Land Use Plan Amendment-1986

DCM COPY
Please do not remove.
Division of Coastal Management Copy
TOWN OF ATLANTIC BEACH LAND DEVELOPMENT PLAN
Prepared by the Town Board of
Commissioners and the Town Planning
Board with the Technical Assistance
} of Coastal Consultants, Ltd.
The preparation of this report was financially aided through a
t federal grant from the National Oceanic and Atmospheric Administration.
Thisgrant was made through the North Carolina Department of Natural
Resources and Community Development.
`r I`lgl

P&SI-215
W A6
Memo TO: Planning & Special Issues Committee
From: John Crew
Re: Atlantic Beach Land Use Plan Amendment
Date: 18 March 1986
The Town of Atlantic Beach held a Public hearing on 17 March 1986 to consider
a land classification map amendment to its 1981 plan. The amendment dealt
with reclassifying two tracts of land totaling 25 acres from the "transition
fragile" to the "transition institutional". category. The Proposed the reclassification is the town intends to construct its newpwastewatern for
treatment plant on the site.
A copy of the existing land classification map with the reclassified area is
attached. Also attached is the town's.definition of the two referenced transition
sub classes. More detailed discussion on this amendment will occur at the
April meeting.
I
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p-proximate density 3 to 4.units per acre
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its+•` `Mcy, �R�•'"°c 7" f�*'��;; iIUR eehere sSN:BAy�T�
n 1 ..o Ci'm ed ve"io o ragi�` a u or Ot er
Conditions. Those areas possessing environmental or other development
t,t constraints where the density and nature of development is intended to be ;r
' limited. Development near, or in this area is encouraged to utilize
planned unit -development. These fragile features included wooded areas,
1Y; dunes, estuarine shoreline on unsuitable soils for septic systems.
Density in these areas will not exceed that of the Low Density Residen.:
tial Transition Area described above when developed with pianned unit
development, nor will exceed 66% of that density when developed in a
conventional manner.
ell ;c o:, ! 77 yp i 2l v; .Y�'�y�ryflir3i' 7'p! F .+�.5[iYy.:. ✓3�: \•. J...•:.�,�iK y� --' .-aaiaC.r _ ����-""�'��"����'S:.'D�iM���ra17f7i��'�ly�'.�'is:.,l�.a'.':i�.u.11.T�^.�.1jK.�. -
ky5 �
Transition: Redevelopment Commercial. Those areas currently
in residential or commercial use but in poor or dilapidated condition
or having uses that greatly underutilize the potential of the land.
These areas are deemed by the Town to be more suitable for higher devel-
opment uses. In some instances these areas may include areas one would
expect to include in Limited.Development Transition areas, however, they
are included in this classification in order to alleviate what appears y
i
or has been proven to be an existing damage to the resource: the presump-
tion being that a future use would pose less damage than the existing one.
(6) Transition: Redevelopment Residential. Those areas currently -
in residential or commercial use as above, but where development will be
limited to residentja<„�ede.ve.L�pment onlY
`�:f.^�I'�'&?�� i },` �.: ..((`` NLn . b'+itc+.tc••x'Y;r`y •..ter ....::� .r.y.••�ie.- r s. •. re.xa'.c' ,rr.rr,....t.r _
t•i � �4�i �l.V'�Yt ^, .��.:. �f '�}�M •Y���•h�.,lyr yl.fi tit' .. Yn-............ '.i rti�.. �: ..i� bi"
Transiti �.
�., on: Institutional. Those areas intended to provide :
14 for the future public needs of the Town. These areas include streets, :
beach access areas, school sites. These areas are not mapped because`
-they are part and parcel of development of other transitional areas.
(E)` Con's.ervation.' Those areas deserving of long-termmmanagement because
of natural, cultural', recreational, productive or scenic values. These
areas include wetlands and water bodies within the Town. These areas
are inappropriate for future commercial and residential development.

LAND CLASSIFICQrtow
i MA P B z
TOWN OF ATL A NFIC SEACP '
.\\` 1 DEVELOPED J2
cARrEREr covNrr, N.C. _—'—_ DEVELOPED =s AND /NST/TUTIONAL
woo o woo NO TRANS?/ON: REDEVELOPMENT -COMMA.
TRANS?/ON : REOEVEL OP,NENT RES/O.
K` C=! CONSERVATION
1 eosus fOVNo mI TRANS/T/ON: FRAG/LE
%X-M; TRANS/T/ON: COAlAfERC/AL
OW TRANSIT/ON: LOW -ROD DENSITY RES/D
rE=� TRANS/T/ON:MOD.-HIGH DENSITY RES/Q
S �
W
y
A
. ATLANTIC OCEAN .. _
K ThYLO— SuETT
' T?. R
60GUE SOUND
f44 t
ATLANTIC OCEAN

TABLE OF CONTENTS
1.1
Method of Assemblage
1
1.2
Major Conclusion.of Plan
2
Part I: Existing Conditions
2..1
Present Conditions: Population
3
2.2
Present Conditions: Economy
10
2.3
Present Conditions: Agriculture, Fishing, Recreation,
Forestry, Seasonal Use
11 .
3.1
Existing Land Use:
12
3.2
Significant Land Use Compatibility Problems
14,
3.3
-Problems from Unplanned Development
15
3.4
Areas Likely to Experience Changes in Predominant Land Use
18
3.5
Areas of Environmental Concern (AECs)
19
4.1
Summary of Existing.Local Plans and Policies
20
4.2
Summary of Existing Local Ordinances
22
4.3
State and Federal Licenses and -Permits
24
Part II: Constraints to Development
5.1
`Land Suitability: Physical Limitations
28
A. Soils
29
B. Slope
33
C. Hazard Areas
34
D. Sources of Water Supply
35
5.2
Land Suitability: Fragile Areas
36
A. Coastal Wetlands
37
B. Estuarine Waters
38
C. Public Trust Areas
38
D. Estuarine Shorelines
42
E. Ocean Hazard Categories
42
F. Significance of Ocean Hazard'Category
43
G. General Identification and Description of Landforms
45
5.3
Land Suitability: Areas with Resource Potential.
46
A. Biotic Community
46
B. Recreation Facilities and Historic Sites
47
6.1
Capacity of Community Facilities
48
A. Water System
48
B. Sewer Systems
49
C. Roads
51
D. Schools
53
E. Fire and Rescue
53
F. Police
54
G. Street and Sanitation
54
H. Medical
54
I. Health and Social Services
55

Part III: Capacity Analysis
7.1
Population Projection
56
7.2
Future Land Use Need
57
A. Land Available for Development
57
B. Methodology
57
C. Projection
58
7.3
Community Facilities Demand
59
Part IV. Public Participation Element
8.1
Design of Planning Element
62
8.2
Questionnaire
63
:. 8.3
Analysis of Attitudes
65
Part V. Policies
9.1
Resource Protection
71
A. Constraints to development (e.g. soils, flood prone areas)
B. Areas of environmental concern
C. Other hazardous or fragile land areas (e.g. freshwater swamps
and marshes, maritime forests, cultural and historic resources,
and manmade hazards)
D. Hurricane and flood evacuation needs and plans
9.2
Resource Production and Management.
84
A.-- Productive agricultural lands
B. Commercial forest lands
C. Existing -and -potential mineral production .areas
D. Commercial and recreational fisheries
E. Off -road vehicles
9.3
Economic and Community Development
87.
A. Types and locations of industries desired
B. Local commitment to providing services to development
C. Types of urban growth patterns desired
D. Redevelopment of developed areas
E. Commitment to state and federal programs.
F. Assistance to channel maintenance and beach nourishment
G. Energy facility siting and development
H. Tourism or beach and waterfront access
Part VI. Land Classification
10.1
Land Classes Defined
100
10.2.
Uses in Each Class
103
.. 10.3
Relationship between Policies and Land Classification
104

1.1 Method of Data Assemblage
~ The.Town of Atlantic Beach submitted a land use plan to the
Coastal Resources Commission in 1976. That plan was approved by the
Commission; the Town does not apply the plan. Prior to
this plan, planning and policy have been set by the Cartaret County
Land Use Plan which was prepared for the County by the State Department
of Natural Resources and Community Development.
This plan was assembled wherever.possible by bringing
together information existing in local, state and federal documents.
Much of the data and information has been adapted and rearranged -from
its original sources to focus on bringing out the characteristics of.
Atlantic Beach. The plan.also utilizes the experience of its consul-
tants to the project;. and some original research and study done by
them. The plan is also a culmination of numerous interviews with local
persons. All the information has been used by the Town Planning Board
in developing policy alternatives and making recommendation to the
Town Board of Commissioners. The information was also used by the
Town Board in making its final formulation of policy.

1.2 Major Conclusion; Executive Summary.
The Town of Atlantic Beach identified a number of problems that
needed to be addressed during the coming ten years. The top priority
for the Town is the need to redevelop the central commercial area in
the Town and to rehabilitate poor quality housing. In addition, the
Town also places a high priority on protecting the remaining valuable
environmental features from destruction and on remedying problems
caused by poor planning in the past. As a result of its redevelopment
needs, the Town is committed to a high growth rate, to tourism and to
the facilities that are needed to accommodate both: public sewer,
improved access via another bridge to mainland, local street improvement
program, public water (recently completed). The Town relies on its
land use plan and proposed management system to channel growth to
areas needing redevelopment and away from fragile environmental lands.
The Town proposes to set up a Redevelopment.Committee to advise and
direct plans in six identified sections of the Town. The.planned
.zoning ordinance will encourage PUD development and set standards for
development in the dunes, maritime forest, shoreline, and wetlands.
Restrictions on development when placed against spurs to development,
..such as a third bridge to the mainland from the isle and the construction.
of.a public sewer system, should result in the achievement of a broad
goal: the creation of a pleasant,.attractive beach and boating -fishing
community with a, moderate to high density, and a sustained seasonal
population of 30,000 in 1990.

3
2.1 Present Conditions: Population
Planning traditionally begins with the study of the number of
people residing within the planning jurisdiction. Population data is
basic for making decisions as to the capacity of the land to support
growth, the level and timing of services and appropriate policies for
alleviating existing problems.
Atlantic Beach has two populations, a permanent and a
seasonal one. The seasonal population, by far the more important one
for planning purposes, has several classifications. Seasonal popula-
tion can be defined as the total number of persons visiting the Town
at any given point'in time or as only those staying overnight in
lodging within the Town. To further complicate the picture, we can
refer to the seasonal population as a peak seasonal population, or an
average seasonal population. For planning purposes, we have sought to
focus on the population which will pose such a demand on services that
it can not be ignored or planned around. This population is the
sustained high seasonal population; a population that is•sus'tained for
a period of five days or more during the peak season.
In 1979 Coastal Consultants, Ltd. developed a methodology for
determining the seasonal population of a beach community. Briefly
stated that methodology involves counting the number of structures,
applying a factor to account for house size (persons per house) based
on the type structure and its location. The factor was calculated
from studying water use and doing a correlation analysis with the type
Y of unit.
A housing inventory completed in December 1980 by the consul-
tants showed the number of structures in the Town_and its planning

4
jurisdiction. The results are presented by sections in the following
table. Each section corresponds to a geographical area described on
a map accompanying the Plan. The abbreviations are as follows: MH:
mobile homes, BHS: beachhouse (large, old on the ocean), S: single
family, D: duplex, T: triplex, Q: quadroplex, MF: multi -family,
condominium, apartment complex, M: motels, T: total units.
TABLE 1
HOUSING SURVEY, 1980 (Number of Units)
Section MH S BHS' D T Q MF M T
1 93 43 40 16 0 12 73 0 329
2 158 67 0 26 0 0 0 10 260
3A 5 68 32 56 0 3 0 143 472
3B 37 114 0 26 1 0 0 12 218
4 262 105 0 4 0 0 67 84 526
5 0 125 43 23 0 0 0 88 302
6 238 65 0 0 0 0 0 0 303
7 0 30 72 0 0 0 0 0 102
8 372 8 0 0 0 0 351 0 731
9 423 73 0 0 0 0 188 231 925
Total ,
in Town 843 617 188 151 1 15 150 585 2699
Within 1
mile of
Town 795 81 0 0 0 0 549 231 1656
To change' -housing data into population, the following assump-
tions were applied: (1) the number of people in a dwelling is a
function of the house size and its proximity to the beach; (2) the
average single-family house size is 3 bedrooms (the number of 2

bedroom structures and 4 bedroom structures tend to counterbalance each
other); (3) the average summer population per bedroom for most units is
1.3 persons; (4) beachhouses on the oceanfront average about 1.5 per-
sons per bedroom, with an average of 5 bedrooms per unit; (5) motels
'tend to have smaller densities per unit, seldom averaging above 3.5
persons per unit. In applying the assumptions to Atlantic Beach, the
consultants decided to treat mobile homes in the same manner as single-
family dwellings due to the size and age of the majority of the units.
Applying the assumptions to the data, we note:
TABLE 2
AVERAGE SEASONAL POPULATION, 1980
Within Atlantic Beach Town Limits 12/12/80 11,172
Within Planning Jurisdiction 6,366
Total
17,538
According to the above studies the average population differed
from the sustained high seasonal population by less than 10%. Thus the
sustained high seasonal population does probably not exceed 12,300
people within the Town, or 19,300 within its planning jurisdiction.
The peak population.experienced on July 4th weekend and including day
visitors lodging in Morehead City or elsewhere than on the Bogue Banks
may exceed 35,000.
This population is substantially higher than the population
forecasted for the Town in the 1976 Land Use Plan. According to that
source, the 1980 population for the Town and its then 1 mile extra-
territorial jurisdictions (its planning jurisdiction) was 7,848 persons.
This was based on an assumption that there were 4 persons her house.
The Plan'projected a 1.3% annual growth rate from 1975 to 1980.

0
In comparing the housing surveys, we note the fallowing:
TABLE 3
HOUSING UNITS, 1975 to 1980
Type Unit 1975 1980 Percent Change
Motels 462 585 26.6%
Mobile Homes 629 843 34.0
• Other 744 1271 70.8
Total 1835 2699 41.6%
These numbers however are not exactly equatable because of differences
in the jurisdiction studied and in the method of computing the data,
i.e., we suspect that a duplex may have been counted as one unit in
1975, whereas now it is counted as two.
Another way of looking at the growth in the housing and popu-
lation.of the Town is to look at the new building permits issued by the
Town. Most building permits result in development within a period of
six months from the date of issuance. The number of building permits
issued between 1976 and present is as follows:
TABLE 4
BUILDING PERMITS ISSUED, 1976-1980 (in units)
Year S D T Q MF M T
1976 13 0 0 0 0 0 13
1977. 25 2 0 0 0 0 29
1978 27 9 0 0 0 0 45
1979 19 6 0 8 .0 0 63
1980* 9 11 0 0 21 0 63
*through October 1980.

- 7
In addition to this, 94 mobile units were added in 1976, 27
in 1980 and another 53 will probably be added in 1981. Thus, excluding
motel unit additions,probably between 335 and 400 units were added to
the housing stock in the last five years. The 740 units difference
reflected in the 1975 versus 1980 housing count would seem to indicate
changing jurisdictions (as mentioned before). In any event, the growth
in population as estimated using the consultant's methodology is as
follows:
TABLE 5
SEASONAL POPULATION CHANGE, 1975 to 1980
Year Population) Population2
1975 7649 9236
1980 11172 11172
lBased on housing data inventories
2Based on new building permit data
Based on this adjusted data, the annual growth rate for the Town appears
to be between 3.85% and 7.85%. This growth rate is hefty enough to cause
continuous planning problems.
This growth rate has probably been sharply constrained by the
lack of a public sewer system and the aesthetic general unattractive-
ness of the Town. Beach communities in the northern and southern parts
of the state have experienced over 8% annual increases in seasonal
population.
The permanent population of Atlantic Beach has probably also
been undercounted. The census data, the sole source of permanent popu-
lation data, probably does not reflect the number of people who have

8
retired to the Town but not declared it home for census purposes (even
though they may live there nearly the entire year); it may also not
count those persons who have no actual residence or place in
society. In any event the permanent population as counted by the
census is as follows:
TABLE 6
PERMANENT POPULATION, 1950-19803
Year., Population Percent Change
1950 49
1960 76 55.1%
1970 300 294.7
1980 724 141.3
We should note that the 1975 estimated population was set at 500 people
and that the 1977 estimated population was set at 660.4 This represents
an annual average growth rate of 9.5%
A more detailed examination of the permanent residents shows
that in 1970 approximately 96% were white, that 56% were between 20 to
44 age group (517. between 20 and 34 age group), that only 10% were over
the age of 55, that the major employment was wholesale and retail
trades, that very few families or persons were below the poverty level.
The more detailed tables are as follows:
3Bureau of the Census
4North Carolina Department of Administration

9.
TABLE 7
RACIAL COMPOSITION, 1970
Race Atlantic Beach County
White 95.7% 88.4
Negro __ 11.1
Indian 2.4
Other 1.8
.6
SOURCE: Bureau of Census
TABLE 8
AGE AND SEX CHARACTERISTICS, 1970
Number of Number of
Age Males Females Total Persons
0-4 10 6 16
5-14 39 8 47
.15-24 53 .36 89
25-34 36 28 64
35-44 9 4 13
45-54 11 4 15
55-64 7 10 17
65+ 7 6 13
1
SOURCE: Bureau of Census
The age and sex characteristics are noteworthy for the absence of
females between the ages 6 and 21 and its 60.9% male population. When
data from the 1980 Census is available, the Town will be able to deter-
mine if in -migration has made it more of a retirement community,
whether there is a high degree of mobility in its residents, or a
predictable set of characteristics for in -migrants.

