1992 Land Use Plan-1993

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TOWN OF ATKINSON
1992 LAND USE PLAN
PREPARED FOR
THE TOWN OF ATKINSON, NORTH CAROLINA
BY
HOLLAND
PLANNERS, INC.
Adopted by the Atkinson Board of Commissioners: November 19, 1992
Certified by the Coastal Resources Commission; January 29, 1993
The preparation of this document was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through funds provided by the Coastal Zone Management Act of 1972,
as amended, which is administered by the Office of Ocean and
Coastal Resource Management, National Oceanic and Atmospheric
Administration.

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TOWN OF ATKINSON, NORTH CAROLINA
1992 LAND USE PLAN
PREPARED FOR
THE TOWN OF ATKINSON, NORTH CAROLINA
BY
HOLLAND CONSULTING PLANNERS, INC.
Adopted by the Atkinson Board of Commissioners: November 19, 1992
Certified by the Coastal Resources Commission: January 29, 1993
The preparation of this document was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through funds provided by the Coastal Zone Management Act of 1972,
as amended, which is administered by the Office of Ocean and
Coastal Resource Management, National Oceanic and Atmospheric
Administration.

TOWN OF ATKINSON, NORTH CAROLINA
1992 LAND USE PLAN
TABLE OF CONTENTS
Page
SECTION I: ANALYSIS OF EXISTING CONDITIONS
A.
ESTABLISHMENT OF INFORMATION BASE
I-1
B.
POPULATION AND HOUSING
I-3
1. Population
I-3
2. Housing Characteristics
I-4
C.
ECONOMY
I-7
D.
EXISTING LAND USE
I-9
1. General Patterns of Land Use
I-9
2. Land Use Incompatibility Issues
I-9
3. Development Potential
I-10
4. Existing Ordinances and Land Use Controls
I-11
5. Effectiveness of the 1987 Land Use Plan
and Policies
I-13
E.
DEVELOPMENT CONSTRAINTS: PUBLIC FACILITIES
I-14
1. Water Supply
I-14
2. Sewage Disposal
I-14
3. Drainage
I-14
4. Schools
I-15
5. Solid Waste Disposal
I-15
6. Administration
I-16
7. Police
I-16
8. Fire
I-16
9. Transportation
I-16
10. Electrical Distribution
I-16
11. Emergency Rescue
I-17
12. Recreational Facilities
I-17
F.
DEVELOPMENT CONSTRAINTS: LAND SUITABILITY
I-18
1. Topography/Geology
I-18
2. Flood Hazard Areas
I-18
3. Soils
I-18
4. Man-made Hazards/Restrictions
I-18
5. Fragile Areas
I-19
6. Areas of Resource Potential
I-19
SECTION II: PROJECTED LAND DEVELOPMENT ANALYSIS
A. PROJECTED DEMAND FOR DEVELOPMENT
1. Population and Economic Growth II-1
2. Future Land Need II-1
3. Community Facilities Needs II-2
B. REDEVELOPMENT ISSUES II-3
C. INTERGOVERNMENTAL COORDINATION AND IMPLEMENTATION II-3

SECTION III: TOWN OF ATKINSON LAND CLASSIFICATION SYSTEM
SECTION IV: TOWN OF ATKINSON POLICY STATEMENTS
A. RESOURCE PROTECTION POLICY STATEMENTS
1. Soils
2. Stormwater Runoff
3. Wetlands
4. Groundwater/Protection of Potable Water Supplies
5. Man-made Hazards
6. Solid Waste Disposal
7. Cultural/Historic Resources
8. Industrial Impacts on Fragile Areas
9. Package Treatment Plant Use
B. RESOURCE PRODUCTION & MANAGEMENT POLICIES
1. Recreation Resources
2. Productive,Agricultural Lands
3. Productive Forest Lands
4. Off -Road Vehicles
5. Residential, Commercial and Industrial/Development
Impacts on Resources
C. ECONOMIC AND COMMUNITY DEVELOPMENT POLICY STATEMENTS
1. Planning and Regulation of Development
2. Types and Location of Planned Development
3. Water Supply
4. Sewer System
5. Solid Waste Disposal
6. Storm Drainage System
7. Transportation
8. Law Enforcement
9. Recreation
10. Tourism
11. Redevelopment of Developed Areas
12. Energy Facility Siting and Development
13. Land Use Trends
14. Storm Hazard Mitigation, Post -Disaster Recovery,
Evacuation Plans
D. CONTINUING PUBLIC PARTICIPATION
SECTION V: RELATIONSHIP OF ATKINSON POLICIES AND
LAND CLASSIFICATIONS
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LIST OF TASLBS
Page
Table 1: Total Population and Percentage Change
Town
of
Atkinson, Pender County, North Carolina
I-3
Table
2:
Population Characteristics by Age Groups,
Town
of
Atkinson - 1980, 1990
I-3
Table
3:
Percentage Change in Population by Sex
Town
of
Atkinson - 1980,1990
I-4
Table
4:
Racial Composition, Town of Atkinson
1980,
1990
I-4
Table
5:
Housing Summary - Town of Atkinson, 1980,'1990
I-5
Table
6:
Labor Force Status, Town of Atkinston - 1990
I-7
Table
7:
Mean Household Income, Median Per Capita Income
Town
of
Atkinson, Pender County, North Carolina - 1989
I-7
Table
8:
Employed Persons by Industry Type
Town
of
Atkinson - 1990
I-8
Table
9:
Poverty Status - Town of Atkinson - 1990
I-8
Table
10:
School Capacity for Town of Atkinson - 1991
I-15
LIST OF MAPS
Map 1: Existing Land Use
Map 2: Land Classification

I , ,
' SECTION I: ANALYSIS OF EXISTING CONDITIONS

SECTION I: ANALYSIS OF EXISTING CONDITIONS
A. ESTASLISSNENT OF INFORMATION SASE
This 1992 sketch level Land Use Plan Update for the Town of
Atkinson is prepared in accordance with requirements of the North
Carolina Coastal Area Management Act (CAMA). Specifically, this
document complies with Subchapter 7B, "Land Use Planning
' Guidelines," of the North Carolina Administrative Code, as amended,
November 1, 1989.
' The land use plan serves to guide the development of a community by
addressing issues and adopting policies that pertain to that
particular community. Specifically, the land use plan should
provide the following:
1) an analysis of existing conditions;
2) a projected land development analysis;
' 3) a summary of public interests and participation;
4) a land classification system;
5) a detailed section on policy statements; and
6) an explanation of the relationship of the policies to the
land classifications.
The Atkinson sketch land use plan update contains a summary of data
' collection and analysis, an existing land use map, a policy
discussion, and a land classification map. It should be noted that
the policy section of the plan is the most important part of the
document. State and federal agencies will use the local land use
policies in making project consistency, funding, and permit
decisions. The 7B guidelines require that the following issues
must be addressed in the plan:
1) Resource Protection
2) Resource Production and Management
3) Economic and Community Development
4) Continuing Public Participation
5) Storm Hazard Mitigation, Post -Disaster Recovery and
Evacuation Plans
Listed below are some of the sources and documents utilized during
preparation of this Land Use Plan:
-- Pender County 1987 Land Use Plan Update
-- Town of Atkinson 1987 Sketch Level Land Use Plan Update
-- USDA, Soil Conservation Service, Pender County
-- NCDOT, Planning and Policies Section
-- Town of Atkinson Staff
-- Pender County School System
-- North Carolina Division of Archives and History
-- Town of Atkinson Zoning Ordinance
-- N.C. State Data Center, Office of State Planning
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-- Town of Atkinson Subdivision Ordinance
-- North Carolina Division of Community Assistance
-- North Carolina Division of Coastal Management
-- North Carolina Department of Economic and Community
Development
-- Town of Atkinson Open Space and Recreation Plan
-- Town of Atkinson Ordinance
These sources were supplemented by "windshield" surveys conducted in
October and November, 1991, to obtain data on existing land use
patterns and housing conditions.
I-2

B. POPULATION AND HOUSING
1. Population
According to census figures, Atkinson had a total population of
275 persons in 1990. Inconsistent with the overall growth trend of
Pender County and the State of North Carolina, Atkinson had an
overall decrease in population of -15% during the twenty year
period from 1970 to 1990. The county experienced a 58% population
increase during this period, while the state experienced a 13%
increase. See Table 1 for comparative population information.
Table 1
Total
Population and Percentage Change
Town of Atkinson,
Pender County, North
Carolina -
1970
to 1990
Population
Percentage
Increase
1970
1980 1990
'70-'80
80-'90
'70-'90
Atkinson 325
306 275
- 5.8
-10.1
-15.4
Pender County 18,149
22,215 28,855
22.4
29.9
58.9
North Carolina 5,082,059
6,040,592 6,628,637
15.7
12.7
13.4
Source: NC State Data Center, Office of State Planning
a) Composition and Age
Since 1980, the median age of Atkinson's population has
increased. The town's percentage of population over 65 years of
age was approximately 19% in 1990, compared to 14% for Pender
County and 12% for the state. In addition, there has been a
significant decrease in the 25-34 year old age group from 1980 to
1990, approximately 8%. Table 2 provides detailed information on
population characteristics by age group.
Table 2
Population
Characteristics by Age
Group
Town
of Atkinson -
1980, 1990
1980
1990
T of
% of
Age
Number
Total
Number
Total
Under
5
years
12
3.9%
11
4.0%
5 -
14
years
43
14.1%
35
12.7%
15 -
24
years
43
14.1%
41
14.9%
25 -
34
years
47
15.4%
23
8.4%
35 -
44
years
28
9.2%
47
17.1%
45 -
54
years
43
14.1%
27
9.8%
55 -
64
years
39
12.7%
39
14.2%
65 and
over
51
16.7%
52
18.9%
TOTAL
306
100.0%
275
100.0%
Source: NC State Data Center, Office of State Planning
I-3

