Land Use Plan-1989

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BRIDGETON, NORTH CAROLINA
1 1989 LAND USE PLAN
1
PREPARED FOR
THE TOWN OF BRIDGETON, NORTH CAROLINA
I BY
U
T. DALE HOLLAND CONSULTING PLANNERS
I
DECEMBER, 1989
1
Adopted by the Town of Bridgeton: December 4, 1989
Certified by the CRC: January 26, 1990
' The preparation of this report was financed in part through a grant
provided by the North Carolina Coastal Management Program, through
' funds provided by the Coastal Zone Management Act of 1972, as
amended, which is administered by the Office of Ocean and Coastal
Resource Management, National Oceanic and Atmospheric
' Administration.

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BRIDGETON, NORTH CAROLINA
1989 LAND USE PLAN
PREPARED FOR
THE TOWN OF BRIDGETON, NORTH CAROLINA
11
TOWN OF BRIDGETON BOARD OF ALDERMAN
Peter J. Harmatuk, Mayor
George Bryan
John Mitchell
Sara Howell
Rodman Williams
PREPARED BY TOWN OF BRIDGETON PLANNING BOARD
C. Frank Benton, Chairman
Horace Knapp
Donna Harmatuk
Robert DeLorme
John Jaskolka
and
Janet Williams, Town Clerk
PLANNING ASSISTANCE PROVIDED BY
T. Dale Holland, AICP Project Manager
J. Reed Whitesell Project Planner
The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through funds provided by the Coastal Zone Management Act of 1972,
as amended, which is administered by the Office of, Ocean and
Coastal Resource Management, National Oceanic and Atmospheric
Administration.
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' TOWN OF BRIDGETON, NORTH CAROLINA
1989 LAND USE PLAN
TABLE OF OONTENTS
' Page #
SDCfION I: ANALYSIS OF EXISTING OXMITIONS
A. Establishment of Information Base 1
1 B. Socioeconomic Conditions 3
1. Population 3
' 2. Local Economy 7
3. Housing 11
C. Existing Land Use 13
' 1. General Patterns 13
2. Residential Land Use 13
3. Commercial Land Use 14
4. Industrial Land Use 14
5. Public, Semi -Public (Institutional) Land Use 14
6. Existing Land Use Summary 15
7. Land Use Incanpatibility Analysis
16:
D. Constraints: Land Suitability
18
1. Physical Limitations
18
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2. Fragile Areas
22
3. Areas of Resource Potential
24
E. Constraints: Capacity of Community Facilities
26
'
1. Water
26
2. Sewer
26
3. Solid Waste
4. Schools
27
28
5. Transportation
28
6. Police, Fire, Emergency Medical
30
7. Community Facilities
31
F. Current Plans, Studies and Regulations
32
1. Town Code of Ordinances
32
2. North Carolina State Building Code
32
3. Zoning Ordinance
32
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4. Utilities Plans and Ordinances
5. Land Use
33
33
6. Emergency Management
33
7. Extraterritorial Jurisdiction
34
G. Projected Demand
35
1. Socioeconomic Projections
35
2. Land Demand/Availability Analysis
37
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3. Community Facility Demand/Availability Analysis
40

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Page #
A. Resource Protection Policies 43
Resource Protection Land Use Issues/Constraints Identified 43
Resource Protection Policy Statements 44
B. Resource Production and Management Policies 49
Resource Production and Management Issues/Constraints 49
Resource Production and Management Policies 49
C. Economic and Community Development Policies 51
Economic and Community Development Issues/Constraints 51
Economic and Community Development Policy Statements 52
D. Continuing Public Participation Policies 58
E. Storm Hazard Mitigation, Post -Disaster Recovery, and Evacuation Plans 59
1. Storm Hazard Mitigation: Discussion 60
2. Post -Disaster Reconstruction Plan 61
SECTION III: LAND CLASSIFICATION SYSTE14 66
A. Developed 67
B. Transition 67
C. Conservation 69
D. Land Classification Summary 69
SECTION IV: R MMONSHIP OF POLICIES AND LAND CLASSIFICATION SYSTEM 70
A. Developed and Transition Classes 70
B. Conservation Class 70
Map 1 Housing Conditions
Map 2 Existing Land Use
Map 3 Proposed Wastewater Collection System
and Composite Hazards
Map 4 Average Daily Traffic (ADT) Coordinates Map
Map 5 Land Classification
Map 6 Soil Types
ii

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Scale in Miles
0 25 50 75 100
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c
PITT COUNTY
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LENOIR COUNTY c!'"�v:' :'::..•
j U.S.
U.S. 17
JONES COUNTY
vi
BEAUFORT COUNTY (l
j PAMLICO COUNTY
:;. GETON
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-7T 1 U.S. 70
CARTERET COUNTY
BRIDGETON -- CRAVEN COUNTY
LOCATION MAP
SCALE
0 5 10 20 30 MILES

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SECTION I :
Analysis of Existing Conditions
and
Projected Demand