10
In conclusion, the sustained peak population is the population
most important for planning purposes. The Town's 1980 sustained
peak population is estimated at 11.172. This number should be
increased to 17,928 if the Town's planning jurisdiction and probable
1990 Town limit are considered. Based on past growth rates,
justified in part by a presumption that changes made under this
land use plan will only affect the growth rate in the last 2 or 3
years of the decade, then the 1990 sustained peak population is
projected to,be 26,158 persons.
2.2 Present Conditions: Economy
The economy of Atlantic Beach is nearly totally oriented to
the tourist industry. Atlantic Beach has only a small permanent popu-
lation; and, most of these residents earn their living from tourism.
Approximately 12% of the total land in the Town is used for commercial
purposes, these include small grocery stores, real estate and insurance
offices, novelty and gift shops, restaurants, bars and night spots,
amusement areas --miniature golf courses, waterslides, arcades --
marinas, etc.
The Town attracts the two major tourist groups which frequent
the Carolina coast, beach users and boaters. The number of beach users
may reach daytime peaks of 30,000 people. The Town has a public access
beach area which attracts a significant number of.swimmers and sun-
bathers. Street right-of-ways deadending into the beach also provide
public access for persons staying in beach cottages throughout the
Town. Within the Town limits are located some twenty motels and
approximately 100 businesses.

11
In addition to beach users, the Town is also very attractive
to boat users. At least seven marinas are located within the Town.
The total storage or docking capacity of these facilities is approxi-
mately 900 boats. Most of these facilities attract powerboats, used,
heavily for sport fishing and pleasure craft purposes. One facility
attracts sail boats. Boat use is currently near capacity. The
potential for additional marinas may be limited by shallow water in the
Sound. Currently only Queen's Creek is dredged and kept open by the
Army Corps of Engineers.
The tourist industry promoted by Atlantic Beach probably has -
positive spinoff effects for the County and particularly for the Town
of Morehead City. Many of the Town's summer tourists are residents of
the Town for several weeks or more. They place fuller demands on
shopping, banking and entertainment facilities (to mention only a few)
than can be accommodated in Atlantic Beach or on the Bogue Banks.
The future of the tourist industry appears very strong.
During the 60's acid 70's, growth from total travel expenditures within
Carteret.County was at about 10% per year. National trends observe a
strong demand for increased leisure opportunities. The existing land
use will probably be the major deterent to Atlantic Beach's getting its
share of the future tourist market.
2.3 Present Conditions: Agriculture, Fishing, Recreation, Forestry,
Seasonal Use
Agriculture
Agricultural production is not a significant use within the
Town.

12
Fishing
Atlantic Beach does not have any commerical fisheries within
the Town limits. Commerical fisheries exist in nearby Beaufort. Some
commercial fishing (with nets) has occurred in the past along the Bogue
Yi
Banks. Commercial net fishing could conflict with the swimming and
bathing uses of the beach if it were to occur during summer season.
Forestry
Forestry is not an important use in the Town. Only a small
portion of the Town is in a wooded state --and that is largely maritime
forest.
Recreation
Recreation is largely in the hands of the private sector and
is oriented to water use (either ocean or sound). The Town has owned
and maintained a public beach; it also owns several beach access
points. An exact determination of all possible sites, together with a
program of maintenance, etc. has not been completed by the Town. Pri-
vate recreation includes swimming, fishing, bathing, surfing, boating,
camping, and more 'commercial activities. The later includes rides in
amusement areas, night clubs, etc. Theatres and additional restaurants
are located in adjacent towns. See County Recreation Plan.
3.1. Existing Land Use
The Atlantic Beach planning area is a vacation resort and the
land.use of the area reflects this premise. The permanent residents
are basically made up of individuals who operate or work for tourist -
related business, and those individuals who are retired. It is
becoming more apparent, however, that many persons are living in
Atlantic Beach as their primary residence and commuting to work in

13
Morehead City and the surrounding area.
Examples of services and entertainments in the Town are motels,
restaurants, night clubs, fishing piers, tackle shops, boat sales and
storage, service stations, amusement centers, beach -ware sales, gift
shops and convenience stores.
r The business community is located in strip development begin-
ning immediately south of the Intracoastal Waterway bridge along More-
head Avenue and then east and west along Fort Macon Blvd. The area at
the southernmost end of Morehead Avenue presently is occupied by summer
amusement arcades and night clubs for young people.
The older beach house community is found primarily on the
ocean side of Fort Macon Blvd. for about a dozen blocks east and west
of Morehead Avenue. Newer single-family subdivisions occupy canal lots
on the Sound.side. Large townhouse developments are located to the
east near Fort Macon.
The Town has many "pockets" of trailer parks. An especially
large one occupies four blocks between Fort Macon Blvd. and'Davis Blvd.
just west of Morehead Avenue. Other dense trailer parks are located
at North Shore Drive, Oceanna Pier Area, along Tyron Street, and a
large mobile home park just east and west of the present Town limits.
About 300 acres of coastal marsh exists east and west of the
Intracoastal Waterway bridge along Bogue Sound. Most of the remaining
undeveloped land is in maritimeforest on the Sound side and in vege-
tated dunes on the Ocean side.
The following are approximate acreages of various land uses
which include the present Town borders as well as the extraterritorial
planning jurisdiction.

Land Use
Acres
Residential Single Family
411
(includes mobile homes)
Residential Multi Family and
Motel
85
Commercial
78
Transportation, Communication
and Utilities
140
Government and Institutional
8
Areas of Environmental, Concern
355
Vacant Potentially Developable
521
3.2 Significant Land Use Compatibility Problems
Compatibility problems in Atlantic Beach are basically of two
kinds: one, conflicts between uses, and two, poor selection of uses.
The major conflicting use is between mobile homes and stick housing.
The poorest quality mobile home, areas occur near Davis Blvd. and near
the Oceana Motel. These uses appear to bring down the quality of stick
units nearby. In the older sections of Town, individual units are

_ 15
mixed with stick units and housing quality of the entire area is poor.
Another mixed use problem was created'by.the leapfrog pattern of
commercial housing. Residential units are separated by motels. In
terms of underutilized areas, perhaps the most noticeable is the go-
cart amusement area on the boardwalk along the triad in the Town;
others include the commercial triad itself and the mobile home develop-
ment adjacent to the Sound.
A potential hazardous use may result from the heavy reliance
on propane gas tanks in this dense pattern of development. The loca-
tion of the new water tower is incompatible with the development of the
triad.
If one would broaden the definition of compatibility, one
could say that a compatibility problem exists between development and
the natural.'environment.in the Town. .Past development has resulted in
the:elimination of the dune systems (primary and soundside dunes) and
the maritime forest. This pattern -is rather unnecessary as many beach
communities have been able todevelop without severely destroying their
natural environment (roads can be designed to accommodate the natural
landscape and the vegetation).
3.3 Problems From Unplanned Development
Problems from unplanned development fall into two categories --
those that affect safety and those that affect convenience. Planning
problems in Atlantic Beach tend to affect both. Perhaps the most
noticeable problem is that from poor subdivision and street layout.
Not only are.several of the subdivisions poorly designed as to internal
streets and the natural landscape, but..even more significantly sub-
divisions do not tie into each other. As a result roads do not meet;

16
streets end in cliffs, etc. Many of these problems are safety problems.
Police cars, fire trucks and emergency vehicles are severely limited in
the number of ways they can reach residential areas in the Town.
Individual persons in an emergency situation would find the layout
totally confusing. Others are inconvenienced, visitors probably have a
great deal of difficulty locating seasonal residents, and, seasonal
residents may have difficulty in reaching the commercial establishments
in Town.
Streets are a problem in several other respects. A majority
of streets are substandard in width. In the old section near the
commercial triad, at least one street has less than a 15 foot carriage-
way. Some necessary streets, especially the street east of the triad,
are posted as private. The,slopes on the streets (especially in the
old section) are extremely steep and may pose difficulties for
vehicles. A large number of the streets are unpaved or only semi
paved. Several of the cul-de-sacs are too long. Canals have cut off
one section of Town from another.
These latter street problems could also be hazardous and pose
safety implications. The lack of several (even two) ways -out of many
residential areas could pose a severe constraint to emergency vehicles
which could only be complicated by the narrowness of the pavement. Old
Causeway Road, Bayview Drive and Dune Street have only one exist. A
power line falling over the road during an emergency or evacuation
could endanger the lives of persons living in the subdivision. Some y
dirt roads in Town can sustain vehicle movement; however, many
shoulders are of sand which could cause vehicles to become stuck. Clay
roads and shoulders have caused poor surface drainage. Heavy summer

traffic on Fort Macon Road may limit access to the road from the sub-
divisions; an alternative route to move through the Town does not
exist.
The costs of curing these problems vary: an opportunity to
redraw the subdivision to provide for transition may never exist; the
laying of a local collector system for sewer may provide the opportunity,
to realign some streets (eliminating cars driving through.houses and
off cliffs), improve the grade of:others (so fire trucks can climb the
street), pave and increase the carriageway of others. Cul-de-sacs,
such as Old Causeway Road and Bayview Drive, cannot be corrected with-
out causing unacceptable conflicts to the commercial livelihood of the
Town. Another exit from Dune Street to Fort Macon Road is possible.
Turnarounds at the end of cul-de-sacs could be enlarged to accommodate
.emergency vehicles.
In addition to the street subdivision problems, a.number of
other problems have resulted from unplanned development. Chief among
these are.aesthetic problems: densities are very high for single-
family development. Although other coastal towns and cities may have
as high a density,'they have been fortunate to have been developed with
higher quality housing, to have been maintained better, and to have
been free from the litter problem very prevalent within the Town of..
Atlantic Beach. The aesthetics,of the Town are complicated by a large
number of dilapidated and substandard mobile homes, old stick beach
cottages which are abandoned (or should be) and are falling down. The
old oceanfront 'section (typically high quality) is junky; the Sound
waterfront has witnessed the poorest quality development, a rundown
mobile home area immediately adjacent to'the Town; vegetation is spotty.

Besides aesthetic problems, the Town has probable health and
environmental problems. Residences on septic tanks with filter fields
within only a few feet of canal lots and the Sound have probably
caused pollution.of nearby estuarine waters. Poor drainage and ponding
may cause effluent and chemicals from motor vehicles to lay on the
surface following even a light rainstorm.
Furthermore, public beach access is severely limited. The
Town does not have even one improved beach access point. Furthermore,
identification of beach access areas for use even by the Town's sea-
sonal residents is difficult in many areas of Town. Parking near
beach access points.or on the streets along the ocean is not possible
without aggravating the limitations of the street system even further.
Problems relating to aesthetics, the environment, beach
access and health have apparent cures. The Town has taken efforts to
limit and phase out mobile homes. Slummy commercial development can
be eliminated through redevelopment. Historicpreservation programs
have rehabilitated old beach cottages, especially the several hundred
within two blocks of the ocean. Historic district zoning could create
aesthetic standards. A community block program could be used to pick
up litter, paint and repair structures, realign streets, create
drainage ditches, plant vegetation. The building code could be used
to cause the destruction of abandoned structures. A public sewer
system could alleviate problems from septic tanks and could provide the
incentive for revising the streets. A beach access program could be
initiated.
3.4 Areas Likely To Experience Changes
An appraisal of which areas are likely to experience changes

19
and the nature of the change will probably be sensitive to the policies
adopted by the Town. Residential development should occur in the
recently annexed areas to the east and west of Town. Areas adjacent
to these areas and subject. -to future annexation will probably also
develop and fill in. Infill in the older sections of Town will be more
limited as only 10% of the land is undeveloped. However, redevelopment
is very likely. The Town's selection of a location for the new bridge
to the Bogue Banks could have the effect of opening a new commercial
area for the Town, making an already developing residential area west
of the access commercial rather than residential. It could and probably
will also lead to the demise and decay of the present commercial area
along Morehead Blvd. and in the triad. Motels,and commercial housing ,
will probably be attracted to the area nearest the new bridge to the
mainland. Oceanfront revitalization of historic and old structures
:before 1990 seems likely; in the alternative, commercial housing rede-
velopment.may be -possible around 2QOO when the structures reach such a -
dilapidated condition that the market will find their destruction no
longer an economic.constraint. (Redevelopment may be limited by State
.,guidelines for developing in oceanfront areas even though a seawall
exists.) Industrial and mining uses are unlikely.
3.5 Areas of Environmental Concern
Pursuant to Statute the Coastal Resources Commission has
nominated and regulates development in certain areas called areas of
environmental concern. A more detailed description of the constraint
and the rationale behind the constraint has been provided in the land
suitability section of this plan. The areas of environmental concern
(AECs) existing in the Town of Atlantic Beach include: wetlands,

J
14
L14
Q
U
LA
Qj
I
137N, lt�'�nN3g
7
IM

20
ocean hazard area, estuarine waters, public trust waters, and estuarine
shoreline. The Coastal Resources Commission has been studying maritime
forests and soundside dunes for possible inclusion in this system.
These regulations broadly stated affect the Town as follows:
(1) in the ocean hazard AEC, no development is allowed within 60
feet`of the seawall, or landward of the primary or frontal dune;
controlled development is permitted .by permit elsewhere in the zone;
(2) in estuarine shoreline AEC, controlled development is permitted
by permit;(3) in estuarine waters and wetlands, development is
virtually prohibited.
4.1 Current Plans, Policies and Regulations
Atlantic Beach has participated in several projects involving
water and sewer planning during the past ten years.: They have also
prepared an unadopted land use plan. A list of these studies and
reports are as follows:
Carteret County Complex 201_Facilit_y Plan, 1979.
This plan selected a course of action for the East Bogue
Banks Sub -Area of Carteret County (consisting of Atlantic Beach and
Pine Knoll Shores.) The plan calls for'the construction of a con-
ventional gravity sewer system with ocean discharge at Pine Knoll
Shores.
Prior to this plan being adopted, the Town did several
preliminary studies, including:

21
Comprehensive Water and Sewer Planning Report, 1970.
This report analyzed existing water and sewer facilities;
estimated demand and needs to 1990.
Comprehensive Water and Sewer Plan, 1973.
This report updated 1970 information. Forecasted
population in light of recent growth.
Preliminary Engineering Report, East Bogue Banks Regional
Wastewater Treatment Facility, 1974.
This plan proposed an interim waste treatment facility
of .2 MGD be built in Pine Knoll Shores to meet development needs.
(Implemented)
Preliminary Engineering Report, Municipal Water System, 1973.
This report inventoried demands and needs for water use in
Town to the year 1985. Prior to this plan the Town engaged in
several water studies (See above.). See also,
Region P Phase I, Water Quality Management Plan, 1973.
This plan suggests that water planning be done at the
county rather than regional level. It discusses the funding alter-
natives for planning and construction.
Carteret County Land Use Plan, 1978.
This is the County Land Use Plan which was prepared by the
State to meet the requirements of Coastal Area Management'Act.
The Plan governs land use development in all areas of the County not
operating under a State approved land use plan. The Town prepared a
1976 Land Use Plan but the Town later rescinded the.Plan subsequent

22
to approval by the Coastal Resources Commission. Legally thereis
some question as to whether the 1976 Atlantic Beach Plan or the
Carteret County Land Use,Plan is to be applied in State and Federal
review of projects and in AEC consistency. The rescission of the
Town Plan leaves no plan currently in force at the Town level.
The Official title of the other plans undertaken at the local
level are:
1976 Atlantic Beach Land Use Plan.
A Land Use Survey and Analysis, Land Development Plan,
1972. Sketch development plan for Atlantic Beach.
Ocean and Estuarine Recreation Access, 1979.
A recreation and beach access plan for Carteret County,
Inventories existing and potential access points to ocean and
sound. Does. not include plan for Town action.
4.2 Current Ordinances and Regulations
The Town has enacted many of the ordinances they were allowed
to enact under State law, however, most of the ordinances need to
be revised to make them consistent with the enabling legislation and
the policies from this land use plan. Also, the ordinances should
be reviewed to consider fully whether additional features included in
ordinances of many similarly situated towns in the coastal area
should also be included here. A listing of the ordinances is as
follows:

Zoning Ordinance,amended 1978
Subdivision Regulations, amended 1975
Mobile Home Park Ordinance, 1975
Group Housing Project, 1975
F
Minimum Housing Code, 1975
Building Code, 1975
Flood Ordinance, as amended 1980
Zhe Town has a part-time building inspector, who also acts as
CAMA permit officer, and.who is,responsible for enforcing all the
above ordinances.