11
From 1980-1990, the city's male population increased by 2%,
while the female population decreased by 2%. There is currently a
48%/52% male/female ratio (see Table 3).
Table 3
Percentage Change in Population by Sex
Town of Atkinson - 1980, 1990
1980
% of
Number Total
1990
% of
Number Total
11
1
1
Male 140 46% 131 48%
Female 166 54% 144 52% '
Total 376 100% 275 100%
Source: NC State Data Center, Office of State Planning
Atkinson's white population decreased from 288 persons to
244 persons, approximately 15%, from 1980 to 1990. The black
population increased from 18 persons to 31 persons during the same '
period, a 72% increase. No Hispanics or individuals of Asian
descent were enumerated in Atkinson during the 1990 census. Table
4 provides detailed information on racial composition in Atkinson. t
Table 4
Racial Composition
Town of Atkinson - 1980, 1990 '
1980 1990
% of % of ,
Number Total Number Total
White 288 94.1% 244 88.7%
Black 18 5.9% 31 11.3% '
Other 0 0 % 0 0 %
Total 307 100.0% 275 100.0%
Source: NC State Data Center, Office of State Planning '
The population of Atkinson has decreased by roughly 10%
from 1980 to 1990. The elderly population has increased, while the
25-34 year old age group has decreased. This may indicate that the
younger, "labor force age" populace is relocating closer to areas
with more industrial possibilities, and that Atkinson is becoming
more of a retirement community.
Housing Characteristics
Since 1980, there have been five
Atkinson -- a residential construction
In 1980, only 8% of the total housing
to approximately 16% in 1990.
I-4
houses constructed in
growth rate of only 3.7%.
units were vacant, compared ,

Only 3.5% of Atkinson's housing is less than ten years old,
while 45% is 40 or more years old. The great majority of housing
units in Atkinson are single-family conventional structures;
however, the number of mobile homes has increased significantly
since 1980.
Table 5
Housing Summary
Town of Atkinson - 1980, 1990
1980
1990
% of
% of
Number
Total
Number
Total
TOTAL UNITS
136
100.0%
141
100.09-
Tenure and Vacancy
Occupied
125
91.9%
119
84.4%
Owner Occupied
103
75.7%
98
69.5%
Renter Occupied
22
16.2%
21
14.9%
Vacant Units
11
8.1%
22
15.6%
For Rent
0
-
3
2.1%
For Sale
0
-
5
3.5%
For Seasonal/Occasional
Use 0
-
1
.7%
For Migrant Workers
0
-
0
-
Other Vacant
11
8.1%
12
8.5%
Condition and Age
0 - 9 years old
22
16.2%
5
3.5%
10-19 years old
18
13.2%
22
15.6%
20-29 years old
32
23.5%
18
12.8%
30-39 years old
26
19.1%
32
22.8%
40-49 years old
38
27.9%
26
18.4%
50 or more years old
38
26.9%
Lacking complete bathroom
facilities
10
7.0%
Lacking complete kitchen
facilities
5
3.5%
Lacking complete heating
equipment
2
1.4%
Type
Single family Detached
121
89.0%
112
79:4%
Single family Attached
2
1.5%
1
.7%
Multi -family
2 to 4 units
2
1.5%
1
.7%
5 or more units
4
2.9%
1
.7%
Mobile Home
7
5.1%
23
16.3%
Source: NC State Data Center, Office of State Planning
In January, 1992, the town's planning consultant performed a
windshield survey of the existing housing stock in Atkinson to
provide the town with a general idea of whether or not the town
might qualify for a housing rehabilitation grant from the North
Carolina Division of Community Assistance. Based on a survey of
I-5

135 units, 59, or 43%, have exterior conditions that would qualify
them as "substandard" under DCA grant guidelines. The advanced age
of many of the structures surveyed suggests that interior items
such as plumbing, electrical wiring, and heating systems are also
substandard on a high percentage of the houses in Atkinson. There
are also a number of substandard/abandoned commercial structures
and outbuildings in the town; some of these should be demolished
and cleared to improve community appearance and eliminate safety
hazards. The town proposed adoption of an abandoned structures
ordinance and minimum housing code in its 1987 land use plan. The
town included a chapter on building codes in its 1989 town
ordinance which allows the town to condemn unsafe structures, but
has not yet adopted a minimum housing code.
I-6

C. BCONOMY
The Town of Atkinson has a healthy and diverse local economy. In
t 1989, only seven, or 4.1%, of the people active in the labor force
were unemployed. There were 277 persons eligible to be included in
the labor force. Of that total, 107, or approximately 38%, were
not active in the labor force. They were either disabled, retired
by choice, or not seeking employment. See Table 6 for additional
labor force data.
Table 6
'
Labor
Force Status
Town of
Atkinson -
1990
Male
Female
Total
Labor Force
Armed Forces
0
0
0
'
Civilian Labor Force:
Employed
85
78
163
Unemployed
5
2
7
Not in Labor Force
41
66
107
TOTAL
131
146
277
Source: NC State Data Center, Office of State Planning
In 1989, the Town of Atkinson's mean household income was below
that of Pender County and North Carolina. See Table 7.
Table 7
Mean Household Income, Per Capita income
Town of Atkinson, Pender County, North Carolina - 1989
Mean House- Per
hold Income Capita Income
Town of Atkinson $27,708 $10,963
Pender County 29,447 11,460
North Carolina 33,242 12,885
Source: NC State Data Center, Office of State Planning
Approximately 23% of Atkinson's employed persons are employed in
the manufacturing industry. Because of a lack of manufacturing
activity in Atkinson, workers must commute to other areas for work.
Wholesale and retail trade also account for a large percentage of
employed persons' occupations. The remainder of employment
activity is evenly distributed among industry types.
Based on a windshield survey performed in January, 1992, there are
22 active commercial businesses located in Atkinson, including one
bank, one accounting firm, two auto dealers, one game room, two
restaurants, one grocery, two convenience stores, one garage, two.
paint and body shops, and nine miscellaneous retail establishments
including hardware stores, video centers, etc. This is indicative
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of an unusually high level of commercial/retail activity for a town
with a population of less than 300 individuals. Table 8 provides
detailed information on employment by industry.
Table 8
Employed Persons by Industry Type
Town of Atkinson - 1990
Occupation
Agriculture, forestry, fisheries, mining
Construction
Manufacturing:
Nondurable goods
Durable goods
Transportation
Communication, other public utilities
Wholesale trade
Retail trade
Finance, insurance, and real estate
Business and repair services
Personal, entertainment, and recreational services
Professional and related services:
Health services
Educational services
Other professional and related services
Public administration
TOTAL EMPLOYED
Number % of
Employed Total
5 3.1%
10 6.1%
30
18.4%
7
4.3%
10
6.1%
0
0.0%
13
8.0%
32
19.6%
12
7.4%
12
7.4%
1
0.6%
10
6.1%
10
6.1%
6
3.7%
5
3.1%
163
100.0%
Source: NC State Data Center, Office of State Planning
The number of individuals with incomes below the poverty level can
be an important economic indicator for a small community such as
Atkinson. In 1990, only 4.5% of persons enumerated for poverty
status reported having incomes below 75% of the poverty level.
Approximately 62.7% of the persons enumerated for poverty status
had incomes 200% of poverty level and above. See Table 9.
Table 9
Poverty Status
Town of Atkinson - 1990
% of
Income Level
Individuals
Total
Income
below 75% of poverty
level
15
4.5%
Income
between
75 and 124%
of poverty level
46
13.7%
Income
between
125 and 149%
of poverty level
50
14.9%
Income
between
150 and 199%
of poverty level
14
4.2%
Income
200% of
poverty level
and above
210
62.7%
Total
335
100.0%
Source: NC State Data Center, Office of State Planning
BE