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SECTION I: ANALYSIS OF EXISTING CONDITIONS AND PROJECTED DEMAND
A. ESTABLISHMENT OF INFOR!lATION BASE
This 1989 Land Use Plan for Bridgeton has been prepared in
accordance with requirements of the North Carolina Coastal
Area Management Act (CAMA). Specifically, this document
complies with Subchapter 7B, "Land Use Planning Guidelines,"
of the North Carolina Administrative Code, as amended, July 9,
1984.
According to the Land Use Planning Guidelines, the major pur-
pose of developing local land use plans is to address issues
and adopt policies that guide the development of a community.
Additionally, a "Storm Hazard Mitigation, Post -Disaster
Recovery, and Hurricane Evacuation Plan" is required to be
included in the post-1984 land use plans. This element is
designed to help local governments effectively coordinate
policies and actions relating to the impact of hurricanes or
other severe storms.
The guidelines further give the following objectives the plan
should meet:
-- Identification of existing constraints to development,
land use incompatibility problems, and environmentally -
sensitive areas.
-- Provision of land use guidelines to assist private
individuals in supporting local government commitment to
planned, environmentally sound residential/commercial
development endeavors.
-- Analysis of intergovernmental issues and incorporation of
local land use policies into the regional, state and
federal planninq framework.
-- Provision of policy decisions that will allow more
efficient and equitable review of permit/grant requests by
state and federal agencies.
-- Establishment of an initial planning data base that will
allow cost-effective review and updating of the land use
planning document in the future.
A number of data sources were tapped during the preparation of
this plan in order to prepare analyses of population, housing,
the economy, and existing land uses. Most of the data came
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from primary and secondary sources in the form of direct
contacts with town officials, representatives of various state
and federal agencies, and/or previously published documents or
reports. Also, "windshield" surveys were conducted to obtain
data on existing land use patterns. Efforts were made to
obtain data that was as up to date and accurate as possible.
Several public meetings were held with the Planning Board in
order to solicit citizens' input on identifying preliminary
land development issues.
,
Listed below are some of the sources and documents utilized
during preparation of this Land Use Plan:
,
-- Craven County 1987 Land Use Plan Update
-- Wrightsville Beach 1986 Land Use Plan Update
-- Groundwater Section, North Carolina Division of Environ-
mental Management
-- USDA, Soil Conservation Service, Craven County
-- NCDOT, Planning and Policies Section
-- Bridgeton Town Clerk's office
-- U.S. Corps of Engineers, Wilmington Branch
Craven County Planninq Department
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-- Craven County Health Department
Craven County Inspections Department
-- Craven County Superintendent of Schools
-- North Carolina Office of State Budget and Management
-- North Carolina Division of Archives and History
-- Preliminary Engineering Sewer Study, Town of Bridgeton,
1986
-- Flood Insurance Study, Town of Bridgeton, 1987 (FEMA)
-- Town of Bridgeton Zoning Ordinance
Town of Bridgeton Volunteer Fire Department
_=
-- North Carolina Division of Community Assistance
North Carolina Division of Coastal Management
-- North Carolina Division of Archives and History
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B. SOCIO-ECONOMIC CONDITIONS
1. Population
a) General Population Trends
Table 1 shows Craven County municipal population
figures for the census years 1970 and 1980, as well as
County population figures for the same years.
TABLE 1
Craven County Municipal Population
1970 - 1980
April, 1970
April, 1980
Number
%
Census
Census
Change
Change
Craven County Total
62,554
71,043
+ 8,489
+ 13.6%
Br geton
520
461
- 59
- 11.3%
Cove City
485
500
+ 15
+ 3.1%
Dover
585
600
+ 15
+ 2.6%
Havelock
3,012
17,718*
+14,706
+588.0%
New Bern
14,660
14,557
- 103
- 0.7%
River Bend
**
959
+ 959
--
Trent Woods
719
1,177
+ 458
+ 63.7%
Vanceboro
758
833
+ 75
+ 9.9%
Municipal Total
20,739
36,805
+16,066
+ 77.4%
Source: N.C. State DataCenter; Office of State Budget and Management
*Cherry Point MCAS annexed 1980.
**Not yet incorporated.
From 1970 to 1980, the Town of Bridgeton lost a total
of 59 persons. Although most established, older
Craven County municipalities showed increases during
this period, the City of New Bern also had a popula-
tion decrease from 1970-1980. Two factors would seem
to account for the decrease in population in the New
Bern -Bridgeton area during this period. First,
migration patterns within Craven County from 1970-80
followed a general pattern from older, more estab-
lished urban areas, to the newer, "suburban" munici-
palities such as Trent Woods and River Bend, or
"rural" areas adjacent to the municipalities, such as
Fairfield Harbor in Township 2. This pattern of
migration is supported by the relatively high growth
rate in the newer municipalities from 1970-1980, and
by the corresponding growth in unincorporated areas
such as Township 2. In fact, Township 2 had the
highest percentage population increase of all nine
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Craven County townships from 1970-1980, despite the
fact that the Town of Bridgeton ( located in Township
2) had a significant loss in population over the same
period. Second, households moving into Craven County
would undoubtedly follow the same location pattern as
that exhibited by migrating Craven County residents
during this period, i.e., toward newer, relatively
undeveloped urban and suburban areas.
Table 2 shows Craven County municipal population in
1980, 1984, and 1987, as well as County population for
the same years.
TABLE 2
,
Craven County Municipal Population
1980 - 1987
April, 1980 July, 1984 July, 1987 Number
%
Census Estimate Estimate Change
Change
Craven County Total 71,043 76,807 80,272 +9,229
13.0%
Bridgeton 461 491 5 + 42
9.1 %
Cove City 500 541 561 + 61
12.2%
Dover 600 619 615 + 25
4.2%
Havelock 17,718* 21,608 23,417 +5,699
New Bern 14,557 17,706 18,871 +4,314
32.2%
29.6%
River Bend 959 1,584 1,887 + 928
96.8%
Trent Woods 1,177 1,511 1,849 + 672
57.1%
Vanceboro 833 922 952 + 119
14.3%
Municipal Total 36,805 44,982 48,665 +11,860
+32.2%
Source: N.C. State Data Center; Office of State Budget and Management
From 1980-87, the Town of Bridgeton gained an esti-
mated 42 individuals, and its significant rate of
growth during this period was consistent with that of
the County as a whole, and with that of other smaller,
older municipalities such as Cove City, Vanceboro, and
Dover. In general, however, the trend of very high
population growth in Craven County from 1980-87
remained within newer incorporated municipalities such
as Trent Woods and River Bend, whose rate of growth
greatly exceeded that of the County as a whole from
1980-87.
If Havelock is excluded (annexation of MCAS in 1980 is
not representative of objective growth patterns), the
mean annual growth rate of municipalities in Craven
County as a whole from 1970-1980 was 1.1%, while the
mean annual growth rate of the County as a whole
(including municipalities) was 1.4%. Thus, while
there was significant growth in the newer

municipalities from 1970-1980, the overall population
growth was greater in unincorporated areas of the
County than in the municipalities as a whole. How-
ever, from 1980-1987, the mean annual growth rate of
the Craven County municipalities was 4.6%, while the
County's rate as a whole (including municipalities)
was only 1.9%.
While all of the municipalities in Craven County (with
the exception of Havelock) exhibited higher growth
rates from 1980-87 than from 1970-80, the most dramat-
ic reversal in population growth took place in New
Bern, which had a population loss of 103 individuals
from 1970-1980, but an increase of 4,314 individuals
from 1980-87. This increase is the result of New
Bern's growth as a center of government, commerce, and
tourism for the entire County during the 1980s.
Bridqeton's similar pattern of renewed population
growth appears to be a direct result not only of a
growing general influx into municipal areas of Craven
County, but of the specific renewed growth of the City
of New Bern. It is anticipated that Bridgeton's popu-
lation growth will continue as economic and population
growth continue in Craven County as a whole, and in
particular, in Township 2 and other areas surrounding
New Bern.
In 1980, there were 138 families residing in
Bridgeton. The average family size was 3.34 persons
per household. The family size was significantly
higher than the North Carolina averaqe family size of
2.78 and the Craven County average family size of
2.84. The Bridgeton average family size is expected
to decrease throughout the planning period. This
would be consistent with the North Carolina trend for
a decrease in average family size of approximately .02
percent per year.
b) Composition
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The Town of Bridgeton population is almost totally
White. In 1980, there were 444 White residents.
Black population resided in the town. There were
total of fourteen (14 ) American Indians and three
Mexicans. Three of the White population
identified as being of Hispanic origin.
composition of the town' s population is
to change through the planning period.
officials state that the 1980 Census is
at least three Black individuals reside
and have resided there for many years.)
No
a
(3)
we re
The racial
not expected
(Note: Town
in error; that
in Bridgeton,