24
4.3 State and Federal Licenses and Permits.
A. STATE LICENSES AND PERMITS
Agency
Department of Natural Resources
and Community Development
Division df Envi`ronmental
Management
Department of Natural Resources
and Community Development
Office of Coastal'Management
Department of Natural Resources
and Community Development
Division of Earth Resources
Licenses and Permits
--Permits to discharge to surface
waters or operate waste water
treatment plants or oil dis-
charge permits; NPDES Permits,
(G.S._143-215)
--Permits for septic tanks with
a capacity over 3000 gallons/
day (G.S. 143-215.3).
--Permits for withdrawal of sur-
face or ground waters in capac-
ity use areas (G.S. 143-215.15).
--Permits for air pollution.abate-
ment facilities and sources
(G.S. 143-215.108).
--Permits .for construction of com-
plex sources; e.g. parking lots,
subdivisions, stadiums, etc.
(G.S. 143-21.5.1,09).
--Permits for construction of a
well over 100,000 gallons/day
(G.S. 87-88).
--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.
--Permits to alter or construct a
dam (G.S. 143-215.66).
--Permits to mine (G.S. 74-51).
--Permits to drill an exploratory
oil or gas well (G.S. 113-381).

25
Agency Licenses and Permits
--Permits to conduct geophyptdal
exploration (G.S. 113-391).
Sedimentation erosion control
plans for any land disturbing
activity of over one contigu-
ous acre (G.S. 113A-54).
Department of Natural Resources Permits to construct an oil
and Community Development refinery.
Secretary of NCRO
Department of Administration --Easements to fill where lands
are proposed to be raised above
a the normal high water mark of
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
constitutes a community water
source (G.S. 130-160.1).

26
FEDERAL
LICENSES AND PERHITS
• Agency
Licenses and Permits
Army Corps of Engineers
--Permits required under Sections
' (Department of Defense)
9 and 10 of the Rivers and Har-
bors of 1899; permits to con-
struct 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 Pollu-
tion Control Act of 1972; per-
mits to undertake dredging and/
or filling activities.
> Coast Guard
--Permits for bridges, causeways,
(Department of Transportation)
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
--Permits required for off -shore
Bureau of Land Management
drilling.
(Department of Interior)
--Approvals of OCS pipeline corri-
for rights -of -way.
Nuclear. Regulatory Commission
--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.
Federal Energy Regulatory
--Permits for construction, opera -
Commission
tion and maintenance of interstate
pipelines facilities required
under. the Natural Gas Act of 1938.

27
Agency Licenses and Permits
--Orders of interconnection of
electric transmission facilities
under Section 202(b) of the
Federal Power Act.
--Permission required for abandon-
ment of natural gas pipeline and
associated facilities under Sec-
tion 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.

Part II: Constraints to Development
5.1 Land Suitability: Physical Limitations for Development
An analysis was made to determine the suitability for develop-
ment of all undeveloped lands in the Town. The first part of the
analysis deals with the general soil conditions in the Town and how the
natural soil properties present certain restrictions to development.
Soil scientists observe how soils behave when used as a growing place
for native and cultivated plants, and as a material for structures,..
foundations for structures, or covering for structures, as well as the
properties which relate to the functioning of filter beds for septic
tanks. For example, they observe that filter beds for on -site disposal
of sewage fail on a given kind of soil, and they relate this to the
slow permeability of the soil or to its high water table. They see that
streets, road pavements, and foundations for houses are cracked on a
named kind of soil and they relate this failure to the high shrink -swell
potential of the soil material. Thus, they use observation and know-
ledge of soil properties, together with available research data, to
predict limitations or suitability of soils for present and future uses.
The second part of the analysis deals with hazard areas,
including man-made hazards (for example, airports, storage of hazardous
chemicals) and natural hazards (for example, erodible areas, flood
hazard areas).
The third part of the analysis deals with sources of water
supply including groundwater recharge areas (bedrocks and surficial and

29
wellfields).
The fourth part of the analysis deals with fragile areas.
These are areas which could easily be damaged or destroyed by inappro-
priate or poorly planned development (e.g. estuarine shoreline and
waters, habitats, archaeologic and historic sites, wetlands).
The fifth part of the analysis includes areas with resource
potential (e.g. publicly -owned forests, parks, fish and game lands,
wildlife sanctuaries, valuable mineral sites).
A. Soils
This is an analysis of the general suitability of the Town's
soils for use as future sites for development. All of the Town's soils
are classified as having some degree of physical limitations for
development. The analysis indicates the various soils found in the
Town.and indicates the degree of suitability for various purposes. The
results of the analysis are beneficial for planning purposes-; however,
on -site inspections would be necessary to determine specific soil
properties for development. Although soils may be rated as having
various degrees of limitations, engineering practices and construction
techniques can alter the degree to which a particular limitation affects
a development use.
Each rating for soil types as determined by the U.S. Soil
Conservation Service is indicated below.
Slight: Soil properties are generally favorable for the stated use, or
limitations are minor and can be easily overcome..
Moderate: Some soil properties are unfavorable but limitations.
resulting from the properties can be overcome or modified by
special planning, good design, and.careful management.

30
Severe: Soil properties are unfavorable and resulting limitations are
too difficult to correct or overcome. Soil will require major
soil reclamation or special design for stated uses. This
rating does not imply that the soil cannot be used.
Very Severe: This rating is a subdivision of the severe rating and has
one or more features so unfavorable for the stated use that
the limitation is very difficult and expensive to overcome.
Reclamation would be very difficult, requiring the soil mater-
ial to be removed, replaced, or completely modified. This
rating is confined to soils that require extreme modification
and alteration, and are generally not used for dwellings and
septic tank filter fields.5
Analysis of the soil maps and existing land use shows that
most development has taken place on the.Newhan-Urban Land complex soils
(map symbol 24) and Madeland (map symbol 17) (see Map`C).
These solid consist of areas of Newhan soils and urban land
that are too intricately mixed to be separated at the scale used in
mapping.
Newhan soils occupy more than half of the mapping unit. Their
soil properties are well drained to excessively drained sandy soils.
The soils are droughty, and the natural fertility is low.
The percolation of water is very rapid in the Newhan soils.
They have a very thin layer (0-2") of grayish -brown fine sand with some
organic matter and plant fibers. The rest of the soils have layers
5Soil Conservation Service, U.S.D.A.

Soil Factors
Streets
Map
Depth to Seasonal
Dwelling
and Road
Septic Tank Filter
Soil Unit
Symbol
Permeability
High Water Table
Flooding
Suitability
Suitability
Field Suitability
Beach
0-3' Beach
Frequent,H
Very Severe
Very Severe
Very Severe
Foredune
3
Rapid
6' Foredune
Rate, F
Flooding
Flooding
Flooding
Carteret
Very Severe
Very Severe
Very Severe
Low
6
Rapid
0-3'
Frequent
Flooding, Wet
Flooding, Wet
Flooding, Wet
Corolla
Rare to
Severe -Wet,
Fine Soil
7
Very Rapid
1.5-3'
Common
Severe -Wet
Severe -Wet
Poor Filtering
Storm Tides
Dredge
Rare
Severe,
Soil
10
Rapid
3'
Storm Tides
Severe
Severe
Poor Filtering
Duckston
Rare to
Severe -Wet
Fine Sand
12
Very Rapid
1-2'
Common
Severe -Wet
Severe -Wet
Poor Filtering
Storm Tides
Fripp
Rare
Severe =
Moderate-
Slight -may have
Fine Sand
15
Rapid-
6'
Storm Tides
Floods
Floods
Poor Filtering
Rare
Severe,
Madeland
17
Rapid*
3'
Storm Tides
Severe
Severe
Poor Filtering
Carteret
Frequent
Very Severe- 'Very
Severe-
Very Severe -
High
18
Rapid
1-3'
(Monthly]
Flooding, Wet
Flooding, Wet
Flooding, Wet
Newhan
Corolla
22
Very Rapid
1-6'
Rare
Moderate
Moderate
Moderate
Duneland
Severe on
Severe on
Severe on dunes,
Newhan
23
Very Rapid
6'
None
dunes, slight
dunes, slight
slight on low
on low areas
on low areas
areas, may have
poor filtering
Newhan
Rapid to
Moderate -may
Urban Land
24
Very Rapid
3-6'
Rare
Moderate
Moderate
have poor
filtering
6Soil Conservation Service,
U.S.D.A.
d

32
of stratified sand that range from fine to coarse.sand with varying
amounts of shells.. Since the soils perc rapidly,'septic tank effluent
moves through them quickly. The problem of concern is that fecal coli-
form may not stay in the soils long enough, and contamination of water
supplies and adjacent water bodies is probable.
The urban land.portion of this.mapping unit includes the area
covered with'buildings, driveways, streets,.and parking lots. In these
areas, the soil is covered with impervious material. Many areas have
had little disturbance, while others have been cut, filled or both
The urban land portion of this unit ranges from 10 to 20.percent of
the land area,
The Madeland unit is adjacent to the wateron the Sound side
of the islands. The soil material has been pumped or dredged during
the construction of canals and has been deposited between the canals
to..be :used as building sites. Essentially, a-l1 of the material has
been deposited -over marsh. The average thickness of the soil material
ranges from-3 to 6 feet. The water table fluctuates -with changes in
tide level; however, most areas have a water table 2 to 4 feet below
the surface during high tide. The material is mainly sandy, but some
areas contain up to 10 percent shells
Water moves through the material readily and most areas are
droughty. They generally have poor filtering.capacity for septic tank
effluent, and the potential hazard of groundwater and adjacent surface
water pollution is high.
These areas are commonly used for homesites because of the
access to water. Landscaping of these areas usually requires technical

TOWN
c
N
1
ATLANTIC OCEAN

33
assistance to help solve associated problems.7
B. Slope --
The topography -of the Bogue Banks is typical of the barrier
islands. The main physical features are the sand dunes and the low-
lying forests which cover most of the undeveloped acreage. The main-
land side of the island borders on extensive salt marshes.
The dunes of the Duneland-Mewhan soils complex (map symbol 23,
see Map C) present hazards to development due to the steep slopes of
the dunes and the unstable nature of the dunes themselves.
Beach erosion has always been a problem. The erosion is a
natural occurrence, a part of the normal long-term dynamic erosion/
accretion process of migration.of the barrier islands. Recent studies
have shown that the Bogue Banks are slowly retreating toward the main-
land. The erosion rate of the duneline since 1939 is averaging 5 feet
per year over the entire island with the most erosion occurring adjacent
to the inlets. Storms have been cited as the principal cause of
erosion. Efforts have been made to curtail erosion by cooperative
federal, state, and local dune protection and shore stabilization
projects, all of which, at best; have only been marginally effective.
Extensive areas of the fringing marsh'on the north side of the island
have been dredged and/or filled for the construction of boat basins and
trailer parks and have significantly altered the natural topography in
certain areas.8
7Soil Conservation Service, U.S.D.A.
BNenry von Olsen and Associates; Carteret County Complex 201
Facility Plan, 1979.

34
C. Hazard Areas
(1) Man -Made Hazards - a hazard may.exist in the wide-
spread use of propane tanks.thnoughout the Town.
(2) Natural Hazard - the primary causes of the hazards pecu-
liar to the Atlantic Ocean shoreline are the constant forces exerted by
waves, winds, and currents upon the unstable sands that form the shore.
During storms, these forces are intensified and can cause significant
changes in the bordering landforms and to structures located on them.
The ocean hazard areas include beaches, frontal dunes, inlet
lands, and other areas in which geologic, vegetative and soil conditions
indicate a substantial possibility of excessive erosion or flood hazard.
The ocean hazard areas include in the Town the ocean erodible
area (see section 2, "Fragile Areas" for.a more complete discussion)
and the high hazard flood area. This.is the area subject to high
velocity waters (including but not limited to hurricane wave wash) in
a storm having a one percent chance of being equalled or exceeded in
any given year, as identified as Zone VI-30 on the flood insurance rate
maps of the Federal Insurance Administration, U.S. Department of
Housing and Urban Development.9 In Atlantic Beach, these areas exist
along the ocean shoreline as well as on the Sound side (see Map E).
Another area of potential hazard is the 100 year flood hazard
area. Most of the Town is subject to the 100 year flood except for
some pockets of higher ground such as those found in the Duneland-
..Newhan soil complex (see Map C and Map E).
9North Carolina DNRCD, 15 NCAC 7H, State Guidelines for Areas
of Environmental Concern, 1979.

35
Another hazard area is the estuarine shoreline of the mainland
side of the island. This area is especially vulnerable to erosion,
flooding and other adverse effects of wind and water (see section 2,
"Fragile Areas" for more discussion).
D. Sources of Water Supply
Y
The area is underlaid by about 2500 to_5500 feet of sediments,
ranging in age from Cretaceous to the present. These sediments are
composed of interbedded sands, clays, and limestones. Only the sedi-
ments of Eocene age or younger are -considered to contain relatively
high mineralized water and are not usually utilized for water supply
purposes.
The undifferentiated post Miocene sediments consist of super-
ficial fine to medium sand with interbedded clays and sandy shell hashes
ranging in thickness from 25 feet in western and northwestern portions.
of the County to 70 feet in the northwestern portion. The post Miocene
sediments, ranging in thickness from 50 feet in the northwestern
portion of the County to 200 feet in the eastern portion, dip at a rate
of approximately 5 feet per mile. The sediments of the Oligocene age
are sandy shell limestone with some interbedded clays and sands common
i6 the eastern portion of the County. These sediments, dipping to the
southeast at from 5 to 10 feet per mile, range in thickness from 300 to
550 feet along their dip.
The Eocene sediments of the area are of the same lithology as
the Oligocene sediments and have a thickness ranging from 400 feet to
900 feet across the county. The regional dip of these Eocene. sediments
is approximately 10 feet per mile.

0-1
, In the area three aquifers are utilized for water supplies,
the water table, the Yorktown aquifer and the Castle Hayne aquifer.
The water table located in the post Miocene sediments is
within 5 feet of the surface in the Atlantic Beach area. The waters
from this zone are corrosive and usually have objectional odor, color,
and iron contents. Saltwater intrusion into the water table in areas
adjacent to water bodies is an ever present possibility.
The Yorktown and Castle Hayne aquifers are considered together
in the description due to the practice of constructing wells which
penetrate both aquifers. The Yorktown aquifer is contained within the
sands, shell hashs, and limestones of the Miocene sediments, while the
Castle Hayne aquifer is located in the limestones of the Oligocene and
Eocene ages. The three wells drilled for the Atlantic Beach municipal
system now under construction are at depths of 200 to 250 feet. The
quality of the water is noted for its hardness; reported as calcium
carbonate, it ranges from 200 to 350 parts per million.. Although
chloride levels are acceptable, care must be taken to insure that heavy
drawdowns will not allow saltwater intrusion. Due to the shallowness
of these water supplies, care must be taken to insure protection from
contamination of these supplies from wastewater.10
5.2 Land Suitability: Fragile Areas
Since the Town of Atlantic Beach is located in coastal North
Carolina, it recognizes areas which are environmentally fragile and for .
which development is discouraged or subject to regulation. On the map _
"North Carolina Department of Natural and Economic Resources.