D. EXISTING LAND USE
1. General Patterns of Land Use
The Town of Atkinson has remained essentially unchanged in
terms of land use patterns since 1987. The developed land uses
include single-family urban residential, agricultural residential,
and small single -unit retail and commercial development, inter-
spersed with several public and institutional buildings. This
development is located north and south of N.C. 53, which splits the
town along a west to east axis into two approximately equal
portions. Almost all commercial and institutional development is
located on, or within one block of, N.C. 53 (Church Street). The
town's residential areas extend from the east to west town limits,
and approximately % mile north and south of N.C. 53, with isolated
residential units located closer to the northern or southern town
limits on Sunset Street, First Avenue, Rankin Street, and Fourth
Avenue. Many of these more isolated residential units are located
adjacent to productive agricultural land. No town -maintained
streets or state highways extend from the northern to southern town
limits.
There has been a slight increase of five residential units in
Atkinson since 1980, which has had no effect on the general pattern
of residential development. Commercial activity has increased
since 1987; however, this activity has been.primarily located along
the traditional N.C. 53 business district and has not been
generally incompatible with residential use.
Institutional uses in Atkinson include the Atkinson Middle
School (located north of Henry Street), the town hall, post office,
ABC store, three churches, a Boy Scout meeting hall, a Masonic
lodge, and the Region P Head Start center.
There is no manufacturing, wholesale distribution, or other
industry located within or adjacent to the Town of Atkinson.
Approximately 75% of the land within the town limits is open space
consisting of idle or productive farmland (primarily located east
of First Avenue) and woodland (primarily located west of First
Avenue). This open space occupies virtually the entire periphery
of the town, with the entire southern 40% of the town remaining
basically undeveloped except for areas of productive farmland.
2. Land Use Incompatibility Issues
Due to the lack of heavy industry, the absence of defined
fragile areas, a small population, and the generally rural residen-
tial character of Atkinson, there are few significant land use
incompatibility issues facing the town in 1992.
The majority of commercial buildings are located along a
two -block section of N.C. 53 that is devoid of residential develop-
ment. The remaining portions of N.C. 53 consist primarily of
I-9

single-family residences interspersed with commercial and institu-
tional structures in isolated locations, a mix that does not evoke
the "strip" label attached to the main street in many small towns
in eastern North Carolina. Although there are existing commercial
establishments in a few locations where residential development is
the predominant land use, the adverse impacts appear to be minimal.
The town's recently adopted zoning ordinance will hopefully elim-
inate major residential/commercial land use incompatibility
problems.
Most of the land to the west of First Avenue in Atkinson is
open woodland, some of which is owned by Boise Cascade Corporation.
The possibility of a commercial forestry operation starting up in
Atkinson is a source of concern to town residents, primarily due to
the truck traffic, noise and nuisance value associated with a
logging operation. Logging is perceived by the town as completely
incompatible with preservation of the town's quiet residential
character, and the town should consider revision of its zoning
ordinance to buffer itself from the impacts of logging operations.
The only other significant land use incompatibility issue is
potential.residential or commercial development encroaching on
productive farmland, which the town has stated is undesirable in
terms of adverse impact upon resource potential and preservation of
the town's agrarian character. The town's zoning ordinance has
mandated low density residential development in established produc-
tive agricultural areas as well as in open space areas suitable for
agriculture.
An issue that is more of a zoning and building code issue than
a land use incompatibility issue is the increase in mobile home
development in Atkinson since 1980. The town has attempted to
address this issue through standards for mobile home size,
construction and placement in its zoning ordinance. However, the
ordinance does not specifically prohibit mobile homes in any of the
established residential zones.
Development Potential
There are numerous vacant lots in the central, more developed
area of Atkinson still available for commercial or residential
development. This will positively impact Atkinson's desire to
remain a commercial center for the surrounding rural areas, as well
as a bedroom community for salary workers who are employed else-
where in Pender and New Hanover counties. Additionally, many
peripheral areas of the town zoned rural agricultural are available
for lower density residential and institutional or recreational
use. There is also abundant undeveloped open space, both wooded
and cleared, available for additional farming and agriculture -
related commercial activity.
The economic development potential of Atkinson is somewhat
limited by the lack of a town sewer system. However, the lack of a
sewer system does not appear to be a significant limitation to the
low -density rural residential type of development currently taking
place in the town.
I-10

Existing Ordinances and Land Use Controls
In 1989, the Town of Atkinson adopted a town ordinance, zoning
ordinance, subdivision regulations, and a CAMA-funded recreation
and open space plan. In addition, in 1987 the town prepared and
adopted an update for the 1976 land use plan. The plan was a
"sketch" level plan. All of these documents have been most effec-
tive in allowing the town to implement and enforce the land use
policies included in the town's 1987 land use plan. Copies of
these documents are available at the town hall for public review.
The following summarizes each document:
1987 Town of Atkinson Land Use Plan Update
The 1987 Atkinson land use plan was prepared to comply with
the 15A NCAC 7B CAMA planning guidelines. Preparation of
the document was aided by a town -wide citizen attitude
survey. A total of 150 questionnaires were distributed and
69 people responded. The plan provided policy statements
dealing with resource protection, resource production and
management, economic and community development, and
continuing public participation. Some of the more
significant concerns addressed by the policy statements
included the following: groundwater protection,
preparation of a town zoning ordinance, elimination of
substandard buildings, provision of recreational programs,
provision of adequate police protection, and elimination of
storm drainage problems.
1989 Town of Atkinson Zoning Ordinance
The Town of Atkinson zoning ordinance was adopted for the
following reasons: "Pursuant to the authority conferred by
__Part 3, Article 19, Chapter 160A of the General Statutes of
North Carolina, and for the purposes of lessening conges-
tion in the streets; to secure safety from fire, panic, and
other dangers; to promote health and the general welfare;
to provide adequate light and air; to prevent the over-
crowding of land; to avoid undue concentration of popu-
lation; and to facilitate the adequate provisions of
transportation, water, sewerage, schools, parks, and other
public requirements, in accordance with a comprehensive
plan ..."
' The ordinance established the following zoning districts:
R-15 single family residential, RM-15 multi -family resi-
dential, C-1 office and related commercial, C-2 general
commercial, and RA rural/agricultural. Atkinson prepared
the ordinance with the assistance of a CAMA grant. The
ordinance is enforced by the Atkinson Planning Board and
Board of Aldermen.

1989 Town of Atkinson Subdivision Regulations
The Town of Atkinson subdivision ordinance was adopted to
accomplish the following purpose: . to establish
procedures and standards for the development and subdi-
vision of land within the territorial jurisdiction of the
Town of Atkinson. It is further designed to provide for
the orderly growth and development of the Town of Atkinson;
for the coordination of streets and highways within
proposed subdivisions with existing or planned streets and
highways and with other public facilities such as water,
sewer and drainage lines; for the dedication or reservation
of recreation areas serving residents of the immediate
neighborhood within the subdivision and of rights -of -way or
easements for street and utility purposes; and for the
distribution of population and traffic in a manner that
will avoid congestion and overcrowding and will create
conditions essential to public health, safety, and the
general welfare. This ordinance is designed to further
facilitate adequate provision for water, sewerage, parks,
schools, and playgrounds, and also facilitate the further
resubdivision of larger tracts into smaller parcels of
land."
The ordinance is enforced by the Atkinson Planning Board
and Board of Aldermen. A CAMA grant provided funding to
prepare the ordinance.
1989 Town of Atkinson Recreation and Open Space Plan
Based on the recommendations of the 1987 CAMA land use
plan, the Town of Atkinson applied for and received a CAMA
grant to prepare a comprehensive recreation and open space
plan. The plan surveyed existing facilities, established
recreation standards, recommended improvements to existing
facilities, and recommended historic preservation activi-
ties. The Board of Aldermen is responsible for imple-
menting the plan.
1989 Town of Atkinson Town Ordinance
With funding provided by a CAMA grant, the Town of Atkinson
adopted a Code of General Ordinances in June, 1989. The
code includes all town rules and regulations governing the
following areas: legislative; ordinances; officers and
employees; budget and fiscal control; elections; police;
obstructing streets and sidewalks; use and cleanliness;
parks and utilities; traffic regulations; health protection
and disease protection; storage, collection, transportation
and disposal of refuse; privies - septic tanks; business
and trade; disorderly conduct and public nuisances;
animals; building codes; mobile homes; and yard
regulations.
I-12

5. Effectiveness of the 1987 Land Use Plan and Policies
Atkinson has been very effective in implementing the policies
outlined in its 1987 CAMA land use plan. The policies included in
that plan focused on preserving Atkinson's rural residential
character while encouraging moderate commercial and residential
development. To aid in accomplishing this, the town has adopted a
zoning ordinance, subdivision regulations, a town ordinance, and a
recreation plan since 1987. The Board of Aldermen has also
appointed a planning board to guide the governing body through the
land use planning process. Atkinson has successfully addressed its
most severe drainage problem, which was identified as the town's
most pressing public facilities need in the 1987 land use plan.
I-13