c)
This trend is counter to that
which is occurring in
Craven County. From 1960 to
1986, the Non -White
percentage of the County's
total population increased
from 29% to 31%. A slight
increase to 33% is expected
to occur by 1996.
TABLE 3
Town of Bridgeton - Age By Sex, 1980
----1980----
Age In Years
Male Female
Under 5
17 7
5 -14
40 25
15-24
35 40
25-34
35-44
30 30
21 22
45-54
9 25
55-64
44 41
65 & Over
30 45
ALL AGES
226 235
Source: N.C. State Data Center, Office of
State Budget
and Management
As Table 3 illustrates, the
total number of females
slightly outnumbered males
in 1980. The males out-
numbered the females in only the under 5 and 5-14
categories. Additionally,
34% of the town's popula-
tion was 55 years of age or
older. This figure is
roughly twice the Craven County
percentage and is
indicative of a large number of retirees, a factor
which strongly impacts the
local economy and housing
market, as well as local opinion
about land use and
community development.
Seasonal Population
As an inland community with no major tourist attrac-
tions, the Town of Bridgeton's population does not
fluctuate seasonally. However, this could change with
the increased popularity of coastal North Carolina as
a tourism and retirement center.
Bridgeton's location at the intersection of U.S 17/NC
55 means that projected increases in peak population
in resort areas to the north, east and south of the
town will have a direct impact on traffic congestion,
retail sales, litter, etc. in Bridgeton. I
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2. Local Economy
a) General
Commercial and manufacturing activity in Bridgeton has
historically been more energetic than the small size
and demographic/economic profile of the town would
suggest, and has increased noticeably since 1980. One
reason for the town's relatively active commercial
life is its location on the U.S. 17 Bypass, along
which a "strip" type of commercial development has
taken place over the past ten years. A central
business district does not exist in Bridgeton.
Another boost to the local service/retail economy has
been the rapid pace of housing and commercial
development in adjacent areas of Township 2 in recent
years. The town's proximity to the railroad and a
major highway, as well as low property tax rates and a
municipal water system, have made it a popular
location for small manufacturing concerns. However,
the lack of a municipal sewer system and environmental
constraints associated with the Town's location on the
Neuse River have been recent barriers to significant
additional industrial development within the existing
town limits.
b) Retail/Service Activity
The following retail/service-type businesses are now
operating in the Town of Bridgeton:
TABLE 4
Retail/Service Businesses in Bridgeton, January, 1989
Type of Business Number
1) Barber shop 2
2) Beauty shop 2
3 ) Auto body shop 1
4) Furniture repair shop 1
5) Used car lot 5
6) Sign shop 1
7) Convenience stores 3
8) Fire extinguisher shop 1
9) Service stations 2
10) Blueberry farms/outlets 2
11) Gift shop 1
12) Cabinet shop 1
13) Hardware store 1
14) Real estate office 1
15) Eagle supermarket 1
16) Tile contractors 2
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1 7 ) Radiator shop 1
18) Motel 1
19) Poultry market 1
20) Produce market 1
21) Restaurant/truck stop 1
22) Furniture store 1
23) Attorney's office 1
TOTAL 34
Source: Telephone survey by T. Dale Holland Consulting
Planners, January, 1989. Also, Bridgeton Town
Clerk's Office.
According to the Bridgeton Town Clerk, the type and number
of commercial establishments and service -type businesses
have grown significantly over the past few years.
c) Manufacturing
The following manufacturing companies are located
within the town limits:
TABLE 5
Manufacturing Companies in Bridgeton, January, 1989
De scr ipt ion of # of
Manufacturer Business Employees Growth Trend
1) The Yachting Boatyard/ 10 Steady growth
Center sailmaker/ associated with
chandlery increased tourism
2) Encee Chemical
3 ) Georrgia•-
Pacific
4) Damco, Inc.
5) Frit Environ-
mental, Inc.
Manufacturer of
20
Recently sold two
micronutrients
divisions - fore -
and wetting agents
see steady growth
of remaining
Bridgeton operation
Manufacturer of
60
Essentially a
hardwood veneer
static, but healthy
operation
Machine shop and
16
Moved here two
metal fabricator
years ago -
anticipate steady,
controlled growth
Waste treatment
12
Has grown rapidly
contractors
since August, 1987
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Description of # of
Manufacturer Business Employees Growth Trend
6) South Ghee, Industrial chemical 6 Has slowly
Inc. distributor increased market
share since
December, 1987
Total 124
Source: Telephone survey by T. Dale Holland Consulting Planners,
January, 1989. Also, Bridgeton Thwn Clerk's Office.
During telephone conversations with all six manufac-
turers, a positive attitude about business stability
and growth was displayed by company personnel. Addi-
tionally, three of the six businesses have located to
Bridgeton within the past two years, and a fourth
business (Encee Chemical) is basically startinq a new
operation in Bridgeton.
In Bridgeton, the most significant economic impacts of
the strong local industrial base are upon the local
service economy and tax base. There is only a minor
direct effect on local employment. According to the
Town Clerk and employees of all six businesses
surveyed, almost all of the employees of the local
industries live out of town. Conversely, most of
Bridgeton's available labor force, i.e., those
working -age residents not involved in the local
service economy, work out of town.
d) Income
TABLE 6
Town of Bridgeton
Families Below Poverty Level, 1979
(In comparison to Craven County and North Carolina)
1979
Number % o -Popu ation
Town of Bridgeton 26 20.0
Craven County 2,869 15.5
North Carolina 183,146 11.6
Source: Cgnsus on Population and Housing, 1980,
N.C. State Data Center
Office of State Budget and Management
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As Table 6, above,
illustrates, the percentage of
families in Bridgeton with incomes below the poverty
level was significantly higher than North Carolina's
percentage in 1979.
This was also true for persons
with incomes below
the poverty level, as noted in
Table 7, below:
TABLE 7
Town of Bridgeton
Persons
Below Poverty Level, 1979
(In comparison to
Craven -County an Nort Carolina)
1979
Number %-o -Popu anion
Town of Bridgeton
118 26.0
Craven County
12,318 18.5
North Carolina
839,950 14.8
Source: Census
Population Housing,
on
and ,
N.C. State
Data Center
Office of
State Budget and Management
Several factors were to blame for the relatively low
family/individual income in Bridgeton noted in 1979.
First, the Town was at the end of a short-term loss of
population due to demographic factors cited above.
Upwardly mobile households were not moving into town,
and some upwardly mobile households living in
Bridgeton had emigrated to newer municipalities/
subdivisions in Craven County (or other areas) over
the past ten years. Bridgeton has also historically
had a relatively high percentage of retirees, who
typically live on lower, fixed incomes. Finally, the
three manufacturing firms located in town in 1979 had
very little positive impact on the local employment
picture, since most of their employees lived out of
town.
The high percentage of individuals living on fixed
incomes, and lack of local manufacturing jobs, are
still factors affecting the economic status quo in
Bridgeton in 1989. However, the steady growth of new
local manufacturing concerns, and the continuing
growth of the local service/retail economy associated
with the development of New Bern and Township 2, are
positive economic indicators for the future.
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3. Housing
a) 1980 Housing Summary
TABLE 8
1980 Census - Town of Bridgeton Housing Summary
Item
Total Units
Year -Round Units
Vacant Year -Round Units
Occupied Year -Round Units
Renter Occupied Units
Persons in Occupied Units
Average Household Size
Number
214
214
24
190
86
461
2.43
Source: N.C. State Data Center
Office of State Budget and Management
As shown in Table 8, above, 24 of the total 214
housing units in the Town of Bridgeton were vacant in
1980. Of the 24 vacant units, representing 11% of the
total housing stock in 1980, four were for sale, seven
were available for rent, and 13 units were listed by
the Census as "other vacant."
b) Housing Conditions
Both the 1980 Census and a windshield survey performed
by the town's planning consultant in 1986 indicated
that there were a number of substandard housing units
within the Town of Bridgeton. The existence of sub-
standard housing is primarily the result of two
factors: First, in 1980, 33% of the town's housing
units had been built prior to 1940, and 70% of the
housing units were over twenty years old. The gener-
ally aged condition of the town's housing stock is
worse today, as there has not been any new single -unit
housing development in the town since 1980. Second,
needed repairs to older, deteriorating housing are
often not made due to the fact that the residents are
elderly and living on a fixed income, or otherwise
financially incapable of undertaking needed repairs.
Based on a detailed housing survey performed by
T. Dale Holland Consulting Planners in December, 1988,
a substantial number of substandard housing units
presently exist within the Bridgeton town limits.
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Table 9,
below, outlines housinq conditions by
type of
unit and
severity of need. Map 1, Existing Housinq
Conditions,
depicts the housing conditions outlined
in
Table 9.
TABLE 9
Town of
Bridgeton Housing Conditions, December,
1988
Severely. Moderately
Minor/
Unit Type
Total Dilapidated Deteriorated Deteriorated
Non -Need
Conventional
Frame -Built
Structure
151 4 20 41
86
Mobile Hanes
50 1 5 25
19
Multi -Unit
Townhouses
42 0 0 0
42
Zbtal i
Structures 246 5 25 66 150
Source: T. Dale Holland Consulting Planners, December, 1988,
Housing Survey
NOTE: Conditions of deterioration are based on objective criteria
developed by the N.C. Division of Community Assistance for use
in the needs identification section of Community Block Grant
"Catanun ity Revital i zat ion" appl icat ions.
The housing conditions data above indicate that many
of Bridgeton's elderly and other low -to -moderate
income households continue to occupy substandard
housing. Almost half (43%) of the town's conventional
frame -built housing stock, and 60% of all mobile
homes, can be identified as having moderate to severe
rehabilitation needs. Five structures can be classi-
fied as dilapidated, or past the point of cost-
effective repair. As seen on Map 1, many of the worst
housing conditions are found in an area between Mill
and Bridge Streets, and east of "A" Street. However,
substandard housing exists in all parts of the town.
Much of the town's housing stock is located on very
small lots, which exacerbates the substandard struc-
tural conditions. On the positive side, a 42-unit
townhouse development near the Neuse River is nearing
completion, and has substantially increased the
percentage of total "minor/non-need" or "standard"
housing units in the town.
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IC. EXISTING LAND USE
1. General Patterns
The major changes in the land use pattern in Bridgeton
over the past twenty years have been 1) an increase in the
use of undeveloped land in the northwestern quadrant of
town and along U.S. 17 for industrial/commercial use, and
2) the increasing use of undeveloped land for mobile home
park development and scattered -site mobile home lots. The
most significant recent land use development issue is the
construction of a 42-unit townhouse development on unde-
veloped property near the Neuse River, in a traditional
residential area previously utilized only for single-
family use. However, despite these trends and recent
developments, the area of town west of U.S. 17, south of
the industrial areas, and not adjacent to the highway, has
retained its character as a quiet, single-family residen-
tial area over the past twenty years.
2. Residential Land Use
According to the Bridgeton Town Clerk, these has been no
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new conventional single-family housing development within
the town limits since 1980. Existing conventional resi-
dential use continues to be concentrated in an area west
of U.S. 17, south of Academy Street, and north of South
Street (see Map 2, Existing Land Use). As discussed in
the "Housing" section, the great majority of the housing
stock in this area is over thirty years old, and deteri-
oration of the older units is becoming a matter of con-
cern. There are also isolated single-family conventional
dwellings at the extreme northern end of town, and also
bordering U.S. 17 and N.C. 55 in the southeast quadrant of
town.
The most significant trend in residential land use in
Bridgeton since 1970 has been a significant growth in
mobile home development. while the majority of the town's
existing mobile homes are concentrated in two mobile home
developments bordering the eastern half of Pine Street,
there has been appreciable mobile home development within
the more traditional, conventional single-family residen-
tial neighborhoods. The town's Zoning Ordinance does not
prohibit the location of mobile homes in any mixed -use or
rural residential area; however, mobile homes are prohib-
ited in the sole -use residential area west of U.S. 17.
The construction of a 42-unit townhouse development
bordering Mill Street, adjacent to the Neuse River, is an
issue that has significantly affected local discussion
about residential land use. This is Bridgeton's only
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existing multi -unit residential development, and it is
expected to be completed in 1989. The town has no
existing zoning restrictions concerning multi -family
construction in designated residential areas.
3. Commercial Land - Use
Commercial activity in Bridgeton is primarily concentrated
along or within one block of U.S. 17, interspersed with
areas of residential and institutional land use, through-
out the entire town. Commercial land use in this area has
grown appreciably in recent years, and commercial land use
is compatible with zoning for the area along U.S. 17,
which is either "highway commercial" or "residential
commercial."
The Town of Bridgeton does not have an area that can be
defined as a central business district or "downtown"
commercial area. However, the Zoning Ordinance does
define a "general business" district covering approx-
imately two acres near the Town Hall, and several commer-
cial establishments are located in this area. Several
other commercial establishments are located within
residential areas close to the designated general business
district. However, these appear to be older, "household"
businesses whose existence does not conflict with desig-
nated residential zoning for these areas.
4. Industrial Land Use
As indicated on Map 2, Bridgeton has been successful in
isolating existing industrial land uses to areas north of
Academy Street and south of the railroad tracks, which has
minimized incompatibility with residential and institu-
tional uses. Currently, all manufacturing -type industries
are in industrial -zoned areas. The difficulty in obtain-
ing industrial wastewater disposal systems, the Zoning
Ordinance, and environmental regulations relating to the
town's proximity to the Neuse River are all factors limit-
ing the geographic dispersal of industrial land use within
the town limits. Newer industries locating in Bridgeton
have been service/manufacturing or distributorship
operations, in keeping with the obvious restrictions to
large, process -oriented `manufacturing operations.
5. Public, Semi -Public (Institution -al) Lund- Use
The Town of Bridgeton institutional land uses consist of
the United States Post Office (and associated vacant
property), three churches, the elementary school, the Town
Hall/Fire Department property, the former Bridgeton Police
14