37
of fragile areas (see Map E) are shown areas considered to be fragile
resources. The coastal marshes estuarine waters, estuarine shoreline,
public trust areas and ocean hazard areas are considered to be Areas of
Environmental Concern (AECs) and are subject to permitting. The
following description of AECs are taken from the North Carolina State
Guidelines for Areas of Environmental Concern, Subchapter 7N, Sept. 15,
1979. (See Part II "Policy" for discussion of management objectives .
and Map E for general location.)
A. Coastal Wetlands
(a) Description. Coastal wetlands are defined as any salt
marsh or other marsh subject to regular or occasional flooding by tides,
Including wind tides (whether or not the tide waters reach the marsh-
land areas through natural or artificial watercourses), provided this
shall not include hurricane or tropical storm tides.
Coastal wetlands contain some, but not necessarily all, of the
following marsh plant species:
(1) Cord Grass (Spartina alterniflora),
(2) Black Needlerush (Juncus.roemerianus),
(3) Glasswort (Salicornia spp.),
(4) Salt Grass (Distichlis spicata),
(5) Sea Lavender (Limonium spp.),
(6) Bulrush (Scirpus spp.),
(7) Saw Grass (Cladium jamaicense),
(8) Cat -tail (Typha spp.)
(9) Salt Meadow Grass (Spartine patens),
(10) Salt Reed Grass (Spartine cynosuroides).
Included in this definition of coastal wetlands is "such

99
contiguous land as the Secretary of NR&CD reasonably deems necessary to
affect by any such order in carrying out the purposes of this Section."
[G.S. 113-230(a)]
(b) Significance. The unique productivity of the estuarine
system is supported by detritus (decayed plant material) and nutrients '
that are exported from the coastal marshlands. The amount of exporta-
tion and degree of importance appears to be variable from marsh to
marsh, depending primarily upon its frequency of inundation and inherent
characteristics of the various plant species. Without the marsh, the
high productivity levels and complex food chains typically found in the
estuaries could not be maintained.
Man harvests various aspects of this productivity when he
.fishes, hunts, and gathers shellfish from the estuary. Estuarine
dependent species of fish and shellfish such as menhaden, shrimp,
flounder,.oysters,.and crabs currently make up over 90 percent of the
total value.of North Carolina's commercial catch. The marshlands,
therefore, support an enormous amount of commercial and recreational
businesses along the seacoast.
The roots, rhizomes, stems, and seeds of coastal wetlands act
as good quality waterfowl and wildlife feeding.and nesting materials.
In addition, coastal wetlands serve as the first line of defense in
retarding estuarine shoreline erosion. The plant stems and leaves tend
to dissipate wave action, while the vast network of roots and rhizomes
resists soil erosion. In this way, the coastal wetlands serve as
barriers against flood damage and control erosion between the estuary
and the uplands.
Marshlands also act as nutrient and sediment traps by slowing

39
the water which flows over them and causing suspended organic and
inorganic particles to settle out.' In this manner, the nutrient store-
house is maintained, and sediment harmful to marine organisms is
removed. Also, pollutants and excessive nutrients are absorbed by the
• marsh plants, thus providing an inexpensive water treatment service.
In the Town, coastal wetlands are found extensively on the
.sound side of the island. Generally, these are the Carteret low soils,
(map symbol 6, see Map C).
B. Estuarine Waters
(a) Description. Estuarine waters are defined in G.S. 113A-
113(b)(2) as "all the water of the Atlantic Ocean within.the boundary
of North Carolina and all the.waters of the bays, sounds, rivers, and
tributaries thereto seaward of.the dividing line between coastal
fishing waters and inland fishing waters, as set forth in an agreement
adopted by the Wildlife Resources Commission and the Department of
!Natural Resources and Community Development filed with the Secretary of
State, entitled 'Boundary Lines, North Carolina Commerical Fishing --
Inland Fishing Waters,' Revised to March 1, 1965."
(b) Significance. Estuarine waters are the dominant component
and bonding element of the entire estuarine system, integrating aquatic
influences from both the land and the sea. Estuaries are among the most
productive natural environments of North Carolina. They support the
valuable commercial and sports fisheries of the coastal area which are
comprised of estuarine dependent species such as menhaden, flounder,
• shrimp, crabs, and oysters. These species must spend all of some part
of their life cycle within the estuarine waters to mature and reproduce.
Of the 10 Teading species in the commercial catch, all but one are

40
dependent on the estuary:
This high productivity associated with the estuary results from
its unique circulation patterns caused by tidal energy, fresh water
flow; and shallow depth; nutrient trapping mechanisms; and protection
to the many organisms. The circulation of estuarine waters transports
nutrients, propels plankton, spreads seed stages of fish and shellfish,
flushes wastes from animal and plant life, cleanses the system of
Pollutants, controls salinity, shifts sediments, and mixes the water to
create a multitude of habitats. Some important features of the estuary
include mud and sand flats, eel grass beds, salt marshes, submerged
vegetation flats, clam and oyster beds, and important nursery areas.
Secondary benefits include the stimulation of the coastal
economy from the spin off operations required to service commercial and
sports fisheries, waterfowl hunting, marinas, boatyards, repairs and
supplies, processing operations, and tourist -related industries. In
addition, there is considerable nonmonetary value associated with
aesthetics, recreation, and education, and establish a management
system capable of conserving and utilizing estuarine waters so as to
maximize their benefits to man and the estuarine system.
In the Town, these waters are the waters of Bogue Sound adja-
cent to the community and the Atlantic Ocean, as well as finger canals
located in the Town.
g
C. Public Trust Areas
(a) Description. Public trust areas are all waters of tha
Atlantic Ocean and the lands thereunder from the mean high water mark
to the seaward limit of state jurisdiction; all natural bodies of water
subject to measurable lunar tides and lands thereunder to the mean high

41
water mark; all navigable natural bodies of water and lands thereunder
to the mean high water level or. mean water level as the case may be,
except privately -owned lakes to which the public has no right of access;
all water in artificially created bodies of water containing signifi-
cant public fishing resources or other public resources which are
accessible to the public by'navigation from bodies of water in which
the public has rights of navigation; and all waters in artificially
created bodies of water in which the public has acquired rights by
prescription, custom, usage, dedication, or any other means. In deter-
mining whether the public has acquired rights in artificially created
bodies of water, the following factors shall be considered:
(1) the use of the body of water by the public,
(2) the length of time the public has used the area,
(3) the value of public resources in the body of water,
(4) whether the public resources in the body of water are
mobile to the extent that they can move into natural
bodies of water,
(5) whether the creation of the artificial body of water
required permission from the state, and
(6) the value of the body of water to the public for navi-
gation from one public area to another public area.
(b) Significance. The public has rights in these areas,
including navigation and recreation. In addition, these areas support
valuable commercial and sports fisheries, have aesthetic value, and are
important resources for economic development.
In the Town, these areas are Bogue Sound and the Atlantic
Ocean as well as finger canals located in the Town.

42
D. Estuarine Shorelines
(a) Rationale. As an AEC, estuarine shorelines, although
characterized as dry land, are considered a component of the estuarine
system because of the close association with the adjacent estuarine
waters. This Section defines estuarine shorelines, describes the
significance, and articulates standards for development.
(b) Description. Estuarine shorelines are those non -ocean
shorelines which are especially vulnerable to erosion, flooding, or
.other adverse effects of wind and water and are intimately connected to
the estuary. This area extends from the mean high water level or normal
water level along the estuaries, sounds, bays, and brackish waters as
set forth in an agreement adopted by the Wildlife Resources Commission
and the Department of Matural Resources and .Community Development
[described in Regulation .0206(a) of this Section] for a distance of
75 feet landward.
(c) Significance. Development within estuarine shorelines
influences the quality of estuarine life and is subject to the damaging
processes of shore front erosion and flooding.
In the Town, these areas are the shoreline of Bogue Banks and
finger canals located in the Town.
E. Ocean Hazard Cateqories
The next broad grouping is composed of those AECs that are con-
sidered natural hazard areas along the Atlantic Ocean shoreline where,
because of -their special.vulnerability to erosion or other adverse
effects of sand, wind, and water, uncontrolled or incompatible develop-
ment could unreasonably endanger life or property. Ocean hazard areas
include beaches, frontal dunes,"inlet lands, and other areas in which

43
geologic vegetative and soil conditions indicate a substantial possi-
bility of excessive erosion or flood damage.
F. Significance of the Ocean*Hazard Category
(a) The primary causes of the hazards peculiar to the Atlan-
tic shoreline are the constant forces exerted by waves, winds, and
currents upon the unstable sands that form the shore. During storms,
these forces are intensified and can cause significant changes in the
bordering landforms and to structures located on them. Hazard area
property is in the ownership of a large number of private individuals
as well as several public agencies and is used by a vast number of
visitors to the coast. Ocean hazard areas are critical, therefore,
because of both the severity of the hazards and the intensity of
interest in the areas.
(b) The location and form of the various hazard area land -
forms, in. particular the beaches, dunes, and inlets, are in a permanent
state of flux, responding to meteorologically induced changes in the
wave climate. For this reason, the appropriate location of structures
on and near these landforms must be reviewed carefully in order to
avoid their loss or damage. As a whole, the same flexible nature of
these landforms which presents hazards to development situation imme-
diately on them offers protection to the land, water, and structures
located landward of them. The value of each landform lies in the parti-
cular role it plays in affording protection to life and property.
Overall, however, the energy dissipation and sand storage capacities
of the landforms are�most essential for the maintenance of the landforms'
protective function.
The ocean hazard system of AECs contains all of the following

44
areas in the Town:
(1) Ocean Erodible Area. This is the area.in which there
exists a substantial possibility of excessive erosion and significant -
shoreline fluctuation. The seaward boundary of this area is the mean
low water line. The landward extent of this area is determined as
follows:
(a) a distance landward from the first line of stable
natural vegetation to the recession line that would be
established by multiplying the long-term annual erosion rate,
as most recently determined by the Coastal Resources Commis-
sion, times 30, provided that where there has been no long-
term erosion or the rate is less than two feet per year, this
distance shall be set at 60 feet landward from the first line
-of stable natural vegetation; and
(b) a distance landward from the recession line esta-
blished in Subparagraph (a) of this paragraph to the recession
line that would be generated by a storm.having a one percent
change of being equalled or exceeded in any given year.
In the Town of Atlantic Beach, the erosion rate is about 2
feet per year, making the required setback 60 feet. Much of the Town
is bulkheaded on the ocean shore, and the recession line is measured
60 feet from the bulkhead.
(2) The High Hazard Flood Area. This is the area subject to r
high velocity waters (including, but not limited.to, hurricane wave
wash) in a storm having a one percent chance of being equalled or
exceeded in any given year, as identified as zone VI-30 on the flood
insurance rate maps of the Federal Insurance Administration, U.S.

45
Department of Housing and Urban Development. In the absence of these
rate maps, other available base flood elevation data prepared by a
federal, state, or other source may be used, provided said data source
is approved by the CRC.
G. General Identification'and Description'of'Landforms
(a) Ocean Beaches. Ocean beaches are lands consisting of
unconsolidated soil materials that extend from the mean low water line
landward to a point where either: (1) the growth of vegetation occurs,
or (2) a distinct change in slope or elevation alters the configuration
of the landform, whichever is farther landward.
(b) Primary Dunes. Primary dunes are the first mounds of sand
located landward of the ocean beaches having an elevation equal to the
mean flood level (in a storm having a one percent chance of being
equalled or exceeded in any given year) for the area plus six feet.
The primary dune extends landward to the lowest elevation in the
depression behind that same mound of sand (commonly referred to as the
dune trough).
(c) Frontal Dunes. In areas where there is a primary dune,
that dune shall be deemed to the frontal dune. Where there is no
primary dune, the frontal dune is deemed to be the first mound of sand
located.landward of the ocean beach having sufficient vegetation,
height, continuity and configuration to offer protective value. Man-
made mounds seaward of the natural line of frontal dunes and dunes
created after June 1, 1979 shall not be considered to be frontal or
primary dunes.
(d) General Identification. For the purpose of public and
administrative notice and convenience, each designated minor develop-

46
ment permit -letting agency with ocean hazard areas may designate,
subject to CRC approval, a readily identifiable land area within which
the ocean hazard areas occur. This designated area must include all of
the land areas defined in the previous section. Natural or man-made
landmarks should be considered in delineating this area. r
5.3 Land Suitability: Areas with Resource Potential
The surface waters of Bogue Sound adjacent to Atlantic Beach
have been classified by the State Division of Environmental Management
as,SA. Class SA waters are suitable for shell fishing for marketing
purposes and any usage requiring waters of lower quality. These waters
represent a valuable resource for the Town and contribute to the Town
tourist attractability.
A. Biotic Communitv
In'aceo-invertebrates are the predominant faunal organisms
.inhabiting the beach region and most live beneath the sand surface .
where salinities and temperatures are more constant. A considerable
portion of these benthic organisms are filter or deposit feeders and a
great diversity occurs in the intertidal zones where there is a concen-
tration of particulate organic matter brought in by the tides or
supplied by the decomposition of animals on the beach. Typical beach
inhabitants are beach fleas, ghost crabs, mole crabs, blue crabs,
horseshoe crabs, sand dollars and numerous clams and gastropods in the
beach subtidal areas. Numerous.shorebirds such as terns, gulls, sand-
pipers, and loons rest and feed on the water's edge.
The maritime shrub thicket and maritime forest are valuable
resources. The typical inhabitants of the shrub thicket are wax myrtle,
bayberry, seaside elder, winged sumac, yaupon, Carolina laurel -cherry,

47
live oak, red cedar, and hercules club.
The maritime forest contains southern buckthorn, American horn-
beam, American holly, red mulberry, wild olive, loblolly pine, laurel
oak, pigment hickory,.dogwood, red bay, and beauty berry.
Numerous birds, mammals and amphibians and reptiles inhabit
the forest. Many migratory species are present in Spring and Fall.
The Bogue Sound forms the open water habitat. The biota
include plankton, benthic fauna and plants, fish and crustaceans. The
open water community is also utilized by waterfowl and shorebirds,
particularly during the winter months. A finfish nursery area is
present just west of the center of Town.
The tidal marshes represent a transitional zone between open
water and upland habitats. The marsh region is regularly flooded by
semidiurnal-lunar.tides and is dominated by smooth cordgrass. A belt
of glasswort is.sometimes present along the upper fringes of this low
marsh zone. Just beyond the mean high water zone can be found black
needlerush.
The tidal marshes are important wildlife habitats. The dense
plant growth in these areas provides excellent cover for many species
of nesting birds, aquatic and semi -aquatic mammals, reptiles, and.
amphibians.11
B. Recreational Facilities and Historic Sites
Located on the east end of Bogue Banks is Fort Macon State
Park. Construction of the Fort began in 1826. It served as an
llHenry von Oesen and Associates, 1979.

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important Confederate fort guarding the approaches to Beaufort and
Morehead City until it was taken by Federal forces in 1862. It is one
of the most outstanding examples of U.S. military architecture of its
period in the southeast.
Although no specific archaeological sites are known to exist on
the Bogue Banks, a number of shipwrecks of historical or archaeological
value may exist along the Bogue Banks shoreline.12
Fort Macon has a public beach which.is heavily used by the nearly
one million persons who visit the park every year. The Town also has a
public beach.. (In a true sense, the entire Town is a recreational
facility.)
6.1 Capacity of Community Facilities
A. Water System
The Town of Atlantic Beach currently serves all.areas within the
Town with public water. Plans for the immediate future will result in
many areas in the Town's extraterritorial jurisdiction also being served
with water. The system, which pumps water from three wells, has not
operated an entire year. Current summer sales average.approximately .52
MGD. The anticipated volume of sales when all areas are connected is
not expected to exceed .7 MGD. Existing capacity is 1.0 MGD, with .5
MGD in above ground storage and .5 MGD in ground storage. The system
should be at capacity in 1990 (given the growth rate projected in this
plan.

49
B. Sewer System
Residents of the Town are currently using on -lot sewage dis-
posal systems. None of the soils in the area are entirely suitable for
septic tank filter fields. Although the sandy soils allow the systems
to "work", that is to remove the effluent from the filter beds, the
soils generally provide poor filtering capacity. Three reports issued
by regulatory agencies present documentary evidence that septic tanks
are causing pollution problems in the area. One report, EPA, May 1975,
Finger --Fill Canal Studies Florida and North Carolina, has in
the following:
1. Violations of dissolved oxygen criteria were documented
for all canal systems surveyed.
2. Total coliform bacteria densities exceeded allowable water
quality criteria associated with applicable standards at all canal
study areas. No standard violations were noted at any of the back-
ground stations nor at undeveloped canal sites. As a rule, total
coliform densities increased from the mouth to the dead end of all the
developed canals. Dead-end stations had fecal coliform densities which
exceeded their respective background stations by 37,000 percent at
Atlantic Beach.
13Henry von Oesen and Associates, Inc.''Preliminar 'En ineerin
Report, MuniciPal'Waterworks System'for the'Town'of'Atlantic'Beach,
1978.