E. DEVELOPMENT CONSTRAINTS: PUBLIC FACILITIES
1. Water Supply
The Town of Atkinson is supplied water by individual wells.
There are no central water systems within the town. Adequate water
supply has never been a problem for Atkinson; however, protection
of available groundwater resources was an issue addressed by a
policy statement in the 1987 land use plan, and the town drafted a
zoning ordinance and subdivision regulations in 1989 to prevent
future development from contaminating groundwater resources. The
lack of a municipal water system, while noted as an economic devel-
opment concern in the 1987 land use plan, is not viewed as a major
obstacle to commercial or industrial development by the town, and
there are no plans to pursue a central water system during the
planning period.
Sewage Disposal
There is no central sewage system or package treatment plant in
Atkinson. The entire town relies on individual septic tanks for
disposal of sewage. Sewage disposal has not been a major capital
improvements issue for the town in the past; however, there have
been several incidents involving substandard and failing septic
tanks in the community during recent years. Also, the Pender
County Health Department has been stricter with regard to septic
tank permitting in the past five years. Lack of a public sewer
system is the most significant obstacle to additional residential
or commercial development, and obviously industrial development, in
Atkinson. The town included a policy statement concerning the need
for a town sewer system to prompt local economic development in its
1987 land use plan.
Drainage
Drainage was a significant public works issue in the 1987 land
use plan. In the past, the Town of Atkinson has experienced
serious flooding at two locations -- the intersection of Church
Street and Rankin Street, as well as the intersection of College
and Church Streets. It should be noted that this flooding occurred
during periods of extensive rainfall.
A natural drainage canal runs through Atkinson which reduces
serious flooding in most developed areas. In 1990, the town
altered this drainage ditch so that future flooding would not occur
in the previously mentioned locations. Also, the town has con-
tracted, and will continue to contract, for maintenance of roadside
ditches where ponding has been a recurrent problem. The town
applied unsuccessfully in 1987 for CAMA assistance to prepare a
town -wide drainage study and currently has no master drainage plan.
However, according to town officials, drainage is not as signifi-
cant an issue in 1992 as was the case in 1987, due to completed and
ongoing improvements.
I-14

' 4. Schools
Atkinson's students in grades kindergarten through grade 4
' attend West Pender Elementary School. West Pender Elementary is
located approximately three miles from the town limit line.
Students in grades 5 through 8 attend Atkinson Middle School.
Atkinson Middle School is conveniently located within the town
limit line. Students in grades 9 through 12 attend Pender High
School. Pender High is located approximately ten miles from the
town in the direction of Burgaw. Table 10 provides additional
' information on Atkinson's existing school system. A new elementary
school which will serve Atkinson is proposed to open in the
1993-1994 school year at Malpass Corner on N.C. 421.
Table 10
School Capacity for Town of Atkinson - 1992-93
' 1992-93 1992-93
Capacity Enrollment Capacity Level
West Pender Elementary 200 225 12% Over Capacity
Atkinson Middle School 200 190 5% Under Capacity
Pender High School 1,200 1,075 7% Over Capacity
' Source: Pender County Board of Education
Capacity levels at West Pender and at Pender High are slightly
over capacity, and Atkinson Middle School appears to be slightly
under capacity, but none of these enrollment figures indicate a
great deviation from capacity.
5. Solid Waste Disposal
The Town of Atkinson provides its own curbside collection of
solid wastes. Pickup occurs twice per week for residential and
commercial areas. Solid wastes are taken to a common location in
Atkinson and then transported to the Pender County landfill via
Waste Industries. Atkinson does curbside recycling for town -
residents and recycles all recyclable solid wastes before Waste
Industries picks up. The town also operates a recycling center at
Hoggard Park, which is for the use of county residents living in
rural, unincorporated areas outside of town.
It is estimated that the Pender County landfill will be near or
at capacity by 1994. The county has considered a regional concept
for transporting waste outside the county; however, a decision had
not yet been made in 1992. The town has expressed opposition to a
proposed site located west of town, near the Black River. Pender
County has recently proposed seven transfer stations to compact
solid wastes throughout the county. It is expected that the
general Atkinson area will be chosen for a transfer station
location.
I-15

6. Administration
The Town of Atkinson has a mayor/board of aldermen form of
government consisting of four members. The town has no full-time
employees. The town clerk/tax collector works approximately 30
hours per week. The town's planning board, which also functions as
the board of adjustment, is comprised of three members. The Board
of Aldermen is in charge of a street committee and a committee for
parks and recreation.
Police
Atkinson has no full-time police officers. There is one paid
police officer in Atkinson who works approximately 25 hours per
week. The town also has three auxiliary police officers. Atkinson
currently owns two patrol cars. Police officers frequently attend
training programs and seminars. Town officials feel that the
police department is adequate to serve the town's needs.
8. Fire
The Town of Atkinson takes great pride in their fire depart-
ment. The town's fire department is comprised of 25 volunteer
members. Fire equipment owned by the town consists of one pumper,
two pumper tankers, one brush truck, one equipment van, and a
general water truck. The department has an ISO rating of 8. Town
officials feel that the fire department is currently adequate to
serve the town's needs. During 1992, plans were developed to
enlarge the building housing the fire equipment to accommodate two
more bays for future growth.
9. Transportation
Major thoroughfares through Atkinson include North Carolina
Highway 53, commonly known as Church Street, Rooks Road, and Rankin
Street. The town maintains 4.146 miles of road; 3.486 miles of
locally maintained roads are surfaced, while .661 miles remain
unsurfaced. Unless deliveries are being made, no loaded trucks are
permitted on town roads. The increasing truck traffic on N.C. 53,
and desire to maintain quiet residential streets, were addressed in
the 1987 land use plan, and both continue to be local concerns.
Several of the paved streets in Atkinson are in poor condition
The town plans to repave Main Street, Whitehouse Avenue, First
Avenue, and College Street as funds are made available during the
planning period.
10. Electrical Distribution
Electricity is provided to Atkinson from Carolina Power
Light. The town has never experienced a major electrical
shortage.
I-16

'
11. Emergency Rescue
Atkinson has two emergency medical technicians residing in the
town. These EMTs are members of the Pender County Rescue Squad.
The town does not own any emergency medical equipment. All police,
fire, and rescue squads are dispatched through Pender County.
'
12. Recreational Facilities
The town has two recreational facilities. Atkinson Middle
School has a ball field, two basketball goals and a gymnasium, all
available for local use, although the facilities are owned and
operated by Pender County. The town -maintained facility is Hoggard
Park, a 1.5 acre area located adjacent to Town Hall. In a CAMA-
sponsored Recreation and Open Space Plan prepared in 1989, the town
proposed a number of improvements to Hoggard Park, which at the
time of the 1987 land use plan had only a picnic shelter, one
basketball goal, a few pieces of playground equipment, and limited
parking. The town has since followed through with several
suggested improvements, including a fence, improved parking facil-
ities and entrance on Rankin Street, barbecue grills, additional
benches, additional playground equipment, and more basketball
goals. The town plans to provide landscaping improvements in the
near future.
I-17

S.
1. Topography/Geology
LAND SUITABILITY
There are no areas of excessive slope in Atkinson that would
impede development. The town has an average elevation of approxi-
mately 60 feet above mean sea level. The Pleistocene and recent
surficial sands cover the area, and are directly underlain by the
sands and marine clays of the Peedee formation. Due to the lack of
underlying limestone confining layers, primarily located in the
eastern portion of Pender County, the surficial sands provide the
only practical groundwater resource for residential, agricultural
and commercial use in and around Atkinson. This shallow aquifer,
from which potable water can be drawn at various depths, is
recharged directly by rainfall and is easily contaminated by point
sources of pollution such as substandard septic tanks where it
occurs within 15-20 feet of the surface. This potential for
shallow -level aquifer contamination, not groundwater supply, is the
primary limitation to development posed by water resources in
Atkinson, which is not located close to any significant surface
water resources (the Black River is located four miles away).
Flood Hazard Areas
The entire town is located outside the nearest 100-year flood -
plain, adjacent to the Black River. There are no identified flood
hazard areas in Atkinson.
3. Soils
According to the USDA Soil Conservation Service, "Soil Survey
for Pender County, NC," published in 1990, the primary soil associ-
ation in the Atkinson area is the Goldsboro type, which is a nearly
level, moderately well -drained soil, well suited to agricultural
and woodland uses. There are some areas of the Rains soil type
intermingled with the Goldsboro soils. The Rains association is
poorly drained and poses moderate to severe limitations for septic
tank placement. The primary soils limitation in Atkinson is
seasonal wetness, which causes varying degrees of difficulty in the
construction of building foundations, recreational facilities, and
sanitary facilities. Generally, this wetness can be reduced
through various types of drainage improvements including grading,
open ditches, and the drains.
Man-made Hazards/Restrictions
There is no industrial activity in or around Atkinson that
would subject the populace to any unusual risks or hazards. There
are no industrial -zoned areas in the town, and the only industrial
type uses permitted by the town's current zoning ordinance are
warehouses and water storage tanks. The only potential man-made
hazards located in the town are above ground and underground fuel
storage tanks, which are regulated by the town's zoning ordinance
and the state.
I -is

