
the Land Classification Map. These classifications will remain in effect
until such time as this document is updated (roughly 10 years from the
date of publication). The land classification and the other parts of this
study will be used in making decisions regarding future development
proposals. It will also be used by state and federal agencies in making
determinations on funding requests made by the County or municipalities
therein. Should a major event take place during the next five years which
has not been anticipated (i.e., location of a major industry, discovery
of a major mineral deposit, etc.) as part of this study, application for
funds to update this document will be sought.in order to maintain its
validity and utility as a local guide for development decision -making. ,
88