-50
3. Tracer dyes introduced into septic tank -systems located
approximately fifty feet from finger canals demonstrated that septic
tank leachates were rapidly transmitted to the adjacent canal waters.
• At Atlantic 63dach�;'adXe wa,sescofirmed in two canal systems four and
oxirnate7ntoduc
siy,ty hours aflerfTfiJectJpp into septic TdRks§y�tem�ank
ank 1 r•r•o,`n finger ca systems locate
eacf�a+-o�
At �t The Town',`ofeAtj, qr je Beach is par' bf ct r tQkr Q re County d
Atlantic n�- transmitted t se
Complex 201 Faci1it cPla i Area d ' th- fed that septic
S1pl Y .,`qN n9, . The Plin, compjgtegtby Henry von
y Hours `onZ.
17rMed in �,,'anwater
Oesen and Associatesgj,Ipcioj�nin9o79 was eoh oAe61*7 At s Beach. Tshe
��� four,
Septic + and
r,..
selpotgd gJ�erV8tiv1.e' fPrQ 4stewater faci llty tort�Qg Town would be a
'c 8.:Uch
�taeyya�e�r ets faic] i tyn tee meet sth�'e� riee'ds io; Atr�ti c Beach and
Vic
County
Rine Kno�la�Skgrte4s,ivb dew 1Q2 MGQysec©n a� wastewater treatment
r �.u3t wa,ut�l ,c ty ror cr�e ,,.hi, H__
fadtli,tycJ,s ,�1F _.rtJ d tyhi hi hound be _1 Gated near Pine Knoll. Shore von
i _l t ( cU i l c �h� �!E c S OS rst ! c.;l 1 C rseaci and
Er lueia,t7ldisp al woUAl TtgO` �ye bAtlalbth'fi �eastei�ata r °tc ea m°entfal l .
T916' da1Ttlrn7om the..coPnR,J,)qJtii(,o% fl&jaerd Iee Sitr�i SurKneo7)ifor ho es out
-
aFllufi1tor'dor�ro ldeterrnin�e the ZaHt-ltonciciccare v�iah$n etc outfa 11.
du'€ffl1Pnaridlto provtde 1P9;gitjer0e -g d. on tt�e p� eline and its
�� ��a�ine Si e rvey ror the out-
g1 fiuseros'eol;idA. deThen r}eW aci 1�? t twoi�� t�i ondeSi w. �i,a e cnd orduihe
6M+tddtiohnditehesoandewop,3di�pccaRgb�jq afttga�ll�g the �ide varia ions
Pip ine and Is
nfwa§t wateri�loads7andn�frlow c9�pe�;a edT�nbthq,17eaed access Qgge
generated diar~i'ngs th.ei t,rner_t purocLe ,� ypuildn�ei dgri edeon sdendbedatands
�1isp�s�d bN'by1dzhdf�i,l:3i�0;A,1s generaged in the area. Excess sludge
generated The. Al rtialsQ c_c11q1tfQ rd5Lnstr,u�C iiuor cpfdried on°sand or and
cSYV fterns i4i the iCown=;afi RtAe Knoll Shores and Atlantic Reach and the
construction oaf ni nter,�eggr; §�Werc�)nt° Y:t LAnsj.orotf ah colco�lte ctor ste-
w a�iaeristo ►tile efacirl�i t. fgKiet►"��;er3;o� �� ul�tdi f, tieani �pseacn and the
construction of interceptor sewers to transport the collected waste-
water to tr4'Henr�l3'_h O6serira'nd"A§ootdtes; ii-n¢e, &9.7,a�sal . 14
50
l4fienry von Oesen and Associates, Inc., 1979.

51
The State and EPA are awaiting the results of a proposed study
of an ocean outfall as recommended in the Dare County Complex 201
Facility Plan. Results of the study will have a bearing on the feasi-
bility of an ocean outfall for the proposed Pine Knoll Shores -Atlantic
Beach facility.
C. Roads
S.R. 1182 over the Intracoastal Waterway bridge is the trans-
portation link to the mainland to Atlantic Beach. This road intersects
with S.R. 1190 (E. Fort Macon Blvd.) which goes east, and S.R. 1201
(W. Fort Macon Blvd.). S.R. 1182 continues south to the beach where it
intersects S.R. 1184 (Ocean Ridge Drive). These roads have a design
capacity of about 7500 vehicles per day, and are often at capacity and
over capacity during summer months. The S.R. 1182 drawbridge over the
Intracoastal Waterway often causes long delays for traffic.
Local streets and roads are very narrow and present difficul-
ties'for emergency equipment, solid waste pickup and general traffic
flow. The traffic circle where S.R. 1182, Bogue Blvd. West, Bogue Blvd.
East, East�Drive, Center Drive, and 14est Drive all meet is the site of
problem traffic congestion during summer months.
The Town is anticipating construction of a new 65-foot high
fired bridge over Bogue Sound to be located near the Town's western
border. The bridge will cost in the neighborhood of 20 million dollars
and could have three or four lanes. The project is still undergoing
environmental review.
The existing low level two-lane bridge between Morehead City
and Atlantic Beach was constructed in 1953. It has a 24-foot clear
roadway with 3-foot sidewalks on each side. Traffic congestion,

52
particularly during the summer months, has dramatically worsened in
recent years and'the problem has been compounded by increasing demands
for drawbridge openings from waterborne traffic on the Intracoastal
Waterway.
In 1967, the annual daily traffic (ADT) on the bridge was
7700 vehicles per day. The average daily number of drawbridge openings
was 14 and the average daily volume of traffic.delayed by the openings,.,,
was 890 vehicles per day. In 19779 the ADT was 15,000,vehicle per day,'
drawbridge openings averaged 18 per day, and delayed 1660 vehicles per
day. Average delay time to vehicles for each opening was,7 to 8
minutes.
Bottlenecks exist on bridge approaches at the intersection of
U.S. 70\and the north approach to the bridge, the traffic signal at
the intersection of Fort Macon Boulevard at the south approach to the
bridge, and a point about 3800 feet north of the Fort Macon Boulevard
intersection when two lanes of northbound traffic merge into one,15
The Feasibility Study for Bogue Banks Bridge completed in 1979
examined several options. The recommended alternative is a 65-foot
high bridge between the area of the intersection of Bridges St. and
Arendell St. in Morehead City, and over Bogue Sound and Hoop Pole Creek
connecting to Fort Macon Blvd. in Atlantic Beach. Other alternatives
were rejected due to various reasons (e.g. inadequate approaches to
meet future demands, costs, non -compatibility with land use plans,
environmental problems).
Other streets and.roads in the Town continue to be utilized
15Acres American Incorporated 'Feasibility Study fbr'Bogue
Banks Bridge, Carteret County, 1979.

53
beyond capacity. The 1978 average ADT on Fort Macon Blvd. is 9500.
The summer ADT on this road is 14,250. On S.R. 1201, Salter Path Road,
the average ADT is 7000. Summer ADT is 10,500. These roads are designed
for about 7500 ADT.
Local streets and roads in the Town are very narrow and many
are dead end streets, have steep grades, or poor or no pavement. Sur-
face drainage is also a severe problem. The entire local road system
isseverely overtaxed during the summer months.
D. Schools
The pupils from the Town of Atlantic Beach attend three
schools located in Morehead City. The schools and enrollments are given
below.
School 1970 Enrollment 1980 Enrollment
Morehead Elementary 548 374
Morehead City Middle School 394 612
West Carteret High School 113*5 1273
The elementary and high school presently have extra room, and
enrollments are anticipated to drop during the next five years. The
middle school is presently operating beyond capacity, and a new school
is needed. Some short term space needs could be solved by using some
of the excess capacity in the elementary school. It is anticipated
that by 1990, the school system will be at capacity in terms of facili-
ties. The current capacity of the schools system is
E. Fire and Rescue
The fire and rescue service is volunteer with about 35 members.
Most of the fire volunteers are also rescue service volunteers. The
Town has two pumpers, one pumping 750 GPM and another 1000 GPM. Also,

54
included is a 1500 gallon tank truck and an equipment truck. The Town
has two ambulances. The department serves the area within the munici-
pal boundaries as well as Fort Macon State Park. Equipment is pur-
chased and membership increased on an as needed basis. The fire and
rescue department is housed in a 7 year old two-story brick and frame
building of about 4000 square feet.
F. Police
The Town maintains a police department in the city hall
building. The Town has nine regular policemen and eight auxillary
police. The department has four dispatchers and four vehicles. Equip-
ment and personnel are added on an as needed basis.
G. Street and Sanitation
The Atlantic Beach street and sanitation department is based
at the Town Hall. The department has thirteen workers, one flatbed
truck and two packers. The department is responsible for general street
maintenance and garbage collection. The Town charges residential
customers $25.00 per year for garbage collection. Commercial rates vary
depending on the specific type of business. Garbage is hauled to the
County landfill at Newport. At this time, the County has modified the
closeout plan (scheduled for closeout in 1980) to allow for a 2 1/2
year life extention of the landfill. The state is continuing to review
the proposal, but has not responded at the time of this writing. The
County has hired a consultant to find new sites. The County is
including a capital reserve fund in its next fiscal budget to use for
landfill development.
H. Medical Services
There are two hospitals in Carteret County. Carteret General

61.
is located on Highway 70 in Morehead City. The hospital has 120 beds
and is operating at almost 90% occupancy rate.
Sea Level Hospital is owned by Duke University and is located
east of Beaufort. The hospital has 72 beds and is considered adequate
for the sparse population in the eastern end of the County.
Most hospitals are in continual need of registered nurses and
most small communities would like to have resident practicing doctors.
I. Health and Social Services
Health and social services are provided by the County. The
Health Department operates in many capacities such as water system
inspections, restaurant ratings, inspection of schools, motels and
various other facilities. The General Health Section offers many health
services and programs. The Social Services Department offers a variety
of services such as financial aid, family service, licensing of certain
institutions and services to other institutions.
Both the Health Department and Social Services Department
operate at over capacity. Both are understaffed and are in need of
more space and equipment.16
16Information provided by Carteret County agencies.

S6
Part III: Capacity Analysis
7.1 Population Projection
The sustained peak -population in the Town of Atlantic Beach
is estimated at 11,172. This number is about 17,928 within the Town's
planning jurisdiction. We estimate the 1990 population peak to be
26,158 should the Town annex to the Pine Knoll Shores Town border on
the west and the Fort Macon State Park border on the east (see section
2.2).
7.2 Future Land Use Needs
In projecting the future land use need, our projections con-
sider the distribution of existing population, the current structure
of the economy, the areas existing and future investments in sewer and
water facilities, its transportation system, its community facilities
(i.e., schools, medical facilities, public services), and the growth
policies of the Town. Since these factors have shaped and attracted
land development in the past, they will probably do so in the future.
Our approach to develop land use projections has included these con-
siderations and, at the same time, they give an estimation of what our
future needs for land willbe.
Finally, one word of caution. Projection land use needs is a
very inexact science. Such projections are presented to provide
decisionmakers with more insight than certainty into what is most
likely to occur in the future. They should be used as guidelines, not

57
constraints, and should be used as benchmarks in making land develop-
ment decisions.
A. Land Available for Development
In order to determine land suitable for urbanized uses, we
must examine the land already used for such purposes, as well as vacant
land which is not constrained. For this analysis, we have removed the
following land, uses and constraints from the available vacant land for
development:: existing residential use, existing commercial use,
existing institutional use, existing transportation, utilities and
communication use, existing recreational use, coastal marsh, estuarine
and public trust waters, estuarine shoreline seventy-five feet from
mean high water, wetlands, steep slopes, areas of flood hazard, and
ocean hazard areas. Removal of these areas from the total land area of
the Town leaves about 521 acres of unconstrained land for development.
B. Methodology for Land Use Projections
Land use standards were prepared for five urbanized land uses
which include residential, commercial, industrial, institutional, and
recreational uses. Except for residential uses, these standards were
derived from land requirements based on standard land use analysis
planning models and adjusted for a resort -oriented beach community like
Atlantic Beach.
The residential category and the motel/townhouse category were
treated differently from the other urban categories due to the
difficulty in allocating land requirements by housing types or density.
An average land area per unit population is used as a standard to
project future need. Single-family residential is calculated in a
similar manner, using existing density patterns as a guide. Roads and

street: land requirements are included in the standard.
The land use requirements were determined as follows:
L90 - (190 - P80) (Kr + Krm + KC +Ki)
where: Lg0 = land required to accomodate 1990
population
Pgo = 1990 projected average summer high
population
P80 = 1980 average summer high population
Kr = standard requirement for single-family
residential (includes mobile homes)
Krm = standard for multi -family residential
and motels
Kc = standard for commercial use
Ki = standard for institutional use
The following standards are applied to the land use needs
projection (acreage per person).
Standard for Single -Family Residential .034 acres
Standard for Multi -Family and Motel .007 acres
- Standard for Commercial .010 acres
Standard for Institutional .001 acres
C. Land Use Projections
L90 = 8230 (.034 + .007 + .010 + .001)
L90 residential single-family 279.82 acres
L90 multi -family and motel - 57.61 acres
L90 commercial 82.30 acres
L90 institutional = 8.23 acres
Total 427.96 acres
We may determine from the above exercise that about 80% of the
potentially developable land which is relatively unconstrained (not AEC

59
areas) could be used up by 1990 if growth rates persist as they have in
the past five years. However, most of this land is presently in mari-
time forest or vegetated dunes. If development continues as in the
past, very little open space will remain in the Town in the next
fifteen years.
7.3 Community Facilities Demand (see Part II; Policy for a detailed
analysis)
Analysis of existing facilities based on the 1990 population
projection for the planning jurisdiction indicates that the planning
jurisdiction is probably growing at a considerably faster rate than
projected in the 1975 Atlantic Beach Land Use Plan. At that time, the
average summer high population for 1980 was projected to be 7,848 for
the .Town and planning area. The economic forecasts at that time were
indicating that building in beach communities would decline and people
would cut back on visits to the beach due to the increased costs of gas.
-Neither-of these forecasts occurred. Although the Land Use Plan indi-
cated a desire to control growth, no management tools have been adopted
which.have been able to control the growth rate.
If the Town continues to grow as it has in the past five years,
both the new water system and anticipated public sewer system could
exceed capacity shortly after being constructed. The water system,
which could produce 1 MGD is designed for a population of about 12,000.
Although this could handle the existing average summer high population
within the Town, it may not be adequate to handle additional areas under
annexation consideration. The system could increase capacity by con-
structing more wells and adding more water treatment capability.
Use of past population projections for design of the water

60
system and the proposed sewage treatment facility could cause the
systems to be underdesigned to meet what appears to be a strong growth
trend.
The proposed sewage treatment facility for the area is designed
for a peak population of 8,338. This figure includes only the areas
within the existing Town limits, This design population could be about
25% too small. Furthermore, if the Town annexes the areas within its
planning jurisdiction, the facility would probably prove to be inade-
quate.
Streets and roads within the Town are a major limitation to
ease of movement as well as safety. Considerable work will be needed
on the street system to accomodate the 1990 population. The proposed
new bridge over the Bogue Sound could alleviate problems of traffic
congestion on and at the approach to the bridge.
Fire and police service will continue to be a large expense to
the community. A large police force must be maintained to accomodate
the high average summer population.
Schools and social services are provided by the county. The
county does not anticipate having problems in these areas in the p lan-
ning period.
Health services are generally adequate to meet the needs of
the permanent population, since the hospitals are located in Morehead
City. Problems do arise in the summer, however, when average high
summer population can overtax the medical facilities, especially during
• holiday periods.
The county landfill continues to be a problem for all residents
of the county. It is also affected by the peak loads of the summer

61
population of the Banks. The County is in the process of locating
another site, as well as establishing a capital fund to purchase land
and equipment.

62
PART IV: PUBLIC PARTICIPATION ELEMENT
This subsection attempts to describe the means used to involve the
r public and educate them during the planning process. It also described
the Town's commitment to future public participation.
8.1 DESIGN OF PLANNING ELEMENT
.The Town has attempted to involve the public in the planning
process by using traditional techniques for involvement. The Town
placed legal ads notifying the public of meetings of the Planning Board
and of Town Board and of joint sessions of both held to review draft
proposals received from the consultants to the project and to discuss
and form policy and implementation strategies. The Town and the con-
sultants availed themselves to the newspapers for work summaries of
ongoing activities. A press release was mailed to the media follow-
inq approval of a first draft of the plan by the Planning Board. The
consultants to the project used a random sample questionnaire to reach
approximately 250 of the residents of the Town. Additional copies of
the questionnaire were made available at the meetings. The results
of the questionnaire were thoroughly analyzed and fully considered
by the Planning Board and Town Board in recommending and adoptin§
policy.
Future Public Participation
The Town will continue to use the methods outlined above to
involve the public. In addition, the Town believes, that the process
used to achieve redevelopment, that of forming and coordinating.neighborhood
committees will improve the quality of public participation in the Town.