5. Fragile Areas
Fragile areas are areas that can be easily damaged or destroyed
by inappropriate or poorly -planned development. There are no
LAMA -defined coastal areas of environmental concern in or around
Atkinson. Nor are there any slopes in excess of 12%, excessive
erosion areas, complex natural areas, or prime wildlife habitats in
the area.
There are no properties or archaeological sites in Atkinson
currently listed on, or suggested for nomination to, the National
Register of Historic Places. However, the North Carolina Division
of Archives and History has defined the Caswell Presbyterian Church
as a structure of historical or architectural importance.
Although no "404" wetlands regulated by the U. S. Corps of
Engineers have been defined in Atkinson, the presence of the hydric
Rains soil association in scattered areas of the town suggests that
isolated 11404" wetlands areas (as currently defined) may exist.
These areas can only be defined through field evaluation by trained
individuals under the supervision of the Corps of Engineers'
Wilmington office as farm and wooded lands are developed for
residential and commercial use. Since the very definition of "404"
wetlands and means of protection for these areas is the center of
widespread controversy, the task of objectively delineating and
preserving fragile wetlands in Atkinson's jurisdiction will be
difficult.
Areas of Resource Potential
Productive agricultural land and forest land are the largest
land uses in Atkinson. These are the only CAMA-defined areas of
resource potential in the town's jurisdiction. The town has
clearly stated in its 1987 land use plan its desire to preserve
existing agricultural land from residential encroachment, and
provided for low density on agricultural land in its 1989 zoning
ordinance. The town has also attempted to discourage commercial
forestry within the town limits in an attempt to preserve wooded
open space and maintain the rural residential character of the
town.
I-19

II .
SECTION II: PROJECTED LAND DEVELOPMENT ANALYSIS

1
SECTION II: PROJECTED LAND DEVELOPMENT ANALYSIS
' A. PROJECTED DEMAND FOR DEVELOPMENT
' 1. Population and Economic Growth
The Town of Atkinson grew up as a railroad community and, being
located close to the Black River, developed as a service center for
the surrounding agricultural area.
Although Pender County is expected to experience a 15% growth
' in population from 1990-2000, according to estimates prepared by
the Office of State Planning, Atkinson is not expected to con-
tribute significantly to overall county growth during the next ten
' years. However, two factors suggest that the town's population
will increase through the ten-year planning period, a reversal of
the population decrease that the town experienced from 1980-1990.
First, continuing industrial development north of Wilmington along
' the U.S. 421/I-40 corridor should result in a demand for housing in
the more rural areas closer to industrial sites than Wilmington.
Second, increasing congestion in the Wilmington area may force some
' self-employed workers, and even retirees, to consider relocating to
rural areas within convenient driving distance from Wilmington.
In consideration of these two factors, it is estimated that the
town's population may increase to 300-315 by 2000. This 3% to 8%
' increase would mean approximately four to ten new families residing
in Atkinson.
Additionally, Atkinson should continue to experience healthy
economic growth during the ten-year planning period. The fact that
a large number of town residents are employed in good paying
manufacturing and public service jobs, coupled with the town's
traditional low unemployment rate, should result in a continued
demand for local retail goods and services. Also, continued
regional demand for produce and livestock from Pender County should
have a positive impact on the farm economy in and around Atkinson.
2. Future Land Need
The trends discussed above will result in only a marginal
demand for undeveloped land in Atkinson during the 1992-1997 plan-
ning period. Ample undeveloped land exists to accommodate this
demand. It is expected that new residential construction will be
single -unit conventional, owner -built homes largely limited to
established single-family residential areas in the center of town,
or on larger tracts for sale by agricultural landowners in the
peripheral areas. It is not anticipated that appreciable subdi-
vision or multi -family housing development will occur in or around
Atkinson during the next ten years.
It is probable that mobile home development in the area will
continue, with possible mobile home park development in RA zoned
areas during the next ten years. However, mobile home park devel-
opment will be limited by the difficulty with meeting county
sanitary disposal requirements.

Due to the rapid rate of residential development in the
Wilmington area, it is more difficult to judge demand for open
space for residential development in Atkinson from 1997-2002. It
is conceivable that subdivision construction within the town limits
will be a reality during that period. However, there is ample
RA -zoned land to accommodate appreciable low -density subdivision
development in Atkinson, and the town has adopted subdivision
regulations to control such development.
Demand for commercial property should also be marginal during
the next ten years. Much new commercial activity will be confined
to reuse of structures previously used by other businesses. New
commercial structures are limited by the town's zoning ordinance to
undeveloped areas and areas traditionally occupied by commercial
structures, and no significant residential/commercial incompati-
bility issues are expected to develop during the next ten years.
Abundant open space for new commercial development in C-hand C-2
zoned areas should accommodate anticipated commercial growth
through the ten-year planning period.
Residential and commercial development during the next ten
years should not have an appreciable impact on Atkinson's agricul-
tural land or rural character. However, it is possible that the
town will be approached by a relocating or new industry during the
next ten years. Only light industry should be considered; for
example, distribution of books and printed matter, addressing
services, cabinet making, warehousing, etc. Since the town
currently has no industrial zoned areas, a decision to welcome an
industry to Atkinson will require careful consideration of land use
incompatibility issues and ultimate revision of the town's zoning
ordinance and map.
3. Community Facilities Needs
The town will continue to use local funds and seek outside
assistance to maintain and gradually improve its storm drainage and
street systems. The worst problems with storm drainage have been
addressed, and the town plans to stress repaving of existing
streets during the next ten years. The town also plans to continue
improving Hoggard Park as outlined in its 1989 Recreation and Open
Space Plan. Should the town obtain funds to expand its recre-
ational facilities, ample open space for additional park facilities
exists within the town limits.
Although the town is concerned about potable water quality,
provision of a town water system is not yet a major concern due to
the low population density and easily accessible groundwater
resource. Additionally, if individual sewage disposal systems are
discontinued with completion of a town sewer system, the possi-
bility of water well contamination would be considerably reduced.
Provision of a town -wide sewer system, while not yet a signifi-
cant development issue for the town, will certainly assume more
importance during the next ten years. Pender County sanitary
regulations, coupled with the soils conditions in Atkinson, will
II-2

' make it very difficult to accomplish subdivision or mobile home
park development without community sewer systems. Any industry
locating in Atkinson will require a sewage treatment system. Addi-
tionally, septic tank failures in established residential areas
will continue to increase due to the aging housing stock. Fortu-
nately, if Atkinson can finance a sewer system during the next ten
' years, the area may be suited for a land application system, and a
site for the treatment plant can be acquired relatively
inexpensively.
B. REDEVELOPMENT ISSUES
Rehabilitation of the town's aging housing stock is the major
redevelopment issue facing the Town of Atkinson. If no new
construction occurred, 45% of the town's residential structures
would be over 50 years old in 2002. The town has discussed apply-
ing for state housing rehabilitation grant funds and adopting a
minimum housing code, and plans to give this issue considerable
attention during the next ten years.
Additionally, maintenance of commercial structures and
outbuildings is a concern which prompted the town to include
condemnation procedures in its building code regulations, adopted
in 1989. Many outbuildings throughout the town, particularly farm
outbuildings, are in need of major repair or demolition. Improve-
ment of commercial structures is necessary to maintain the attrac-
tiveness of the Central Business District and viability of the
town's economy.
A final redevelopment issue is the need to utilize and maintain
areas of productive farmland in and around the town. Preservation
and continued productive use of farmland is vital to the community
spirit and economy of the town.
C. INTERGOVERNMENTAL COORDINATION AND IMPLEMENTATION
This plan was reviewed by the Pender County Planning Department
prior to certification by the Coastal Resources Commission. This
review was provided to help ensure consistency of this plan with
Pender County's planning efforts. Intergovernmental coordination
and cooperation will continue through the ten-year planning period.
This will be essential to accomplish effective planning for public
utilities, thoroughfare projects, community facilities, housing
needs, and environmental protection. The Atkinson Board of Alder-
men and Planning Board will be responsible for ensuring adequate
coordination with Pender County and other government entities as
may be required.
II-3

SECTION III: LAND CLASSIFICATION SYSTEM

SECTION III: TOWN OF ATKINSON LAND CLASSIFICATION SYSTEM
The CAMA regulations require the establishment of a specific land
classification system to support the local government's policy
statements. This system should reflect developing land use
patterns within the town and provide a framework to be utilized by
the Town of Atkinson to identify future land uses.
The 15A NCAC 7B requirements provide for the following land clas-
sifications: developed, urban transition, limited transition,
community, rural, rural with services, and conservation. In apply-
ing these classifications, Atkinson should carefully consider where
and when various types of development should be encouraged. Addi-
tionally, environmentally sensitive areas should be recognized by
the land classification system. Each applicable land classifi-
cation must be represented on a land classification map.
The following land classifications are shown on the Land
Classification Map, and will apply in Atkinson:
Developed areas included in the developed land classification
are currently urban in character, with no or minimal undevel-
oped land remaining. Municipal types of.services, with the
exception of central water and sewer service, are in place or
are expected to be provided within the next five to ten years.
Land uses include residential, commercial, public/semi-public,
and other urban land uses at the following densities which are
prescribed by 15A NCAC 7B:
° 500 dwelling units per square mile, or
° three dwelling units per acre, or
° where a majority of lots are 15,000 square feet or less.
The developed classification includes lands which are zoned
Residential R-15, Residential RM-15, Office and Related Commer-
cial C-1, and General Commercial C-2. These zoning districts
are defined by the town's zoning ordinance as follows:
R-15 Residential District: This district is intended as a
single-family and two-family residential area with a low
population density. Certain structures and uses of govern-
mental, educational, religious, and non-commercial recre-
ational natures are either permitted outright or are subject
to special conditions intended to preserve and protect the
residential character of this district.
RM-15 Residential District: The purpose of this district is
to provide for the proper location of apartments or multi-
family housing. This district would be most appropriate
between commercial and office uses and single-family
residential areas.