Department property, and a parcel
owned by the
Bridgeton
Volunteer Fire Department located
on the Neuse
River north
of the railroad tracks. There are
no existing
parks or
publicly -owned open spaces available
for recreational
purposes within the town limits.
6. Existing Land -Use- Summary
All existing land use information
depicted on
Map 2 is
based on surveys performed by the
staff of T.
Dale Holland
Consulting Planners from December,
1988, through
February,
1989. Once the final map was completed,
square
footage
measurements were performed with
a planimeter
to quantify
existing land use by type within
the town limits.
Table 10, below, is a summary of
existing land
use:
Table 10
Summary of Existing Land Use,
Town of Bridgeton,
NC
February, 1989
Percent of
Percent of
Land Area
Developed
Total
Type of Use (in acres)
Land Area
Land Area
Developed Land
Industrial 18.5
18.5%
7.5%
Commercial 24.8
24.8%
10.1%
Public, Semi -Public 11.1
11.1%
4.5%
Residential 45.7
45.6%
18.6%
Subtotal - Developed
Land Area 100.1
100%
40.7%
Undeveloped Land
Vacant 69.1
N/A
28.0%
Right-of-way 77.0
N/A
31.3%
Total Land Area .
N/A
T�—
Source: T. Dale Hotiand Consulting Planners
I
F]
. I
15