QUESTIONNAIRE
I. Please provide information about you and your household in the boxes provided below:
Person
Age
Sex
Race
Weeks Employed
last year
Type of
Job
Income
Distance
to Work
Years of Education
(include Grade School
and High School)
Moved to Town
in past 5 yrs?
A
B
C
D
E
F
G
H
II. The following questions are intended to determine how you "feel" about issues that may be facing the Town. Please attempt to answer the questions
based on the information you currently have.
1. SERVICES AND FACILITIES: Please rate your degree of satisfaction with the following services or facilities using a scale of 1 to 5 (with
5 being the most satisfactory). Place an "X" in the appropriate space.
Service or Facility
Dissatisfied Very Satisfied
1
2
3
4
5
(a) public water or wells
(b) public sewer or septic system
(c) local streets
(d) main streets, roads, thoroughfares
(e) surface drainage
(f) refuse collection
(g) recreation
(h) town hall
(i) fire
(i) police
(k) emergency preparedness
(1) ambulance
(m) health services

r .,
II continued.
For those services or facilities you found to be unsatisfactory, please list
and indicate how much money per year in taxes or fees you would be
willing to pay to maKe tnem satisractoryr
Facility or service JAdditional $/year
If your Town does not currently have a public sewer system, do you favor
the construction of such a facility?
(place an "X" in the appropriate box) Yes ❑ No ❑
2. Growth. The following questions deal with increased population and the
use of the land.
How much larger would you like to see the Town grow during the next ten
years? (place an "X" in the appropriate box)
❑ Grow the same as it did during the last decade
❑ Decrease slightly
❑ Increase slightly
❑ Increase significantly
How do you feel about the following types of growth for the Town?
(place an "X" in the appropriate box)
Approve Approve Disapprove
but limit
Residential
Single family ❑ ❑ ❑
Multi family ❑ ❑ ❑
Mobile homes ❑ ❑ ❑
Low income housing ❑ ❑ ❑
Elderly housing ❑ ❑ ❑
Commercial
Motels ❑ ❑ ❑
Businesses ❑ ❑ ❑
Industry
Light ❑ ❑ ❑
Heavy ❑ ❑ ❑
Has the Town reached the point where it should consider encouraging the
siting of a new local industry even if that industry is a heavy polluter?
Yes ❑ No ❑
Would your answer above be "yes" if that industry paid 30% higher
wages than the average wage for employed persons in Town or if it
provided a large number of new jobs?
.Yes ❑ No ❑
II (2) continued.
What attitude should the Town take towards "tourism"
Encourage ❑ Discourage ❑
3. Environment
State and federal regulations currently regulate development in wetlands
and lands adjacent to water bodies. Zoning and local regulations may limit
densities for various reasons. How do you feel about regulations to protect
the following features of the environment?
Approve new local
regulations Disapprove
Public water recharge areas ❑ ❑
Wooded areas ❑
Areas with steep slopes ❑ ❑
Scenic areas ❑ ❑
Should the Town enact additional regulations to further protect areas now
protected by the State or Federal government?
Yes ❑ No ❑
Should the Town consider purchasing sensitive environmental land to
protect it from development?
Yes ❑ No ❑
When the Town is fully developed, what percentage of vacant or
undeveloped land would you like to see?
0% 5% 10% 15% 20% 25% 30%
❑ ❑ ❑ ❑ ❑ ❑ ❑
4. Visual Quality
Do you find the Town to be visually satisfying? Yes ❑ No ❑ -
If not, why NOT?
Are any of the following a problem in the Town?
❑ traffic flow
❑ street lighting
❑ parking
ISSUES
Please state the issues that you feel are most important to the Town?
1
2. _
3.
4.
5.
Thank you.
Please mail your questionnaire to: rn
COASTAL CONSULTANTS, LTD.
565 N. ASHE STREET
SOUTHERN PINES, N.C. 28387

65
8.3 ANALYSIS OF PUBLIC VIEWS AND ATTITUDES
In January 1981 the consultants undertook a survey of public
attitudes towards planning related matters. The survey was accomplished
by mailing a written questionnaire to a random sample of persons chosen
from the property tax list. The sample size was selected to obtain an
85% confidence rate.
The respondents to the questionnaire identified visual esthetics
(synonymous with cleaning up the circle, trash, drugs and mobile homes
and dilapidated housing) as the number one issue, and sewer and trans-
portation problems (access to the mainland, traffic flow, parking) as
next most important issues. Growth itself was not mentioned as a
problem or issue; however, the quality of the growth was a great concern.
In terms of dissatisfaction with services and facilities and a
willingness to pay to correct perceived problems, the respondents were
more dissatisfied with surface drainage, then water and sewer. They
were most satisfied with their volunteer services, especially fire and
rescue squad. 57% of the residents favored the building of a public
sewer system; this cost was also that most frequently cited by the
respondents as one for which they were willing to pay. The willingness
to pay function on sewer was higher than anticipated costs. Ironically
those voicing strong opposition to sewer also favored a heavy growth
rate and a heavy commercial development. (Indicating some unwilling-
ness to trade sewer costs for development.) Respondents indicated some
willingness to pay for surface drainage improvements, however, most
persons were sophisticated enough to realize that surface drainage
problems could have been handled appropriately through town ordinances,

66
such as zoning and subdivision regulations. Water improvements are
presumably already adequate to meet the complaints raised in the
questionnaire. Volunteer services frequently are a measure of the
townspeople's own appreciation of their neighbors time and effort;
this appreciation was.reasonably high in this instance. The consul-
tant's suspect this indicates a willingness of most people to chip
in and do their part if asked.
In terms of growth rates, the consultants do not believe that the
Town has any strong attitude toward its growth rate, however, the
respondents did indicate that the Town should grow at about the same
rate it did in the past. Very little no growth sentiment was
experienced; frequently resort towns exhibit strong no growth atti-
tudes (25-30% of the survey). The respondents were receptive to the
many types of uses that they were likely to experience. They
approved,subject to conditions (presumably zoning and subdivision
control),multi-family units and motels. They endorsed.without control
commercial businesses (probably implicitly recognizing this use as a
solution to their existing building problems). They indicated a strong
desire to prohibit the use of mobile homes.
From an environmental perspective the respondents displayed a
strong response to protecting various features of the environment,
including aquifer recharge areas, woods and vegetation, steep slopes
(dunes) and scenic areas. They were unsure about duplicating exist-
ing regulations of a state or federal agency (a concern only if the
agency or its program is disbandoned or it -experiences a policy change).
They desire a large amount of open space be left after the Town is
totally developed (over 20%) and they may be willing to pay for this

• vi
through outright acquisition by local government where the land has.
some environmental value. They find the Town to currently lack (in the extreme) visual quality
and they blame junk and dilapidated housing or poor planning for the
problem.
Details of these attitudes are presented graphically and tabularly \
in the following pages.

::
.•SERVICE OR
FACILITY
HVt. JI.UKt
1 2 3 4 5
WATER
SEWER
STREETS
ti
ROADS
DRAINAGE
REFUSE
RECREATION
TOWN HALL
FIRE
POLICE
EMERGENCY
AMBULANCE
HEALTH
DISSATISFIED SATISFIED

STATEMENT ON ISSUE
PERCENTAGEIN AGREEMENT
0 10. 20 30 40 50 60 70 80 90 100
Willing to pay to correct.service
or facility problem
Disapprove multifamily growth
mobile home growth
motel growth
business growth
Approve new regulations (local)
to protect following features
aquifer recharge
wooded areas
steep slopes (dunes)
scenic areas
Approve local regulations to
protect areas already protected
by state (AEC -Wetlands)
Town purchase of environmental land
Town is visually satisfying
5 10 15 20 25 30 35
Percentage of open space left after
complete devel't
rn
ko

70
PART V: POLICY DISCUSSION
Policy making is the heart of the -land use plan. Policy is a
statement or principle which is intended to be applied to guide or
resolve future decisionmaking. Policy is used by State and Federal
agencies, by the County and by the.Town itself. Persons and agencies
making decisions about government spending use the policy section to
determine if the expenditure is consistent with local statements con-
cerning growth, development, facilities, services and use of natural
resources. Private individuals use policy to ascertain the timing
of the availability of_services, such as water, sewer, roads, and
the like, which are attractive or necessary to development. Local
government uses policies to sh4pe the numerous regulatory tools that
$hape local action, such as the zoning ordinance, subdivision regula-
tions, building codes, housing codes, and the like.
In preparing this section the Town has closely.followed the
topical outline in the Guidelines set out by the State for preparing
Land Use Plans for approval by the Coastal Resources Commission.
Because these regulations w-ere designed to meet the needs of various
types of municipal entities, including the large sparsely populated
county, the small densely populated county, the moderate size city,
the small city, the non -beach town, and the beach community,
some of the subject matters addressed are more important to the Town
and merit more discussion than others.
Each policy area is presented in the following format:
first, a general discussion of the importance of --the subject matter
and its relevance to the Town of Atlantic Beach;

71
second, a list of alternative policies which were considered by the
Town;
third,, a statement of the full policy selected; including if necessary
any conditions or limitations or explanations of that policy;
fourth, an indication of the possible implementation of that -policy.
9.1 RESOURCE PROTECTION
This subsection attempts to set forth the natural constraints to
development: soils, flooding, fragile environmental areas, hazards,
and AECs.
Soils
The soils in Atlantic Beach are limited for the use of on -lot
sewage disposal systems (septic systems). Although an individual
analysis of each building site is necessary to determine:the soils
suitability on that site, the Soil Conservation Service has prepared
a reasonably accurate analysis of soil capabilities for this use in the
Town.. Where soils are judged to be unsuitable for septic systems, the
reason for the unsuitability may result from the effluent (wastes)
reaching.the Watertable too quickly without proper filtering or from
its not reaching it quickly enough (i.e. ponding and lateral movement).
The first condition can result in contamination of surficial aquifers;
It may make wells unsuitable for use. The second condition can con-
taminate the cAnals and the sound and make them unsuitable for fishing
and recreational use.. (See pages 21-25 for a fuller discussion of this
constraint.)
Policy Alternatives. The following policies were considered
by the Town: (1).Remove from development use all soils classified

72
by the Soil Conservation Service as very severe; (2) Remove also those
soils classified as severe; (31 Limit development by lot size and use
to reach a goal of light development at a low density on either or both
of these soil units; (4)1imit development only on new development and
for redevelopment, exempting existing uses; (5) Limit development as
to density and use but only on prospective new development or redevelop-
ment and only within a set distance of the canals or sound; (6) Rely
on the construction of public sewers and the enforcement of existing
County Health laws to take care of the problem.
Policy Selected. The Town's soil policy is an essential part
of its environmental protection policies. It is Town policy that soils
are a limitation to development under the following situations: (1) if
the lot to be developed is within 150 feet of estuarine waters; (2) if
the soils on the lot as mapped by the Soil Conservation Service are
rated as severe or very severe for septic system use; (3) if the waste
trbatment system to be used in connection with the development is to be
a septic system or ground disposal system. The Town supports a public
sewer system for the entire Town; however, until such a system is
constructed, the Town intends to limit development and protect the
estuarine resources of the Town through limitations on development in
the estuarine shoreline area. It is Town policy to require large lot
sizes for future development, to require maximum practical distance
between septic systems and estuarine waters and to limit the clearing
of vegetation. The Town supports the current policies of the Coastal
Resources Commission as regards development in this area of environ-
mental concern (AEC). The Town supports the enforcement of County
Health regulations.

73
Implementation; The Town will revise its zoning ordinance and
subdivision regulations to implement this policy.. Zoning changes
contemplated'include creating'a "Soundside District(s)" with separate .
regulations addressing lot size, setback for septic systems, and
requirements about disturbing cover. The Town is tentatively consider-
ing requiring a land area of 1666 square feet for each bedroom; estab-
lishing.a minimum lot size of one-fourth acre; a septic system setback
of 75',feet and a cover requirement of 65%. All regulations will have
prospective application only.
Slope
The topography of Atlantic Beach is typical of the barrier islands.
The main physical features are sand dunes and low lying forests. Sand
dunes are steep slopes which are fairly unsuitable for development.
The sand is highly susceptible to wind erosion and aerial photos
demonstrate that the dunes are in fact migrating several feet each
year. Roads built in dune areas will often crumble when their foun-
dation is undermined or will be buried. Residential units have experi
enced the same fate. Because the dunes are an attractive scenic feature
and a unique geological phenomena their leveling in the face.of develop-
ment often meets resistance by the public. The dune system serves an
important protective barrier in breaking up wave action during major
storms, and thus reducing storm damage. The primary and frontal dune
system are included in areas of environmental concern designated by the
State. (See pages 26, 27, 35, 36 and 38 for a fuller discussion.)
Policy Alternatives: (1) Protect and preserve the dunes from
development and/or from being leveled or removed; (2) Protect and

s 74
preserve only the frontal dunes or only the secondary dune system;
(3) Support State or local regulations of the primary or frontal dunes
requiring development to be located outside the dune area; (4) Do
not preserve but rather encourage only a low density development in
the secondary dune system by use of large lot sizes, PUD style develop-
ment and policies of the Town concerning street standards and paving;
(5) Apply the policies above not only to the present dune areas but
also to areas where they are likely to migrate within a certain period
of time;-(6) Require that the dunes be vegetated and stablized as
part of any development plan; (7) Do not protect or'preserve the
secondary dune system; (8) Recommend that the State increase and
enlarge or decrease and return to local control its management of the
frontal dune; (9) Recommend that the State consider nominating sound -
side and secondary dunes as AECs.
Policies Selected: The Town finds that the frontal and secondary
dunes are important to the Town; they protect development from storm
damage and wind erosion; they are aesthetically pleasing, and
attractive to future development. It is Town policy to protect the
secondary dunes and dune system while allowing development of these
areas. The Town will encourage future developers to use planned unit
development in these areas. Such a style of development is designed
to shift the heaviest portion of development to areas that are less
fragile or sensitive, hence, conserving those areas that are more
} fragile. At the same time the development can proceed to market with
the same or more units than allowed under the zoning ordinance. It
is Town policy to require large lot sizes in these areas and to limit
the amount of cut and fill and the clearing of the vegetation.

• 75
Policy Implementation: -The Town intends to implement this policy
by revising its zoning ordinance and subdivision regulations. The
zoning ordinance will allow planned unit development.as a special use
in this zone;,wil.l provide for,large lot sizes; and will place restric-
tions on the amount of vegetation and cover that can be cleared. The
subdivision regulations will be amended to require data and information
relevant to slope and vegetation; and to designate standards to accom-
plish this policy. The Town will also consider the adoption of a
sedimentation control ordinance (either in addition to the above or
as an alternative means of addressing this policy.)
Note: Frontal dune policies also discussed in policies on areas
of environmental concern.
Flood Prone Areas
Flood Hazard areas are identified and rated in terms of the
probable degree of damage during the 100 year storm. The Federal
Government provides insurance to landowners in communities which
participate in the federal flood program. Atlantic Beach participates
in the program by enforcing a flood hazard ordinance which requires
houses.to be set on pilings with the habitable area located above
the flood elevation. State regulations require compliance with standards
for -storm resistant structures for houses built in the ocean hazard AEC.
Mobile homes have often been considered a hazardous use in flood prone
areas. Federal and State programs are subject to being discontinued.
Some officials have expressed concern over the severity of the payout
in the event of a major hurricane striking the east coast. Other
officials would question the health hazards associated with septic
systems following flooding.

76
Policy -Alternatives. (1) Recommend that the present State and
Federal Insurance system be discontinued, allowing everyone to assume
the hazard of building in flood areas; (2) Eliminate mobile homes
from the flood area; (3) Eliminate the use of septic systems in the
flood area; (4) Retain present regulations and system, but enforce
strictly requirement that persons not enclose buildings below the
flood elevation; (5) Require stronger flood protective features, such
as deeper piling requirements.
Policy Selected. The Town supports programs designed to foster
development and building practices that will minimize flood damage
from storms and erosion. The Town supports the Federal Flood
Insurance Program.
Implementation. This policy is largely self-executing. The Town
will continue to participate to the Federal Flood Insurance Program.
Vegetation
The vegetation in Atlantic Beach is typical of many of the barrier
i
islands in the State. Development has greatly decreased the amount
t of vegetation. In the frontal dunes one finds American beachgrass �
and seaoates; landward is the maritime forest with live oak and other
trees and shrubs which have adapted to live in a salt air environment
i
(the maritime forest took nature hundreds of years to create.) Along
the soundside are the wetlands with the juncus marsh. (The marsh
will be discussed separately in the later part of this subsection.)
Vegetation serves an important function: it prevents the land from
blowing or washing away. Many beach communities have experienced
difficulties with non-native vegetation becoming incompatible with

-77
native species. A vegetated landscape, especially the maritime forest,
is regarded by many persons as beautiful. Others see it as a haven
for insects and animals, and a hinderance to development.
Policy Alternatives. (1) Preserve the maritime forest by request-
ing that it be nominatd as an AEC; (2) Protect as much of the maritime
forest as is practical by restricting the density of development in
this area and by developing standards dealing with the amount of cover
needed on a lot; (3) Prohibit the introduction of non-native plant
species to the island; (4) Encourage the planting of any and all
kinds of vegetation; (5) Adopt a mandatory vegetation requirement,
especially for erosion prone areas; (6) Leave attitudes towards vege-
tation and protection to the individual lot owner.
Policy Selected:* The maritime forest is an important natural
resource to the Town. The maritime forest and shrub thicket maintain
the stability of the land in the face of wind and water erosion. The
forest and shrub thicket are important to the attractiveness of the
Town and the island. It is.Town policy to protect as much of this
resource as possible while allowing for a moderate amount of develop-
ment which would not be destructive to the uniqueness of this
resource. The Town will encourage future developers to use planned
unit development in and around these areas. It is the goal of this
policy to shift development from wooded areas to the periphery or
cleared areas without interfering with developer's expectations
concerning the number of dewlling units they will realize from a
tract or parcel. It is Town policy to require large lot sizes in these
areas and to 'limit the amount of clearing of vegetation to only so
much as is necessary to site a home and provide access.