C-1 Office and Related Commercial District: This district
is intended to .be applied to areas undergoing transition
from residential to commercial uses. It is designed to
preserve the basic residential character of these areas and
to guide transition by permitting commercial uses of low
intensity nature. These uses can be provided for in the
form of either existing or new structures.
C-2 General Commercial District: This district is intended
to include areas along streets carrying relatively large
volumes of traffic where commercial development has dis-
placed residential development or has grown up on vacant
lands. Regulations are designed to guide future change, to
minimize the formulation of commercial slums, to preserve
the carrying capacity of streets, and to encourage adequate
off-street parking and loading space. It is not the intent
of these regulations to encourage the growth of commercial
strips.
Rural - As defined by 15A NCAC 7B, these are areas which
provide for agriculture, forestry, mineral extraction, and
other allied uses traditionally associated with an agrarian
region. Other land uses, due to their noxious or hazardous
nature and negative impacts on adjacent uses, may also be
appropriate here if sited,in a manner that minimizes their
negative effect on surrounding land uses or natural resources.
Examples include energy generating plants, refining plants,
airports, sewage treatment facilities, fuel storage tanks and
other industrial type uses. Very low density dispersed resi-
dential uses on large lots with on site water and sewer are
consistent with the intent of the rural class. Development in
this class should be as compatible with resource production as
possible.
In Atkinson, all rural classified lands are zoned rural agri-
cultural RA. The Atkinson zoning ordinance defines this
district as follows:
RA Rural Agricultural District: The RA rural agricultural
district is established as a district in which the principal
use of land is for low density single-family residential
purposes. The regulations of this district encourage rural
farming activities and the preservation of open space. The
district is designed to promote exurban, low density
residential development not requiring urban services while
maintaining prime farm land and a rural life style.
Conservation - This classification includes areas of 404
wetlands which meet the wetlands definition contained in
Section 404 of the Clean Water Act. Only uses consistent with
the policy statements section of this plan and the Atkinson
zoning ordinance will be allowed. These areas are not
delineated on the Land Classification Map. Specific locations
must be determined in the field by representatives of the
Wilmington office of the U. S. Army Corps of Engineers.
III-2

SECTION IV: POLICY STATEMENTS

' SECTION IV: TOWN OF ATKINSON POLICY STATEMENTS
Policy statements are extremely important and may have a day-to-day
impact on individual citizens within the Town of Atkinson. The
statements will have an impact in two important areas, including:
' -- Establishment of local planning policy.
-- Review of proposed projects requiring state or federal
assistance or approval to determine consistency with local
policies.
' The policies contained in this section are based on the objectives
of the citizens of Atkinson and satisfy the objectives of the
Coastal Resources Commission. The Atkinson Board of Commissioners
closely supervised the development of these policies.
There are not any areas of environmental concern as defined by
15A NCAC 7H located in the Town of Atkinson. CAMA minor and major
permitting as required by N.C.G.S. 113A-118 does not apply to the
town. All policies stated in this plan must be supported by local
ordinances and actions in order to ensure implementation.
In order to comply with 15A NCAC 7B planning requirements, all
local governments must specify stated development policies under
each one of five broad topics. These topics include:
° Resource Protection
° Resource Production and Management
° Economic and Community Development
° Continuing Public Participation
° Storm Hazard Mitigation, Post -Disaster Recovery, and
Evacuation Plans
Based on the analysis of existing conditions and trends and dis-
cussion with the town's Board of Aldermen, the policies outlined in
' the following section have been formulated to provide a guide for
advising and regulating development of available land resources in
Atkinson throughout the current planning period, or through 2002.
A. RESOURCE PROTECTION POLICY STATEMENTS
1. Soils: To mitigate potential problems with septic tank place-
ment and localized ponding and flooding during periods of heavy
rainfall due to poorly -drained soils, Atkinson will:
(a) enforce all current regulations of the N.C. State Building
Code, the Pender County Health Department, and the town's
subdivision regulations, in all matters relating to septic
tank installation/replacement in the town's planning
'r jurisdiction.
IV-1

(b) coordinate all development activity with appropriate
county and state regulatory personnel.
(c) continue to stress low density development and development
in areas with suitable soils through enforcement of the
town's zoning ordinance.
2. Stormwater Runoff: To further mitigate ponding and localized
flooding due to flat topography and poorly drained soils, Atkinson
will:
(a) continue to utilize town, contract labor, and work service
program assistance to maintain roadside drainage ditches
throughout the town.
(b) support state regulations relating to stormwater runoff
resulting from development.
3. Wetlands: To prevent potential environmental damage to wetland
resources which may exist within the town's jurisdiction, the town
will cooperate with the U.S. Army Corps of Engineers in the
regulation/enforcement of the 404 wetlands permit process.
4. Groundwater/Protection of Potable Water Supplies: Atkinson
will strive to conserve its surficial groundwater resources by
supporting the N.C. Division of Environmental Management stormwater
runoff regulations, through enforcement of county and state sewage
disposal requirements, and through support of NCAC Subchapters 2L
and 2C, which regulate land uses near groundwater resources.
5. Man-made Hazards:
(a) Atkinson will support the technical requirements and state
program approval for underground storage tanks (Chapter 40
of the Code of Federal Regulations, Parts 280 and 281),
and any subsequent state regulations concerning under-
ground storage tanks adopted during the planning period.
(b) The town will amend its zoning ordinance to prohibit
underground storage tanks for both commercial and
residential usage.
6. Solid Waste Disposal: The town will support only new landfill
sites to serve Pender County and its municipalities which will not
adversely affect valuable groundwater resources. The Board of
Aldermen reserves the right to comment on any site which is
proposed for such purpose. The town is opposed to locating a
landfill near Black River, west of Atkinson.
7. Cultural/Historic Resources: Atkinson will request developers
to coordinate land disturbing activities with the N.C. Division of
Archives and History. The town will also notify the Division of
Archives and History of any construction activity in the vicinity
of the Caswell Presbyterian Church. The town will continue to
maintain and landscape the abandonled railroad tracks located in the
center of town.
Iv-2

' 8. Industrial Impacts on Fragile Areas: There are no industries
currently located in Atkinson. The town supports industrial devel-
opment that is compatible with the rural, residential character of
the town, provided such development can be developed and operated
without damage to groundwater resources, wetlands, or adjacent
productive agricultural lands.
9. Package Treatment Plant Use: The Town of Atkinson recognizes
that subdivision, multi -family, or mobile home park development
currently allowed by the town's zoning ordinance may require the
1 construction of package sewage treatment plants. Not wishing to
discourage those types of development in appropriately zoned areas,
the Town of Atkinson will support the construction of package
1 treatment plants which are approved and permitted by the state
Division of Environmental Management and by the Pender County
Health Department/Division of Health Services. If any package
plants are approved, Atkinson supports requirement of a specific
' contingency plan specifying how ongoing private operation and main-
tenance of the plant will be provided.
B. RESOURCE PRODUCTION AND MANAGEMENT POLICY
1. Recreation Resources: Atkinson will continue its ongoing
effort.to maintain abundant open space within the town, to improve
existing recreational facilities, and to acquire additional open
space for public recreation facilities when financially feasible.
The town will continue to support and implement the 1989 Recreation
and Open Space Plan.
2. Productive Agricultural Lands: Although the importance of
agriculture to the overall economic stability of the town has
diminished in recent years, Atkinson desires to maintain its rural
agricultural districts and to emphasize the preservation of
productive agricultural land. To that end, the town will:
' (a) Maintain low density development in RA districts as
currently provided in the town zoning ordinance.
I, (b) Discourage industrial and commercial development in RA
districts when such development may be potentially
damaging to cropland or generally incompatible with
agricultural land use.
(c) Encourage limited private or commercial clearing of
existing woodlands for agricultural development in RA
districts.
3. Productive Forest Lands: The Town of Atkinson feels that
preservation of woodlands in its outlying RA districts is important
to maintaining community appearance, wildlife habitat, and to
attracting quality residential, commercial and industrial develop-
ment. Additionally, the town believes that commercial forestry is
destructive to its woodlands resources, and generally inconsistent
with the town's agricultural/residential character. Commercial
IV-3