7.
Two assumptions were made during preparation of the exist-
ing land use map which should be noted here. First, the
right-of-way acreage includes both paved, unpaved, and
uncleared (or obstructed) NCDOT and town -owned right-of-
way. It is assumed that existing uncleared rights -of -way
will be necessary to ensure an adequate local transpor-
tation system as development continues, particularly since
most of the uncleared rights -of -way border undeveloped
areas east of U.S. 17. Second, if a land use existed for
a given lot, it was assumed to exist for the entire parcel
containing the lot ( indicated by solid lines) . Therefore,
the amount of vacant land available for future development
in some cases may be greater than it appears on the map;
e.g., in a case where a small home exists on the edge of a
large parcel, the landowner may ultimately subdivide the
parcel and thus allow future residential development.
Conversely, there are lots appearing on the map as
"vacant" which are utilized for essentially commercial or
residential purposes by non-residents or adjoining
property owners (for gardens, storage, etc.). However,
the parcel containing that lot did not contain a
resi ential or commercial structure; therefore, the parcel
is considered vacant and available for development.
Land Use Incompatibility Analysis
a. General
A land use compatibility problem exists when two or
more land use types are adjacent to one another, and
one type of use is restricted from expansion because
of conditions caused by adjacent land use(s). Usual-
ly, incompatible land use is the result of unplanned
development. However, other factors such as stricter
government regulations, programmed development activ-
ity, etc., can lead to incompatible land use.
In Bridgeton, some of the incompatibility problems
which have troubled other eastern North Carolina
communities, such as unrestricted industrial develop-
ment, do.not exist. Nonetheless, there are three land
use incompatibility problems in Bridgeton which are a
source of concern in this study:
b. Commercial/Residential Land Use
Recent commercial development along and near U.S. 17
has taken place adjacent to established residential
units, and adjacent to the sole -use residential
district. Additionally, mobile home development is
taking place in "highway commercial" zoning districts,
16

where residential use is conditionally permitted, but
where commercial activity is the predominant land use.
There are also several older, conventional single -unit
dwellings located in "highway commercial" districts.
Without discussion and planning to ensure harmonious
co -development, this incompatibility between residen-
tial and commercial use could become a major problem,
since much of the land available for development
within the town limits is adjacent to U.S. 17.
Conventional
c. Dwelling Units/Mobile Homes
One result of unplanned development noted in this
study is the expansion of existing mobile home parks,
and the increasing movement of mobile homes in and out
of older residential neighborhoods where single-family
conventional units have long been the rule. While not
wishing to eliminate a good source of low- and
moderate -income level housing, the town also wishes to
preserve the character of its older residential
neighborhoods by preventing a "hodge-podg e"
residential appearance. This situation is an example
of a possible land use incompatibility within the
parameter. of a single, broad existing land use type
(residential).
d. Single-Family/Multi-Family Development
The town's approval of a 42-unit townhouse develop-
ment, and continued interest by developers in water-
front property in Bridgeton, have raised the issue of
another possible incompatible land use within the
"residential" areas defined on the existing land use
map. While multi -unit developers and some town
residents might perceive multi -family housing as a
benefit, others might wish to allow only single-family
dwelling units within the town limits. Others might
wish to restrict multi -family housing to designated
areas. A policy affecting future construction of
multi -unit housing will be a significant issue in this
plan.
L
17
1

D. CONSTRAINTS: LAND SUITABILITY
Under land suitability, possible serious constraints to devel-
opment are generally considered under the broad categories of
(1) physical limitations, i.e., hazardous (man-made or
natural) areas, areas with soil limitations, hazardous slopes,
etc.; (2) fragile areas, i.e., AECs, complex natural areas, or
areas with cultural (architectural or archeological) signifi-
cance; and (3) areas with resource potential, i.e., productive
or prime agricultural or forest lands, recreational areas, or
potentially valuable mineral sites.
1. Physical Limitations
a. Man -Made Hazards
There are no significant man-made hazards within the
Bridqeton town limits other than lumber trucks and
heavy machinery associated with the Georgia-Pacific
plant, underground fuel storage tanks located at con-
venience stores and service stations, and bulk chem-
icals stored at Encee Chemical and South Chem, Inc.
Both chemical distributors are located in the indus-
trial district, and manufacture and/or distribute
agricultural chemicals in amounts which do not pose a
health hazard to area residents. As a result of
recently -adopted federal regulations concerning under-
ground storaqe tanks, the threat of explosion or
groundwater contamination from existing UST's should
decrease in coming years. Additionally, the Craven
County Building Inspection Department oversees modifi-
cation/installation of underqround storage tanks
within the town limits. The Georgia-Pacific plant is
in an industrial area isolated from residential areas.
Based on the final environmental impact statement for
the MAEWR (Mid -Atlantic Electronic Warfare Range)
recently performed by the Naval Air Systems Command,
Bridgeton and its environs are not located in any
high, moderate or low danger areas associated the
low -flying military aircraft or military operations.In
summary, man-made hazards should not impact further
development within areas of existing, controlled
(zoned) land use, or in areas outside the town which
generally follow existing patterns of development
within the town limits.
b. Flood Hazard Areas
A detailed flood insurance study was performed by the
Federal Emergency Management Agency (FEMA) and sub-
mitted to the Town of Bridgeton on May 4, 1987.
According to the flood insurance rate map submitted
18

rwith
the study, all of the Town of Bridgeton is
located within a special flood hazard area (Zone A6),
or within the boundaries of a 100-year flood. The
100-year flood level at Bridgeton is 9.1 feet above
NGVD (National Geodetic Vertical Datum), while the
land surface is only 9 feet or less above NGVD.
According to the study, the principal source of flood-
ing in Bridgeton is storm surge generated by tropical
storms and hurricanes, which raise the water level in
the Neuse River. In the past, several hurricanes have
caused widespread flooding and structural damage in
Bridgeton.
The location of the entire town within the 100-year
flood boundary is a constraint to development of any
kind, particularly on the waterfront. However, the
Town adopted a Flood Damage Prevention Ordinance in
1987, and also amended its Zoning Ordinance to ensure
that all land uses in the areas of special flood
hazard comply with the Flood Damage Prevention Ordi-
nance. In addition, better construction standards,
elevation restrictions, and the availability of flood
insurance all help to mitigate the potential impact of
flooding on existing and future developemnt.
c. Soils Limitations
Based on soil conservation maps prepared for Craven
County by the USDA Soil Conservation Service, the soil
types within the Bridgeton town limits are confined to
the Murville series and the Seabrook series, with some
Dare Muck soils scattered along the shoreline. The
Seabrook soils are predominant in the southern third
of the town, then run through the town's center before
tapering out in the northern third of town. The
Murville soils are predominant along the riverfront in
the northern half of town, and also to the east of
U.S. 17 in the northern two-thirds of town. Murville
soils are also predominant throughout the northernmost
quarter of town. (See Map 6 for soil conditions.)
The Soil Conservation Service has not yet published an
inventory of soil resources for Craven County. How-
ever, they do have soil interpretation records avail-
able for the Murville and Seabrook series. These
records outline specific soil properties such as plas-
ticity and permeability, and also describe the soils'
suitability of use for sanitary facilities, construc-
tion material, building site development, and water
management. When used in the suitability analysis,
"moderate" means the soil quality is favorable for a
specific use if careful planning and design criteria
are followed during use. "Severe" means that the soil
19
r