T
78
Implementation: The Town will implement this policy by revising
its zoning and subdivision regulations. The zoning ordinance will
• attempt to recognize this area as a separate district. It will allow
planned unit development as a special use in the district; and it will
make provisions insuring large lot sizes and the retention of a
significant amount of vegetation. The subdivisiun regulations will
require vegetation be addressed and set standards for development
which affects maritime vegetation.
Areas of Environmental Concern.
The areas of environmental concern (AECs) within the Town include
the ocean hazard area, estuarine and public trust waters, estuarine
shoreline and wetlands. The ocean hazard area roughly coincides with
the V zone on the flood map. Within the first 60 feet of the seawall,
development is prohibited. It is also prohibited in the frontal and
primary dune; and in the ocean erodible area where no seawall exists.
Outside these specific areas in the ocean hazard AEC, development is
controlled but permitted. Atlantic Beach is unique in that a large
portion of its shore is bulkheaded. In other areas the bulkheading of
the oceanfront has resulted in a loss of the town's beach, together
with a loss of the public's right to use the beach.

79
The estuarine shoreline AEC is intended to protect'estuarine
resources from pollution. Pollution from the estuarine shoreline area
comes.from development uses and is related to effluent movement from
septic systems, runoff of metals from auto use over impervious sur-
faces, and sedimentation and siltation from erosion of non -vegetated
areas. The State has indicated an intent to restrict the use of septic
systems in this area, demanding 30 inch vertical separation between
nitrification lines and the watertable unless the system is located
over 100 feet from mean high water, and requiring that 30% of the
lot be retained in natural cover.
Wetlands, defined as any salt marsh or other marsh subject to
regular or occasional flooding by tides, are so heavily regulated by
the State that development of these areas for residential purposes is
_not possible under existing law. The wetlands are especially important
to the food chain. (See pages 30-40 for a fuller discussion of AECs.)
Policy Alternatives (Ocean Hazard Regulations) (1) Support AEC
regulations in ocean hazard AEC; (2) Recommend Atlantic Beach be`exempted
from ocean hazard regulations since the Town is bulkheaded; (3) Adopt
a policy calling for the abandonment or demolition of the bulkhead to
prevent the public from losing'the right to the use of the beach;
(4) Recommend additional regulations to protect dunes landward of
the frontal dunes.
Policy Selected: The Town supports the regulation by the Coastal `
Resources Commission of development in the ocean hazard area of
environmental concern. On the other hand, the Town supports and
encourages the maintenance and completion of l:he bulkhead which already
exists and was constructed to protect development from storm damage and

80
erosion. The Town is aware that construction of the bulkhead would
require a Coastal Area Management Act (CAMA) permit needed to develop
in an AEC. The Town points out that Atlantic Beach is one of the few
bulkheaded beaches in North Carolina, that it has received in the past
and is expected to continue to receive in the future regular substan-
tial deposits of dredge material from U.S. Army Corps operations in
widening and deepening the channel.for navigation to Morehead City.
The spoil is currently dumped at Fort Macon and moves to Atlantic Beach
by littoral current. The Town believes that this project is beneficial
to all persons involved, insuring the Town a beach and a stabilized
shoreline, and with that the public's right to use the beach. The Town
does not intend to budget or spend public tax monies to maintain or
extend the bulkhead as the expense is great and the benefits to the
entire Town very limited.
Implementation: This policy is self-executing. In the event that
the Coastal Resources Commission determines that this policy contradicts
policies it has established for beach access or erosion, or in the
event that the Commission denies a permit for activity contemplated
above, the Town, would if requested by an affected landowner, intercede
on his behalf.
More Policy Alternatives. (Estuarine Shoreline) (1) Support AEC
regulations in the estuarine shoreline area;.(2) Recommend abandonment
of vertical separation and setback standard above that required under.
Health Services regulations, i.e. 50 feet from canals and A -II, water
and 100 feet from SA waters; (3) Request State take action to implement
public sewer system for Atlantic Beach; (3) Require bulkheading of all

81
lots; (4) Require mandatory cover features and restrict types of
impervious surfaces in zoning ordinance;
Policy Selected: See policy on Soils. In addition, the Town
will require the mandatory bulkheading of all Soundside lots by 1985.
Implementation: The Town will continue its efforts to plan and
build a sewer system. The Town urges the State and Federal Government
to support such systems in coastal areas that are already developed
as tourist centers. The Town contends that this policy and not a policy
of no -growth for the barrier islands is consistent with State policy
to promote tourism. In the event that the Federal government with-
draws support for financing a sewer system in Atlantic Beach, the
Town will investigate the possibility of funding a system with only
local and State monies.
More Policy.Alternatives: (1) Support AEC regulations in wetlands;
(2) Not support the same.
..Policy Selected:. The Town realizes the importance of coastal
wetlands to the life cycle of plants and animals. The Town supports
State policies towards the wetlands as stated in legislation and as
embodied in the regulations for wetlands areas of environmental concern.
The Town will enact local measures designed to complement this State '
action and which will presierve this area from future development which
might irreparably damage this resource.
Implementation: The Town will designate the wetlands area as a
fragile zone or district in the zoning ordinance. This zone will be _
restricted in terms.of permitted uses. Very large lot sizes (5 or
10 acres) will be required for development.

82
Historic, Cultural and Archaelogical Resources.
Just east•of Atlantic Beach is Fort Macon State Park, an historic
site which draws a considerable number of visitors to the Town. Within
the Town and especially along the western oceanfront are numerous old
beach houses which may possess some historical significance. Shipwrecks
may exist off the shoreline. No specific archaelogical sites are
known. The Town has not conducted a study of its historic structures.
The determination that housing is of historic value can be of significant
value to individual landowners and the Town since it allows tax
incentives with restoration and maintenance.
Policy Alternatives: (1) Require the Town and major developers
notify the State if items of potential archaeological significance are
encountered i.n construction; (2) Require a site inspection by a quali-.
fied archaeologist prior to development; (3) Conduct a survey of
historic structures with the intent of delineating the boundary for an
historic district zone; (4) Take no action.
Policy Selected. The Town will require that the Department of Cul-
tural Resources be notified prior to the Town undertaking any develop-
ment which might affect items of archaeological significance.
Implementation. The Town Council will issue a directive
to various administrative departments comprising the Town.
Hurricane and Flood Evacuation Needs and Plans.
The existing capacity of the transportation system to evacuate
persons during a major storm is probably not adequate, however, that
capacity is being enlarged with the planning and construction of a third
bridge to the Bogue Banks. The Town coordinates with others towns and

83
the County in addressing theadministrative details of an evacuation.
The Town's ability to evacuate will be intimately tied in with its
policies toward the transportation system.
Policy Alternatives: (1) Support construction of a third bridge
to the Bogue Banks; (2)Not support the same.
Policy Selected. The Town supports the construction of a third
bridge to the Bogue Banks.
Implementation. The Town has passed resolutions adopting the DOT
plan addressing construction of a bridge from mainland to Bogue Banks.
The Town supports Alternative A as designated in the Plan.

F.*
;':9.2 RESOURCE PRODUCTION AND MANAGEMENT
Whereas the first subsection of policies dealt with natural
resources that were not considered appropriate for production, this
section attempts to address those other resources of the Town that
when properly managed are part of development. These resources
include: agricultural lands, forest lands, mineral lands, fisheries.
and the beaches.
Agricultural Lands
Agricultural uses are not now, nor are they anticipated to be in
the future, an important use within the Town. No prime agricultural
lands are known to exist within the Town's current limits or its plan-
ning jurisdiction. The Town has decided to not make policies governing
this use.
c
Forest Lands
Commercial forestry is not currently a significant use within the
Town. A modest amount of land in and near the Town is wooded, most
of this in maritime forest or shrub thicket. The commercial harvesting
of, these areas seems unrealistic. The Town views its forested areas
as a resource that needs protection, and not a resource that should be
subject to multiple uses. Since these conclusions seem obvious from the
policies adopted in the first section, the Town has decided to adopt the
following policy.
Policy: The commercial harvesting of the maritime forest, shrub
thicket, or any other wooded area within the Town's planning jurisdic-
tion is an inappropriate use.

Implementation: With the exception of consistency review by the
State or Federal government for project requiring permits or review,
the Town is unaware of any action it could take to implement this
policy.
Mineral Production Areas
Mining is not currently, nor is it expected to be in the future,
an important or significant use within the Town's planning jurisdiction.
The Town obviously has a significant amount of land in dunes. The
dunes could be viewed as a potential source of various grades of sand
with perhaps some mining potential, with perhaps some use as fill.
As with the maritime forest, the secondary dune system is considered
a valuable resource that needs protection and should not be subject
to management and multiple use. Since these policies seem obvious
.from the policies adopted.in the first section, the Town has decided
to adopt the following policy.
Policy: The mining of the secondary dunes system, or any other
dunes or land, within the Town's planning jurisdiction is considered
an inappropriate use.
Implementation: Mining is not a permitted or special use under
the zoning ordinance. Where activities might not come within the
scope and jurisdiction of this ordinance the Town relies on the
State Mining Act and the consistency review as described in previous
sections to implement this policy.
Fisheries
Commercial fisheries do not exist within the Town; however they
are an important use in nearby Beaufort. Some commercial net fishing

is carried on along the ocean- Recreational fishing is popular.
Fishing uses have the potential for conflicting with other beach uses
such as bathing, walking and Swimming. Fishing uses have traditionally
been heaviest in the fall months when the potential for conflict is
lowest.
Commercial fishing is not subject to local regulation; the industry
is regulated by the Marine Fisheries Commission. The limitation of
sport fishing use can be effectively accomplished through policies
governing the use of off road vehicles. The Marine Fisheries Commission
has been receptive towards assisting local governments with specific
problems.
Policy Alternatives: (1) Limit commercial fishing and/or
recreational fishing in terms of area (strands of the beach), access,
and time; (2) Do not limit or restrict. Implementation alternatives
include making requests of the Marine Fisheries Commission to enact
regulations and could include provisions mandating notice of nets or
limitations on the fishing season in Atlantic Beach. The Town may
desire to enact notice features without approaching the Commission.
Additional provisions could be added to the off road vehicle (ORV)
ordinance.
Policy Selected: The Town will not place additional limitations
or restrictions upon commercial or recreational fishing beyond that
which is currently in effect. County enforcement of the ORV ordinance
is deemed sufficient to handle problems of conflicts in use.
Implementation: None required.

Off Road Vehicles
Off road vehicles consist of four wheel vehicles and bikes. They
include jeeps, jeepsters, dune buggies and drag bikes. Commercial
and sport fishermen often consider the use of these vehicles essential
to their use. Since these are favored uses at the State and local
level, the restrictions on access are justified only where they
cause considerable harm to the environment or where they conflict with
other uses. The driving of off road vehicles for sport and not con-
nected with a fishing use does not enjoy the same privileged status.
The damages from off road vehicles in Atlantic Beach are related to
the terrain in which they are used. Where such vehicles are driven
in the dunes and along the beach, they can be expected to increase
erosion, damage the protective features of the dune system, and
conflict with other beach uses --bathing, swimming, walking. The Town
has exercised its authority over access control and season and nature
-of use through the support of the County ORV ordinance.
Policy Alternatives: (As regards policies on commercial fishing,
-see previous section on fishing.) (1) Limit the use by restricting
the number and location or access points, the season and area permitted
for the use; (2) Do not limit the use.
Policy Selected: The Town supports County enforcement of the ORV
.ordinance. It favors additional access and ORV ramps. It has no
intention of enacting additional regulations.
Implementation: None needed.
.9.3`. ECONOMIC AND COMMUNITY DEVELOPMENT
The following subsection deals with policies towards various
aspects of growth. These included the nature of the growth desired,

its location, its timing and the timing and delivery of services neces-
sary to encourage, sustain or discourage that growth.
General Attitude Towards Growth.
Prior to discussing the various policies and attitudes towards
many areas that make up the total, attitude towards growth, it is
useful to state broadly the Town's general policy towards growth.
We might note that the Town has a broad attitude towards the environ-
ment, namely it favors the protection of environmental features; also,
it has a general attitude towards resource management, namely, it
favors a prioritization of management uses, one that protects beach use
for swimming and bathing, then fishing uses, then other uses, and one
that favors the protection of other resources normally subject to mul-
tiple uses, especially where those resources are important to the unique
aesthetic or environmental quality of the Town, as are its maritime..
forest.and its dunes. The Town's_attitude towards growth has a bearing
on the difficulty it may encounter in achieving other broad goals.
Where a Town does.not desire to grow, little conflict could be expected
from aggressive policies towards protection and severe limitation of
uses; however, where a Town desires.a high rate of growth, the limited
amount of land available for development, and the desire to achieve
other goals will create considerable conflicts which can only be.
" resolved through adept management.
Policy Alternatives: (1) Limit the growth rate to a lower per-
centage than was incurred in.the 1970s; (2) Attempt to achieve same
growth rate; (3) Seek to increase the rate of growth over that
incurred in the 1970s (either slightly or significantly).

1.1
Policy Selected: The Town will seek to significantly increase its
1970s growth rate.
Implementation: See network of policies that follow in this
subsection.
Industrial Development.
The Town of Atlantic Beach has not incurred any significant.
amount of industrial development, unless one considers the shipbuild-
ing, maintenance, storage and repairs undertaken by the marinas as
industrial rather than commercial.The marinas are an attractive use
to the Town. However,the ability to find future sites is believed
to be extremely limited.
Policy Alternatives: (1) Encourage the location of future
marinas; (2) Do not encourage;
Policy Selected: The Town does not consider industrial
development to be an appropriate use within the Town. The Town would
like to encourage the siting of additional marinas within the Town.
Implementation: The.Town will designate and provide for such
future development in the zoning ordinance. The Town will work with
State and Federal agencies to develop dredging plans and find spoil
sites. The Town will budget appropriate funds for this expense.
Residential Development
The housing needs for persons living and vacationing in Atlantic
Beach has been met principally through traditional single family
structures, mobile homes, and motel units. Recently Atlantic Beach,
more than any other beach in North Carolina, has experienced heavy
condgmin,ium multi -family housing. The Town probably has'more mobile

homes than any other beach community in the State.
Atlantic Beach is one of the older beach communities in the
State. A large section of the housing is in poor condition. This
observation, plus the large number of mobile homes which have a
shorter useful life than conventional housing, makes redevelopment an
especially relevant topic.
Policy Alternatives: (1) Continue policy towards limiting the
number of mobile homes within the Town;. (2) Designate areas for
redevelopment and encourage redevelopment through upzoning (changing
district in zoning ordanance to one permitting a higher market use,
as from residential to commercial); (3) Encourage multi -family
development using PUDs in blighted areas; (4) Organize neighborhood
committees to create atmosphere for housing improvements; (5) Budget
monies for planning for redevelopment; create overseeing committee
to find developers; (6) Redevelop the commercial area with a differ-
ent theme and layout; (7) Redesign streets and roads as the oppor-
tunity affords, with specific priorities established, such as
addressing the road alignment for the street closest the beach,
for streets exiting from subdivisions with poor access. (All of
these policies infer that some redevelopment is desireable and
the general policy here; another alternative, of course, is not to
redevelop.)
Policy Selected: It is Town policy to promote, foster and
encourage the redevelopment of old, poorly designed, underutilized
areas. Redevelopment is preferred and deemed more important than
development of presently undeveloped areas. The potential for
commercial development or townhouse or multi -family development will

91
be limited and restricted in undeveloped areas in or near the Town until
redevelopment of areas identified here are completed., The Town
specifically desires redevelopment of the following areas: Cl) the
mobile home park at the west end of Old Causeway Road;'(2) the mobile
home development, consisting of several blocks, between Fort Macon Road.
and W. Davis Street; (3) the mobile home park adjacent to the Oceana
Motel; (4) residential areas bordering on subdivisions which do not
compliment each other, i.e. street systems do not adequately connect;
(5) residential and commercial area in the triad (also referred to as
the circle); (6) commercial and residential area on Henderson Blvd.
It is Town policy to gradually curtail the use of mobile homes
within the Town, especially in the flood zones. However, it is also
Town policy to recognize an area or number of areas where mobile home
use would be appropriate, subject to restrictions which would insure
some quality and safety of development.
Preferred redevelopment uses include townhouses and apartment
buildings and commercial.housing (motels). Planned unit development
is the preferred method of redevelopment.
It is Town policy to take an active supervisory role in all future
development projects. All projects are required to consider the Town's
environmental policies and to address the Town's other public needs,
especially its needs for a snund street system and for public access
to the beaches.
In addressing future rezoning applications for commercial housing
or townhouse or multi -family housing, the Town will consider, among other
.factors, the following; Cl) a preference to have commercial and other
intense land use that generate a substantial amount of traffic
0