forestry will also create a general nuisance and potential safety
hazards. To maintain its existing woodlands resources and dis-
courage commercial forestry operations, Atkinson will:
(a) revise its existing zoning ordinance to prohibit construc-
tion of sawmills or other forestry -related industrial uses
in RA zoned areas.
(b) Atkinson encourages and supports forestry best management
practices as defined in the Forestry Best Management
Practices Manual, 1989, North Carolina Division of Forest
Resources.
(c) Based on residential development trends during the plan-
ning period, consider establishment of minimum landscaping
requirements and woodlands protection for subdivision and
commercial development in RA zoned areas.
(d) The town will investigate its authority and options
available to establish an ordinance requiring
companies/individuals operating trucks, including logging
trucks, within the town limits to pay for damages caused
to town -maintained streets. Atkinson believes that the
company/individual causing the damage should be held
accountable for the cost of repair.
4. Off -Road Vehicles: Atkinson does not oppose the responsible
use of off -road vehicles.
Residential, Commercial and Industrial/Development Impacts on
Resources:
(a) Residential, commercial and industrial development will be
allowed which is consistent with the town's zoning and
subdivision ordinances and the policies contained in this
plan. High density development will be discouraged in
areas containing hydric soils and in rural classified
areas.
(b) The town will amend its zoning ordinance to provide more
restrictive regulation for the location of individual
mobile homes.
IV-4

C. ECONOMIC AND COMMUNITY DEVELOPMENT
1. Planning and Regulation of Development: The town has taken
great strides in adopting land use controls since 1987. The town
has adopted a town ordinance, zoning ordinance, subdivision regu-
lations, and developed a CAMA-funded recreation plan. However, the
town is concerned that commercial, and in particular, industrial
development in areas outside the town limits might proceed in an
unregulated manner. Such development might prove incompatible with
the desired pattern of land use in Atkinson, damage fragile
groundwater resources or farm and wooded land, or force unplanned
demand for town services. In order to extend its authority to
control growth and regulate development, the Town of Atkinson will
attempt to establish extraterritorial jurisdiction during the next
five years.
2. Types and Location of Planned Development: The Town of
Atkinson wants to encourage economic development while preserving
its quiet, residential character and its outlying agricultural and
woodland resources. The town also wants to maintain the general
zoning patterns and development densities included in the original
zoning ordinance adopted in 1989. To achieve these goals, the town
will:
(a) continue to enforce the town's existing zoning ordinance
to ensure land use compatibility and promote low density
residential and commercial development.
(b) discourage industrial and commercial development that is
incompatible with agricultural operations, potentially
destructive to the local groundwater resource, or that
would be a possible nuisance and safety hazard to resi-
dents of the town. The Town of Atkinson will not consider
rezoning an area for any industrial use which has the
potential to cause one or more of those problems.
(c) encourage commercial and industrial activity that is
compatible with the town's residential/ agricultural
character, that will not pose a threat to local
groundwater resource, and will not provide a potential
threat to the health and safety of local residents due to
on -site storage of hazardous materials, excessive noise,
or significant increase in traffic volume.
(d) limit new industrial zoned areas to existing RA zoned or
C-2 areas when amending the existing zoning ordinance to
accommodate a new industry. New industrial activity
should be limited to light industry, e.g., printing and
reproduction, addressing services, distribution of books
and printed matter, cabinet making, warehousing, etc.
IV-5

3. Water Supply: There are no significant constraints to devel-
opment relating to the town's potable water supply. The local
groundwater resource should continue to provide adequate water
supply throughout the planning period. The town will not seek
funding for a town -wide water system during the planning period,
and will preserve groundwater resources through the implementation
of other policies discussed herein.
4. Sewer System: Due to anticipated increasing problems with
existing individual septic systems, soils limitations to new
development, the need to attract commercial and selected types of
industrial activity, and the need to preserve groundwater
resources, the Town of Atkinson strongly supports development of a
municipal sewer system. During the ten-year planning period, the
town will seriously examine funding alternatives for a town -wide
sewer system and prepare a funding feasibility study for review by
the governing body. However, the town recognizes that construction
of a town -wide system may be cost prohibitive.
5. Solid Waste Disposal: Atkinson supports a policy of coop-
eration with Pender County to develop alternatives for solid waste
disposal that will not endanger groundwater resources or violate
federal and state air quality standards. The town plans to take an
active role in any county -wide discussion concerning solid waste
disposal, including recycling, types of new disposal facilities,
and siting of new disposal facilities.
6. Storm Drainage System: The town has addressed its most
pressing storm drainage problems over the past three years. The
town will continue to maintain roadside ditches with town funds on
an annual basis, and will support the Division of Environmental
Management stormwater runoff retention system through its zoning
permit system. The town does not consider preparation of a drain-
age master plan to be a significant planning issue during the
upcoming planning period.
7. Transportation:
(a) The town will continue to actively maintain its local
street system through repaving activities utilizing Powell
Bill funds. However, the town will not allocate any of
its general fund for street improvements unless future
development increases the local tax base.
(b) The town will continue to regulate commercial development
and upgrade its traffic ordinance as necessary to reduce
nonaestion and safetv hazards on N.C. 53.
8. Law Enforcement: To reduce citizen concerns about crime and
safety, the town will attempt to secure funds to increase its one
police officer to full time during the next two years, and to
employ an additional police officer during the next five years.
IV-6

9. Recreation:
(a) The town will utilize local funds on an annual basis to
continue improvements at Hoggard Park outlined in the
town's Recreation and Open Space Plan.
' (b) The town will attempt to preserve open space through its
zoning policies and will acquire additional space for
recreational facilities if affordable land is available
during the planning period.
' 10. Tourism: The Town of Atkinson will implement the following
policies s to further the development of tourism:
' (a) Atkinson will support North Carolina Department of Trans-
portation projects to improve access to Pender County.
' (b) Atkinson will continue to support the activities of the
North Carolina Division of Travel and Tourism; specific-
ally, the monitoring of tourism -related industry and
efforts to promote tourism -related commercial activity.
(c) .Atkinson will continue to support its annual festival, the
Atkinson Christmas Jubilee.
11. Redevelo ment of Develo ed Areas: The.Town of Atkinson con-
siders mprovement of its exist ng housing stock and older commer-
cial buildings and demolition of abandoned structures to be a
significant issue in this land use plan update. To give local
officials greater power to force the improvement of deteriorated
structures, or demolition of dilapidated structures,and to assist
lower income individuals with making improvements to their resi-
dences, during the ten year planning period, the town will:
(a) adopt a minimum housing code in accordance with N.C.G.S.
160A-441-450.
(b) adopt an abandoned structures ordinance.
(c) perform a detailed town -wide housing needs survey.
(d) apply for a CDBG community revitalization grant to improve
existing housing conditions for low and moderate income
residents of the town.
12. Energy Facility Siting and Development: There are no electric
' generating or other power generating plants located in or proposed
for location within Atkinson. However, the town will implement the
following energy facility siting policies:
' (a) Atkinson will review proposals for development or expansion
of electric generating plants within its vicinity on a
case -by -case basis, judging the need for the facility
against all identified possible adverse impacts. The town
reserves the right to comment on the impacts of any energy
facility, construction, or expansion within Pender County.
' IV-7