properties are so unfavorable for a given use that
activities such as soil reclamation, special design,
and intensive maintenance may be required to mitigate
the unsuitability of the soil for the project or use.
For the purpose of this study, the most important soil
property to consider is drainage capability as it
relates to septic tank absorption fields and building
site development. According to soil interpretation
records, the Seabrook soils are moderately well -
drained, and the Murville soils are very poorly -
drained. Both soils are sandy, developed in marine
sediments, and have slopes less than 2 percent. As is
typical of similar soils found in the North Carolina
coastal plain, both soils have "severe" limitations
for use as septic tank absorption fields due to poor
filtration characteristics, high organic content, and
their occurrence in areas with an underlying hardpan
soil layer and a very high water table. While peri-
odic flooding and ponding on residential or commercial
sites is rare for both soils, the Murville series has
"moderate" limitations for residential and small
commercial buildings because of wetness problems.
According to the Craven County sanitarian, Bridgeton
has historically had problems with septic tank
failures and installation of new septic sysems because
of poor soil suitability. The moderate -to -poor
drainage quality of the soils in the Bridgeton area is
unquestionably a physical limitation to development,
and will have a significant impact on local planning
issues including waterfront building development,
wastewater treatment, groundwater and surface water
quality, and any type of drainage or roadway improve-
ment undertaken by the town.
d. Potable Water Resources
Groundwater is the sole source of potable water for
public and private use in Bridgeton. According to
Geology and Groundwater Resources of Wilmington -New
Bern -Area, published by the N.C. Department ot Water
Resources in 1960, there are three principal aquifers
yielding water to wells in Craven County - surficial
deposits, the Peedee formation, and the limestone
unit. In Bridgeton, no public or private wells extend
to the Peedee formation, which is a sand/clay forma-
tion underlying the limestone unit, used as a source
of public water supply in western portions of the
county. Private water wells in Bridgeton draw pri-
marily from the surficial deposits, while the public
water supply is drawn from the limestone unit.
20

'
The surficial, quaternary deposits in Bridgeton
consist of sand with subordinate amounts of clay of
Pleistocene age, containing scattered shell fragments.
The static water table in the town is generally less
than 10 feet below ground level even during dry
periods, and the use of well points to obtain supple-
mental domestic water supplies is a common practice
due to the relatively small expense involved.
Underlying the surficial geologic deposits in
Bridgeton, which extend down approximately 20-2 5 feet,
are beds of unconsolidated, sand, clay, marl and shell
material which compose the Yorktown and River Bend
limestone formations. These extend down to approxi-
mately 40-50 feet from the surface, where the Castle
Hayne limestone formation is encountered. The Castle
Hayne limestone is a shell and sand limestone
formation which has varying degrees of consolidation,
permeability, and aquifer yield. Knowledge of proper
well construction techniques and local well depths/
yields is very important to obtaining a satisfactory
water supply from deeper, limestone unit wells in the
Bridgeton area.
The First Craven Sanitary District, which supplies the
Town of Bridgeton and surrounding area with potable
water, obtains water from two 100-foot wells located
off N.C. 55 within a mile of Bridgeton. Both of these
wells draw from aquifers contained in the Castle Hayne
limestone, and have a sustained individual yield of
300 gpm, which greatly exceeds the current demand.
The only existing condition which could significantly
affect the public groundwater supply for Bridgeton is
the unlikely event (with current drawdown) of salt
water intrusion from a deeper aquifer, or from lateral
movement from the river bed. Based on the consistent
abundant yield from other deep wells in the New Bern
area, it is anticipated that the sanitary district
could easily locate a convenient supplementary or
alternate ground water supply in the event of contam-
ination of its existing wells, or if demand exceeded
current supply capability.
As a result of the poor drainage qualities and filtra-
tion characteristics of the soil, and small lot sizes,
contamination of shallow water wells in Bridgeton from
septic tanks is a concern. However, because of the
availability of a public water supply, and since a
public sewer system is in the design phase, the possi-
bility of shallow groundwater contamination should not
be a significant constraint to development in the
Bridgeton town limits. However, it should be a con-
cern in the discussion of policies affecting property
21

2.
development in and adjacent to the town limits, since
the s urficial aquifer is an important natural resource
which can be adversely affected by stormwater runoff
sometimes associated with increased development.
e. Surficial Water Resources
Although the Neuse River does not serve as a water
supply for the Town of Bridgeton, the significance of
the river as a recreational, cultural, and general
economic resource cannot be underestimated. Con-
straints to development posed by the town's location
on the river itself will be discussed in Section D.3.
Fragile areas associated with the river, such as
wetlands and estuarine waters, will be discussed in
the next section.
Fragile Areas
a. General Discussion
Fragile areas are areas which could be easily damaged
or destroyed by inappropriate or poorly -planned devel-
opment. More specifically, these are: coastal wet-
lands, sand dunes along the outer banks, ocean beaches
and shorelines, estuarine waters and estuarine shore-
lines, public trust areas, complex natural areas,
areas that sustain remnant species, areas containing
unique geological formations, registered natural
landmarks, and others, such as wooded swamps, prime
wildlife habitats, scenic and prominent high points,
and archaeological and historic sites. Following a
consultation with N.C. Coastal Resources Commission
officials and representatives from the N.C. Division
of Archives and History, four fragile areas were
defined in Bridgeton: Estuarine Waters AEC (Area of
Environmental Concern), Estuarine Shoreline AEC,
Coastal Wetlands AEC, and underwater archaeological
sites. The estuarine system AEC's are defined in NCAC
7H. (Refer to Appendix I) Each of these areas is
discussed in detail below:
b. Estuarine Water AEC
All surface waters of the Neuse River fronting the
Town of Bridgeton are classified as an Estuarine
Waters AEC.
c. Estuarine Shoreline AEC
All of the land in Bridgeton within 75 feet of the
normal water level of the Neuse River is classified as
an Estuarine Shoreline AEC.
22