92
and other impact locate in a pocket and away from the main traffic
routes; (2) a preference to have the uses described above locate with
4
-entrances and exits along streets and roads that are perpendicular to
the nearest main traffic route; (3) a preference to redevelop areas in
poor condition.
Many areas not prioritized for redevelopment are in poor condition
with poor road design, loss of vegetation, dilapidated housing, mixed
uses, etc. The Town will begin a program of strict enforcement of the
minimum code,as a means to improve the quality of existing development.
Implementation: In order to implement the above policies,
various local and state actions may be necessary. The Town requests
that the State foster legislation to specifically allow contract
zoning. The Town will revise its zoning ordinance to allow.higher
market uses in the areas specifically designated in the policy sec-
tion. The Town will compensate for these additions by limiting some
of the areas already designated for future commercial uses (or high
density residential uses.) The Town will request that the County give
it planning control over additional areas outside town limits.
The Town will budget monies to purchase lots forming the boundary
between subdivisions that do not properly meet; the Town will negotiate.
with landowners to purchase lots or parts of lots, to redraw lots and
right-of-ways in an effort to alleviate problems from poor subdivision
design.._
The Town will continue to amortize the use of mobile homes in
most districts. A mobile home zone with special standards providing
for adequate size lots, sewage disposal standards, elevation of
structure and tie -downs, will be created through the zoning ordinance

93
to recognize a quality existing mobile home use area.
The Town will revise zoning and subdivision regulations to encourage
planned unit development in redevelopment as well as sensitive natural
feature areas. Incentives, such as bonus units, will be provided for
f
in the ordinance, where the development provides for public needs, such
as redesign of the road system,and public access.
Future redistricting and rezoning will consider policies set out
considering the location of commercial and other intense types of
development.
The Town will set up a special committee to implement and coordinate
redevelopment activities. These activities will include the supervision
of the redevelopment of the triad or circle and other designated re-
development areas. The redevelopment committee shall be charged with
receiving technical reports and recommending a course of action concerning
.the redevelopment of the triad or circle, including recommending policies,
searching for grants, identifying future development alternatives and
interested future developers. The Town will budget.monies necessary to
implement this program.
The Town'will retain the services of a full time building inspector
to enforce the minimum housing code. The inspector will identify target
areas for focusing action during the next five years. The Town will
adopt a policy of not alleviating individual landowners of the hardships
conditioned by strict enforcement of this ordinance.
Types of Urban Growth Patterns Desired
One aspect of the nature of growth is selecting the area in which
the growth should be accommodated. In selecting a'pattern for the future
the Town needs to consider the siting of the new bridge to

94
the mainland, the policies towards protection of natural resources and
policies towards redevelopment. This policy selection is indicated in
the mapping of future use areas on the land classification map. The
Town has chosen to include additional breakdowns in uses.
n
Redevelopment of Developed Areas.
See policies on residential development.
Local Commitment to Providing Services to Development.
Under North Carolina law cities (this includes towns) are required
to provide equal level of services to all areas within its jurisdiction.
Equal may not always mean the same; nor may it necessarily demand that
a particular service be extended to all areas at the same time. The
city.currently provides water. Subdivision regulations currently
require developers to install roads and streets, and surface drainage
systems. The difficulty is in providing necessary services to areas
which developed without them. Densely developed areas on the canals
need sewer to insure protection of estuarine system; commercial
development may.not be possible without public sewer. Streets in many
areas need to be redesigned, realigned and paved. Surface drainage
needs to.be addressed. However, the costs of these projects are
individually substantial. Redevelopment may be necessary to preserve
an adequate tax.base for future services. The general desire to.cut
back on government expenditures at national, state, and local levels
may impose a greater burden on the Town in the event it desires to
pursue a redevelopment course.

ME
Policy Alternatives: (1) Fund public sewer system -for -entire Town
or parts thereof, especially commercial area intended for redevelopment
and high density developments along canals; (2) Pursue construction of
public sewer system only in the event of a certain percentage of State
and Federal funding (or with or without such funding); (3) Develop a
capital facility plan to address costs of street and road improvements
and to set forth a tenyear (or more plan for improvement; (4) Develop
a surface drainage plan; (5) Not take any or all of the projects out-
lined in the four alternatives noted above.
Policy Selected: The Town is committed to the construction of.a
public sewer system, preferably with State and or Federal assistance.
The Town will make improvements to its water system to meet demands
of its 1990 population. The Town will undertake a capital facility
plan to budget these uses, improvements to the street system, redevel-
opment plans and actions and other expenditures.
Implementation: A bond referendum on the local collector system
will be held as soon as an intent to construct the public sewer system
is realizable.
Commitment to State and Federal Programs.
The commitment to State and Federal Programs involves the Town's
attitude towards the continued funding and implementation of programs
. at the State and Federal level. Obviously the Town is vitally con-
cerned with many programs which would not otherwise appear to involve
it as there is significant competition for a limited amount of money
available for funding local projects. The Town supports increased or
continued government spending at State and Federal levels for the
following programs: water and sewer planning and construction, tourism,

flood insurance, economic redevelopment, channel maintenance, navigation,
beach nourishment, environmental protection and land use planning.
The Town.desires spending in other programs be reduced to attain
a balanced budget.
Implementation: The Town intends that this policy be self executing
through agency review in the approval of the plan itself, The Town will
take such appropriate measure% as it deems necessary to implement any
of these commitments, namely it will designate spoil sites where it
will be benefited by a project, etc,
Assistance to Channel Maintenance and Beach Nourishment,
The Town benefits from the maintenance of the navigational channels
in the Sound. Three of the four existing channels appear to need
improvements. Spoil disposal sites are difficult to find. Most of the
oceanfront property is bulkheaded; some lots without bulkheads are
experiencing significant erosion., The Coastal Resources Commission
has not been asked to rule on whether it would permit the extension and
completion of the oceanfront bulkhead. Beach nourishment has resulted
from actions of,the U,S. Army Corps in maintaining navigational channels
and the loss of the beach. has not been a problem in the past. The Town
is concerned about the future of this program. The loss of the beach
could be a disaster for the Town; importing a beach would be an ex-
ceedingly expensive proposition,
Policy Alternatives: Cl) Support maintenance of the oceanfront
bulkhead; C21 Require the bulkhead be removed at a time in the future;
0) Remove or maintain with Twon money, rather than rely on individual
landowners, or vice -versa; C41 Commit and budget the eventual replenish-
ment of beach sand in the event of erosion of the beach (to insure the

97
existence of a public beach); (5) Let nature take its course;
(6) Favor the replenishment of the beach with total or substantial
State and Federal assistance;.(7) Support efforts to expand the scope
of dredging operations to several presently non -dredged areas to
increase opportunity for commercial development (marinas, ship -building
and repair, etc.).
Policy Selected: The Town supports continued dredging and spoil
disposal plans of the U.S. Army Corps concerning navigational channels
to Morehead City. The Town desires dredging plans be expanded to
include improved maintenance in all four channels leading to marina.
(This is largely private action requiring State action in form of
consistency and permit review.) The Town will assist private actions by
designating disposal areas and seeking permits. Disposal will be on
ocean beach in eroded areas. The Town encourages the maintenance and
extension of the oceanfront bulkhead, but not at the Town's expense.
Implementation: This policy is for application in consistency
review and for consideration by other agencies in setting plans and
policies. The Town will designate disposal sites, acquire easements.
and represent, upon request, partial parties pursuing the Town policy
before permitting agencies.
Energy Facility Siting and Development.
In the event of offshore discovery and extraction of petroleum and
gas resources, the petroleum industry will need accessways for pipelines
so that raw materials can be shipped to inland areas for refining. The
need for energy is in the balance against the likely or possible damages
from the' location of the pipeline in the Town. Leakage and offshore

accidents may pose unpleasant side -effects for the Town which depends
on the attractiveness of the beach for tourism.
Policy Alternatives: (1) Support use of waters off shores of
central North Carolina for energy development, namely exploration of
oil and natural gas; (2) Accomodate the placement of pipelines through
the Town; (3) Not support the above.
Policy Selected: The Town considers this use inappropriate in
light of the nature of the community. However, it•might be receptive
.to allowing the use under certain conditions where it was part and
parcel of an approved redevelopment plan.
Implementation; Self-executing.
Tourism
The Town's development priorities and goals of environmental and
resource protection clearly state the Town's strong desire to encourage
and promote tourism. This policy is implemented through the network of
other policies and their respective implementation.
Beach Access
The,Town has numerous beach access points, although none are improved,
and only a few are designated and marked for public use. The Town also.
has a public beach. The need for public access to the ocean beaches is
apparent and is likely to increase as future development continues to
locate without oceanfront access. The lack of a significant number of
motels on the oceanfront has increased the problems of beach access, not
apparent in similar oceanfront communities. Recent townhouse, multi-
family and condominium developments have provided significant public
access rights to a large percentage of the Town's population expected to

inhabit these units.
Policy Alternatives: (1) Develop a beach access plan, including
determining which access points to improve and scheduling improvements
(2) Take incremental action; (3) Not take any action.
Policy Selected: The Town will rely on its redevelopment plan to
provide signfiicant beach access in several areas of the Town. The
Town will also develop a beach access plan.
Implementation: The Town will request funding from the State and
Federal Government to complete a beach access plan.
Intergovernmental Coordination.
The Town has sought to achieve intergovernmental coordination
through the exchange of information necessitated in preparing the
various elements of this land use plan. Copies of the tentative draft
of the land use plan were.reviewed by Emerald Isle, Pine Knoll Shores,
and Carteret County for consistency with their plans. The same draft
of the land use plan has. been circulated for State and Federal review
by the State Department of Natural Resources and Community Development,
Implementation Time Frame:
The following graph shows the time frame for achieving policies
described in this plan. Many of these policies will not be implemented
unless adequate State and Federal funds are provided.fro the years in
which local grant applications are processed.
11

Local Action
Zoning and Subdivision
Revision
Capital Facility Plan
Beach Access Plan
Redevelopment Plan
Commercial
Beach Access
Public Sewer (*)
Land Use Plan Update
99b
Time Frame
1981 1983 1985 1987 1989
*Town approves construction to begin as soon as possible with
anticipated completion by 1986.

100
PART VI: LAND CLASSIFICATION
State regulations governing land use plans in the coastal area
require that any land use plan seeking certification by the Coastal'
Resources Commission have a land classification system. Land classi-
fication is designed to provide a framework to be used by local govern-
ments in identifying the future use of all lands in its jurisdiction.
The designation allows the local government to illustrate their policy
statements as to where and at what density they want growth to occur,
and where they want to conserve natural and cultural resources by
guiding growth. Land classification is not a regulatory mechanism:
it is not a zoning map, but rather a future land use map.
10.1 Land classes: definitions.
The Town has decided to divide the land into the following cate-
gories. They are listed and defined as follows: (several of the defi-
nitions, namely (A), (D), (F), are adapted from the State regulations
to which more particular reference is made.
(A) Developed. Those areas currently developed for urban use at a
density near 500 dwellings per square mile and served by public water,
sewer, recreation, police and fire. (Not Applicable.)
(B) Developed II. Those areas currently residentially developed and
not in a development limited area or a planned redevelopment area, with
a density near 500 dwellings per square mile and served by public water,
police and fire.
(C) Developed III. Those areas currently commercially developed and
not planned for redevelopment, and served by public water, police and
fire.

101
(D) Transition. Those areas intended to provide for varying future
levels of urban development within the next ten years on lands considering
the suitability for such use. These areas will be scheduled for pro-
vision of public water, sewer, recreation, police and fire. Since the
Town intends that the entire area be served by public sewer and other
services within the 'next ten years, technically all land except that
classified as conservation is transition. In order to make this clas-
sification more meaningful,.the Town has developed the following subclas-
sifications.
(1) Transition: Moderate to High Density Residential. Those areas
lacking in significant environmental or other development constraints,
including wetlands, steep slopes, dunes, closeness to estuarine resources
and on poor soils for septic systems (constraint to be removed when sewer
actually, provided), wooded and vegetated areas. Approximate density 6 to
25 units per acre.
(2) Transition: Low to Moderate Density Residential. Those areas
lacking in significant environmental or other development constraints
but which have an already established low density character and which are
not.in such poor condition that redevelopment seems adviseable or neces-
sary. Approximate density 4 to 6 units per acre.
(3) Transition: Commercial. Those areas intended to provide for fu-
ture commercial growth. These uses include commercial housing, marinas,
y
and the like. Approximate density 3 to 4 units.per acre.
(4) Transition: Limited Development Due to Fragile Features or Other 1
Conditions. Those areas possessing environmental or other development
constraints where the density and nature of development is intended to be
limited. Development near or in this area is encouraged to utilize
planned unit development. These fragile features included wooded areas,

102
I
0
dunes, estuarine shoreline on unsuitable soils for septic systems.
Density in these areas will -not exceed that of the Low Density Residen-
tial Transition Area described above when developed with planned unit
development, nor will exceed 66% of that density when developed in a
conventional manner.
(5) Transition: Redevelopment Commercial. Those areas currently
in residential or commercial use but in poor or dilapidated condition
or having uses that greatly underutilize the potential of the land.
These areas are deemed by the Town to be more suitable for higher devel-
opment uses. In some instances these areas may include areas one would
expect to include in Limited Development Transition areas, however, they
are included in this classification in order to alleviate what appears
or has been proven to be an existing damage to the resource: the presump-
tion being that,a future use would pose less damage than the existing one.
(6) Transition: Redevelopment Residential. Those areas currently
in residential or commercial use as above, but -where development will be
limited to residential redevelopment only.
(7) Transition: Institutional. Those areas intended to provide
for the future public needs of the Town. These areas include streets,
beach access areas, school sites. These areas are not mapped because
they are part and parcel of development of other transitional areas.
(E) Conservation. Those areas deserving of long-term management because
of natural, cultural, recreational, productive or scenic values. These
areas include wetlands and water bodies within the Town. These areas
are inappropriate for future commercial and residential development.
Technically, the ocean hazard AEC would also qualify to be included in

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this area,'however, since most of the lots extend beyond the area
totally restricted to development, and since much of this area is also
already developed, these areas were classified under one of the other
classifications.
(G) Community. Not applicable.
(H) Rural. Not applicable.
10.2 Uses Allowed in the Classes
The following table is meant to illustrate uses not allowable in
each class: (* = not allowed)
USES
District Residential Commercial Resource Production
SF MF MH M/H Ma 0 Mi F T-77 OS
A
Not
Applicable
B
*--
C
D 1
2
3
*—*
4
5
6
7
F
Not
Applicable
G
got
Applicable
SF=single family; MF=multi-family, townhouse, apartments, condominiums;
MH=mobile homes; M/H=motels, hotels; Ma=marinas; 0=other commercial uses;
Mi=mining;R=;fope5try, A=agriculture; E=energy and energy access; OS=
open space uses.

104
10.3 Relationship between Policies and Land Classification:
The land use plan has outlined several policies designed to protect
natural features or which recognize limitations on development. These
policies were designed not to prohibit development but rather to encour-
age that the development be designed to be more in harmony with nature.
The features recognized in these policies include: dunes (secondary),
estuarine shoreline areas where soils are limited in capability for
handling on -lot -sewage disposal systems, wooded and vegetated areas con-
stituting the maritime system. These areas are designated as"transition.
The Town intends to make these areas districts in the zoning ordinance
and to provide the regulations necessary to carry out the policy in the
land use plan. In most of these areas it is:the clearing of the land
and the method of development more than the actual number of units that
posethe gravest problems to the environment.
The land use plan outlined a number of policies directed at redevel-
oping areas in poor or dilapidated condition. The general goal of these
areas is to provide for higher market uses in these areas and allow the
market to work with the zoning ordinance to remove the unacceptable uses.
The land use plan identified a number of uses that the Town considers
inappropriate with existing development or with the preferred use of the
resource, especially the harvesting of forest resources, the mining of
.the dune system, or beaches, etc. Uses of these resources for for-
estry, agriculture, fisheries, energy facilities, etc. is inappropriate.
These uses will"be prohibited in the zoning ordinance.
In terms of service provisions, the Town recognized its legal res-
ponsibility to provide an equal level of services to all residents within
the Town. The Town will attempt to use public spending to encourage

105
deye19pme.nt of those areas, that can most aptly develop at highest
densities, kith_ the least damage to the environment, Spending will in-
clude the location and timing of beach. access areas, recreational
facilities and public buildings, and the plans for paving,redesign of
streets and construction of a local collector system. -Limited
Deyelopment areas will be designated as a low priority for public
spending projects likely to increase growth primarily in those areas.
A recognized exception to this policy is to prioritize public spending
when the expenditure is intended to improve environmental quality or
eradicate existing damage. For example, top priority will be given
to building local sewer collectors to Soundside and Canal lots despite
this area being a Limited Development area, as the goal is to
improve estuarine quality even at the risk of increasing density of
development,
Many of the policies do not lend themselves to implementation
through mapping. Hence, they are difficult to relate to land classifi-
cation, In general, the Town intends to implement its land classification
map through a redrafting and redesigning of its zoning crap. The uses
and standards connected with the future zoning map have been outlined_
i n this plan,
The Town desires that the State and Federal government apply its
policies in agency reyiew, Since the Town intends .to use its land
class,ification map and policies to deyelop a revised zoning map and
ordinance, the Town desires that agencies ultimately be consistent with
the details of the latter as well as the broader statements of direction
included in the former,

TOWN OF ATLAN%-IC BEACH
CA RTERET COUNTY, N.C.
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