(b) In the event that offshore oil or gas is discovered,
Atkinson will not oppose drilling operations and onshore
support facilities in Pender County for which an Environ-
mental Impact Statement has been prepared with a finding
of no significant impact on the environment. Atkinson
supports and requests full disclosure of development
plans, with mitigative measures that will be undertaken to
prevent adverse impacts on the environment, the infra-
structure, and the social systems of Pender County.
Atkinson also requests full disclosure of any adopted
plans. Offshore drilling and development of onshore
support facilities in Pender County may have severe costs
for the town and county as well as advantages. The costs
must be borne by the company(ies) with profit(s) from
offshore drilling and onshore support facilities.
13. Land Use Trends: No major changes in land uses or trends will
occur during the planning period. Atkinson will continue to be a
predominantly residential community with very limited commercial or
industrial development.
14. Storm Hazard Mitigation, Post -Disaster Recovery, Evacuation
Plans: The Town of Atkinson, located in western Pender County, is
beyond any immediate major storm threats and, therefore, does not
have the problems with evacuation that other coastal communities
would have in the event of a major storm. Atkinson does coordi-
nate, however, with the Pender County Office of Emergency manage-
ment, which has a storm hazard mitigation/post-disaster recovery/
hurricane evacuation plan. In the event that evacuation and
post -disaster recovery become necessary, the town will utilize and
abide by the county policies, as contained in the Pender County
land use plan. In addition, in 1992 the Pender County Office of
Emergency Management assisted the town in developing a specific
evacuation plan.
D. CONTINUING PUBLIC PARTICIPATION POLICIES
As required by 15A NCAC 7B, the Town of Atkinson prepared and
adopted a "Citizen Participation Plan." The plan outlined the
methodology for citizen involvement. The plan stated that public
involvement was to be generated primarily through the Atkinson
Board of Aldermen and through "public information meetings"
advertised in local newspapers and open to the general public. The
board meetings also were open to the general public.
A public information meeting, advertised in the Pender Post and the
Pender Chronicle, was conducted by the Town of Atkinson Board of
Commissioners at the outset of the project on November 71 1991, at
7:30 p.m., at the Atkinson Town Hall. Subsequently, meetings of
the Board of Commissioners, open to the public, were conducted on
January 7, 1992; January 27, 1992; February 6, 1992; and
February 25, 1992. Another public information meeting, advertised
IV-S

in the Pender Post was held on April 21, 1992, to review and
comment on the draft plan before its submittal to the Coastal
Resources Commission.
The preliminary plan was submitted to the Coastal Resources Commis-
sion for comment on April 23, 1992. Following receipt of CRC
comments, the plan was amended, and a formal public hearing on the
final document was conducted on November 19, 1992. The public
hearing was advertised in the Pender Post on October 14, 1992. The
plan was approved by the Town of Atkin o Board of Commissioners on.
November 19, 1992, and submitted to the Coastal Resources Commis-
sion for certification. The plan was certified on January 29,
1993.
Continuing Citizen input will be solicited,
Board of Commissioners, with advertised and
public meetings held to discuss special land
citizens informed.
IV-9
primarily through the
adequately publicized
use issues and to keep

I
' SECTION V: RELATIONSHIP OF POLICIES AND LAND CLASSIFICATIONS

I
SECTION V: RELATIONSHIP OF ATKINSON POLICIES
AND LAND CLASSIFICATIONS
The 15A NCAC 7B planning guidelines require that Atkinson must
relate the policies section to the land classification map and
provide an indication as to which land uses are appropriate in each
category. The following sections accomplish this comparison.
A. DEVELOPED CLASS
Atkinson's developed classification includes the following
zoning districts as defined by the Atkinson zoning ordinance: R-15
residential; RM-15 residential, C-1 office and related commercial,
and C-2 general commercial. The general uses allowed in each
category are defined in Section III: Atkinson Land Classification
System, and in detail in the Atkinson zoning ordinance. The
developed classification is intended to be consistent with the
Atkinson zoning ordinance. As shown on the Land Classification Map
(Map 2), the developed classification includes lands which had been
subdivided for moderate to high density development prior to 1992.
This classification should accommodate all growth anticipated to
occur within Atkinson during the planning period. Growth will
occur at low to moderate densities because of the lack of central
water and sewer services. The majority of the town's residential,
commercial, governmental, utility, service, health care and indus-
trial uses will be located in the developed classification.
B. RURAL CLASS
The rural class provides lands appropriate for agriculture,
forestry, and scattered residential development. However,
scattered public facilities, health care facilities, industrial
uses and commercial uses which are consistent with the town's
zoning ordinance will be permitted. Density will continue to be
low. The area should remain in large parcels. The town's RA
residential agricultural zoning district will be appropriate for
most of the rural classification. However, other zoning districts
may be appropriate and will be considered by the town on a case -by -
case basis.
C. CONSERVATION CLASS
The conservation class is intended to provide for the effective
long-term management of the town's sensitive or irreplaceable
fragile and environmentally sensitive areas. The town does not
include any areas of environmental concern as defined by 15A NCAC
7H. However, the classification does include 404 wetlands.
Development which is permitted by the U.S. Army Corps of Engineers
and allowed by the town's zoning ordinance will be allowed in the
404 wetlands areas.
V-1

APPENDIX I
TOWN OF ATKINSON
CITIZEN PARTICIPATION PLAN
PREPARATION OF LAND USE PLAN
FISCAL YEAR 1991-92
The Town of Atkinson has received a FY91-92 Coastal Area Management Act
grant for the update of its existing Land Use Plan. Adequate citizen
participation in the development of the Plan is essential to the
preparation of a document responsive to the needs of the citizens of
Atkinson. To ensure such input, the following citizen participation
program will be utilized by the town.
The Town of Atkinson Board of Commissioners will be responsible for
supervision of the project. The Board will work with the town's planning
consultant to ensure that the final product will survey existing land use,
identify policies, develop socioeconomic base data, review existing
documents and ordinances, review community facilities needs, and identify
areas of environmental concern. Specifically, the planning consultant and
Board of Commissioners will be responsible for ensuring accomplishment of
the following:
-- Developing an effective citizen participation process;
' -- Establishing town policies/strategies to deal with current land
use issues;
Surveying and mapping existing land uses;
Identifying and mapping Areas of Environmental Concern, including
404 wetlands;
-- Implementation of the requirements of 15A NCAC 7B.
At the outset of the project, an article will be prepared for distribution
' to local newspapers. Those newspapers will be requested to print the
article, which will include a proposed schedule for completion. The
following schedule will be utilized:
' 1. November, 1991 -- meet with Atkinson Board of Commissioners to review
the scope of work. Have the Citizen Participation Plan adopted.
' On November 7, 1991, conduct a public information meeting. The
meeting will be advertised in local newspapers. The town will
specifically discuss the policy statements contained in the existing
Town of Atkinson Land Use Plan. The significance of the policy
' statements to the CAMA land use planning process shall be described.
The process by which the Town of Atkinson will solicit the views of
a wide cross-section of citizens in the development of the updated
' policy statements will be explained.
2. November/December, 1991 -- complete identification of existing land
use problems and map of existing land uses.

4. December, 1991, through February, 1992 -- Continue preparation of a
draft Land Use Plan and conduct meetings with the Board of
Commissioners.
5. March, 1992 -- present complete draft sections of the plan and
preliminary policy statements to the Board of Commissioners.
6. May, 1992 - review draft Land.Use Plan with Board of Commissioners,
conduct a public information meeting for review of the proposed plan,
and submit draft of completed Land Use Plan to the Department of
Environment, Health and Natural Resources staff for review and
comment.
8. Following receipt of Coastal Resources Commission comments (estimate
September, 1992) -- Present proposed Land Use Plan to Board of
Commissioners for adoption, and conduct a formal public hearing.
All meetings of the Board of Commissioners at which the update of the Land
Use Plan will be discussed will be advertised in local newspapers. All
meetings will be open to the public. The town will encourage and consider
all economic, social, ethnic, and cultural viewpoints. No major non-
English speaking groups are known to exist in Atkinson.
11/07/91

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LEGEND
SINGLE-FAMILY RESIDENTIAL
® MOBILE HOME
COMMERCIAL
OUT STRUCTURE (SHED, BARN, UTILITY STORAGE, ETC.)
� PUBLIC/SEMI-PUBLIC
Q LANDS OUTSIDE OF DEVELOPED AREAS ARE
PREDOMINANTLY AGRICULTURE/FOREST LANDS
The preparation of this map was financed
In part through a grant provided by the
North Carolina Coastal Management Program,
through funds provided by the Coastal Zone
Management Act of 1972, as amended, which
Is administered by the Office of Ocean and
Coastal Resource Management, National Oceanic
and Atmospheric Administration.
TOWN OF ATKINSON, N.C.
EXISTING LAND USE
0 400 Boo 1200 1600 FEET
SCALE
....................
TOWN LIMIT LINE

LIMIT LINE
RURAL
DEVELOPED
RURAL
DEVELOPED
DEVELOPED
RURAL
RURAL
THE PREPARATION OF THIS MAP WAS FINANCED IN PART
THROUGH A GRANT PROVIDED BY THE NORTH CAROLINA
COASTAL MANAGEMENT PROGRAM, THROUGH FUNDS
PROVIDED BY THE COASTAL ZONE MANAGEMENT ACT OF
1972, AS AMENDED, WHICH IS ADMINISTERED BY THE
OFFICE OF OCEAN AND COASTAL RESOURCE MANAGEMENT,
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.
CONSERVATION
ALL 404 WETLAND AREAS ARE CLASSIFIED AS
CONSERVATION. HOWEVER, BECAUSE OF MAP
SCALE, LOCATIONS CANNOT BE DELINEATED.
PRECISE LOCATIONS MUST BE DETERMINED
THROUGH ON -SITE ANALYSIS AND VERIFICATION.
FEDERAL 404 PERMITTING AND REGULATORY
REQUIREMENTS AND ALL TOWN OF ATKINSON
CODES AND ORDINANCES SHALL APPLY.
TOWN OF ATKWSOX N.C.
LAND CLASSIFICATION MAP
MAP 2
0 400 B00 1200 1600 FEET
SCALE
..................................
TOWN LIMIT LINE