d. Coastal wetlands AEC
The Coastal Wetlands AEC designation applies to all
regularly and occasionally -flooded marshland tidally
influenced by the Neuse River. Based on a survey of
riverfront property by the staff of T. Dale Holland
Consulting Planners and a representative of the
Division of Coastal Management, two vegetative species
associated with the Coastal Wetlands AEC were identi-
fied along the Bridgeton waterfront. American Bald
Cypress was plentiful, and spots of Giant Cordgrass
were observed in isolated areas. Other Coastal
Wetlands AEC vegetative species (not observed in
Bridgeton) include: black needlerush, glasswort, salt
grass, sea lavender, bulrush, saw grass, cat -tail,
salt meadow grass and salt reed grass.
"404" wetlands are wetlands regulated by the U.S.
Army Corps of Engineers. The "404" designation
includes all Coastal Wetlands AEC areas described
above, as well as inland wetland areas which are not
designated as coastal wetlands. A possible 11404"
wetlands area, a 4-acre tract consisting of two vacant
blocks located inland between Academy and Pine
Streets, was identified during the AEC survey for this
study. The U.S. Corps of Engineers has been asked to
meet with town officials to make an official deter-
mination of whether or not this area qualifies as a
11404" wetlands area.
e. Underwater Archaeological Sites
A comprehensive inventory of architecturally or
historically significant properties has not been per-
formed for Bridgeton, and no properties eligible for
nomination to the National Register have yet been
identified. No historic terrestrial archaeological
sites have been identified within Bridgeton by State
or other archaeologists. However, there is one well -
documented underwater archaeological site within 300
feet of the Bridgeton waterfront - the remains of a
schooner identified during a Corps of Engineers' site
assessment for Eastern Shores Townhouses Marina in
1985. According to the N.C. Underwater Archaeology
Branch, there is a strong possibility that other such
archaeological sites might exist along the Bridgeton
waterfront. Additionally, despite the fact that no
terrestrial sites or structures of cultural signifi-
cance have yet been identified in Bridgeton, there is
a moderate to strong possibility that such sites
exist, since the town has a long association with the
commercial waterfront.
23

f. Constraints
The existence of fragile areas, including both natural
and cultural resources, associated with Bridgeton's
riverfront location are of obvious importance to this
plan and the development of policies influencing
future land development in and adjacent to the town.
Of immediate concern is renewed interest in residen-
tial and recreational development along the river -
front. This development must be controlled, and
existing coastal area regulations enforced, if fragile
areas are not to be damaged or destroyed. Storm water
runoff, which increases with development throughout
the town as a whole, is the most important factor
affecting estuarine water quality. The construction
of a town -wide sewer system will be a tremendous asset
in maintaining water quality in the estuarine areas,
but it will not eliminate the need for planning and
regulation to project those areas.
"Waterfront" property in Bridgeton is currently
utilized for all types of defined existing land use in
Bridgeton. Although there are no major constraints to
planned and regulated residential, commercial, or
institutional land use adjacent to the Neuse River,
industrial land development on the waterfront is, in
general, strictly constrained by the existence of
fragile areas because of the strong potential for
adverse environmental impact associated with indus-
trial development, and because of the stringent
regulations concerning land use in coastal areas.
While no long-term or outstanding environmental
problems have been associated with existing industries
located on the riverfront, the regulation of new and
existing industrial development near the river is
expected to be a significant issue facing the Town of
Bridgeton during the planning period.
3. Areas of Resource Potential
Areas with resource potential include: productive and
unique agricultural lands; potentially valuable mineral
sites; publicly -owned forests, parks, fish, and gamelands,
and other non -intensive outdoor recreation lands; and
privately -owned wildlife sanctuaries. Agricultural lands
and forestlands are the only areas of land -related
resource potential that apply to Bridgeton. The majority
of the land within Bridgeton's potential extraterritorial
jurisdiction is agricultural and forestlands. However,
agricultural and commercial forestry are not substantial
income producers for Bridgeton. Due to Bridgeton's
24

expanding growth in commercial and residential land uses,
it is not likely that its resource potential will increase
in either agriculture or commercial forestry.
The riverfront has always been the most important local
resource in terms of economic growth and recreational
diversion for Bridgeton residents. The potential for
future development along the riverfront and maintenance of
the aesthetic appeal of the riverfront area is contingent
upon planning and enforcing policies to maintain the
river's environmental health. Developing policies to
conserve fragile areas, maintain water quality, and
provide public recreation areas, while allowing healthy
residential and tourism -related development along the
riverfront, will not be an easy task. However, the devel-
opment of such policies will ensure that the riverfront
grows as a significant economic, aesthetic, and recre-
ational resource for the Town of Bridgeton.
LI
Cl
if
25

E. CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
1. Water
The Town of Bridgeton is served by the First Craven Sani-
tary District, which serves approximately 1,100 customers
in Township 2 of Craven County, including all households
within the Bridgeton town limits. The district operates
two water wells, one located on N.C. 55 approximately 1/2
mile east of Bridgeton, and the other located at the
treatment plant approximately one mile east of Bridgeton
on N.C. 55. Treatment consists of softening, chlori-
nation, and aeration. The district infrastructure within
Bridgeton consists of approximately 20,500 L.F. of 2 "-8"
distribution line and fire hydrants; operating pressure
averages 35-45 p.s.i.
Both water wells are approximately 100 f t. in depth and
draw groundwater from confined aquifers in the Castle
Hayne limestone. The peak pumping capacity of each well
is 300 gpm and plant treatment capacity is 600 gpm;
however, the plant could not maintain peak capacity indef-
initely. Current peak demand is approximately 350,000
gallons per day for the entire sanitary district, or only
about 250 gpm, which is well under half of the peak oper-
ating capacity (600 gpm) for the water plant.
All tie -on fees, monthly user fees, and service problems
are handled directly by the sanitary district. The Town
of Bridqeton is not directly involved in customer service
or maintenance/construction relating to the water supply
system within the Town limits.
2. Sewer
Except for a package sewaqe treatment plant utilized by
the Eastern Shores townhouses development, wastewater
generated in the Town of Bridgeton is discharged to
individual septic tank/nitrification field systems. The
poor filtration quality and high organic content of area
soils, their moderate to poor drainage characteristics
(the sandy soil is underlain by cemented hardpan) , the
high water table, and small residential lot sizes all
combine to make the failure of existing septic systems a
recurrent problem. Obtaining a permit from Craven County
to install a new septic system is often difficult, requir-
ing specially -modified tank systems, extended drainfields,
etc. Permits for repair of existing systems can be
obtained; however, if the repaired system is modified, it
must be done according to current regulations.
26

According to the Craven County sanitarian, sometimes lot
size restrictions make drainfield modifications or instal-
lation of any kind of new septic tank system impossible.
Additionally, the existence of fragile waterfront areas
that can be adversely affected by storm water runoff
contaminated by effluent from failing septic systems
places another constraint on the installation of septic
systems.
The town has long recognized the environmental problems
associated with existing septic systems, as well as the
constraints to additional development posed by the lack of
a public sewer system. In August, 1986, the town had a
preliminary enqineering study performed to analyze exist-
ing waste disposal problems, determine grant eligibility,
and outline sewer system design alternatives/construction
costs. The town has since applied for and received an
FmHA loan of $731,000 and a grant of $542,100 for the
design and construction of a sewer system to serve all
residences, businesses, and institutions within the exist-
ing town limits. The town recently passed an $800,000
bond referendum to secure the FmHA loan (and provide a
secured construction cushion).
The design of the sewer system is complete, agency review
is underway, and construction is expected to be underway
by March, 1990. The proposed design is an 8" gravity
line/force main system, with several pump stations located
in existing DOT or town rights -of -way. The treatment
plant will consist of an extended aeration facility which
will discharge to the Neuse River. The treatment plant
will be located on a 4-acre parcel abutting .the Evans
Trailer Park (Refer to Map 3). The size of the parcel
will allow for efficient expansion of treatment facilities
in the future. The schematic layout of the new sewer
system is depicted on Map 3.
3. Solid Waste
The Town of Bridgeton contracts with Waste Industries for
removal of solid waste generated by local residences,
institutions, and commercial establishments. The service
is provided twice weekly. There is no monthly charge to
local taxpayers for waste collection; local tax revenues
are currently sufficient to pay for the waste collection
service. There are no landfills or waste incinerators
located within the town limits. Georgia-Pacific does
incinerate waste in its boiler facility, but the plant is
not considered a point source of air pollution according
to air quality permit standards.
I
27

4.
5.
Schools
Children of school age in Bridgeton attend one of three
Craven County schools. Grades 6-8 attend West Craven
Middle School in the Sprinq Garden area; grades 9-12
attend West Craven High School near Vanceboro; and grades
K-5 attend Bridgeton Elementary School, located on the
river between Hickory and Academy Streets in Bridgeton.
The elementary school is of principal concern in this
study, since the marqinal annual growth of Bridqeton
school -age population is not expected to have a signifi-
cant impact on the West Craven middle or high schools
during the planning period.
The Bridgeton Elementary School was renovated in 1987, and
has a 1988-1989 enrollment of 415 students. Students
include all elementary school -age children in Bridgeton as
well as children from surrounding areas of Township 2 in
Craven County. Since 1980, the enrollment has fluctuated
from a high of 448 in 184-185 to the current low enroll-
ment of 415. The school building itself has operated at
capacity since 1980, and there have been as many as four
modular classroom units located on school property to
provide supplementary classroom space. Currently, the
school utilizes only one modular classroom, since total
enrollment has gradually decreased since the '84-'85
school year. According to the Craven County Superin-
tendent of School's office, there are 85 available modular
units in Craven County which can be shifted from school to
school as enrollment fluctuations dictate. The only other
alternative to dealing with increased enrollment at
Bridgeton Elementary School would be to increase the class
size from the current 26 to the State -allowed maximum of
29.
Transportation
The Town of Bridgeton has an excellent road system for an
eastern North Carolina community of its size. Convenient
arterial access to and from the town is provided by
U.S. 17 and N.C. 55, and there are numerous NCDOT and
town -maintained thoroughfares providing good access to and
from developed areas within the town limits. Only two
dwelling units are located on an unimproved road, which is
the only open, unimproved right-of-way in the town limits.
Additionally, the town owns several unopened, unimproved
rights -of -way adjacent to the largest remaining areas of
undeveloped property within the town limits. The existing
and available roadway and street right-of-way within
Bridgeton should be a positive factor, rather than an
adverse factor, influencing additional development in and
28

Coord i-
nate
2
3
t
1
4
5
r1
3
4
5
adjacent to the town. Existing rights -of -way will not
only provide convenient access to new development, but
will allow relatively easy expansion of municipal water
and sewer service.
However, a constraint to additional development, and the
overriding transportation problem in Bridgeton, is traffic
congestion associated with the town's location at the
eastern end of the Neuse River Bridge. The bridge carries
almost all traffic entering or leaving Pamlico County from
or to points south, and all traffic on U.S. 17, which is
the major north -south thoroughfare in coastal North
Carolina.
According to NCDOT programs and policies staff, the
NC 55-U.S. 17 intersection area did not have a rated ADT
(average daily traffic) design capacity when it was
constructed in 1956. Listed below are ADT counts for the
location at the east end of the Neuse River Bridge and for
four other locations in the Bridgeton town limits from
1981-1987. The coordinate points for each location are
depicted on Map 4, Average Daily Traffic Locations.
Table 11: Town of Bridgeton
Average Daily Traffic, 1981-1987
Location
181
182
183
184
East end of Neuse
17,800
16,500
17,200
-
River Bridge
Intersection of
800
-
800
-
Line/"B" Streets
Intersection of
9,100
8,600
9,300
9,400
New St./US 17
Intersection N&S
8,400
8,100
7,600
9,000
RR/LS 17
NC 55 at Eastern
7,300
7,900
8,000
9,000
Town Limit
% Change
185 186 187 281-187
19,000 19,100 19,000 + 6.7%
700 -12.5%
9,500 9,500 10,000 + 9.9%
9,000 9,800 9,500 +13.1%
8,000 9,000 9,600 +31.5%
Linear Progression Projections
Zhrough 2000
Continued
at Current Rate of
Increase
1990
1995
2000
East end of Neuse River Bridge
19,637
20,733
21,894
Intersection of New St./US 17
10,495
11,361
12,298
Intersection N&S RR/US 17
10,122
11,225
12,449
NC 55 at Eastern Town Limit
111,112
14,023
17,697
w

6.
As Table 11 indicates, there has been a very significant
increase in traffic flow in and out of the Town of
Bridgeton since 1981. The most significant percentage
increase was for traffic entering or leaving the town from
Pamlico County on NC 55.
The Neuse River Bridge is a two-lane bridge with a low (35
mph) speed limit. It is also a swing -span bridge which is
closed to traffic periodically, often during times of high
traffic flow. As a result, there has been a historic
traffic congestion problem at both ends of the bridge.
This problem is exacerbated in Bridgeton (as it is in New
Bern) by the existence of an outdated intersection design
which cannot handle increasing traffic demands even during
periods of peak normal traffic flow. At times when high
traffic flow combine with a bridge opening, the congestion
problem is very inconvenient, and often hazardous, to
residents of Bridgeton (and visitors) who must enter or
exit town streets from or to the traffic mainstream.
According to discussion with the NCDOT programs and poli-
cies staff, feasibility studies for a bridge replacement/
route relocation to solve the existing traffic congestion
problem at this location are underway. However, the con-
struction of an alternate or replacement bridge structure
has not yet been programmed in the 8-year Transportation
Improvement Plan (TIP).
Based on the detour problems associated with construction,
and the improbability of . alleviating the traffic problems
if the primary U.S. 17 route remains the same, it appears
unlikely that a replacement bridge will be constructed at
the existing site. However, while it would be to
Bridgeton's benefit if the primary U.S. 17 route was
relocated downriver, thus alleviating the traffic problem,
the demolition of the existing bridge would be a severe
blow for the town, as it would.dissolve a long-standing
direct link with New Bern, and have a very detrimental
effect on Bridgeton's commercial establishments.
Police, -Fire, Emergency Medical
a. Law Enforcement
The Town of Bridgeton maintained a local police force,
consisting of two officers, until 1986. The depart-
ment was eliminated at that time due to rising
expense. Presently, th Craven County Sheriff's
Department routinely patrols the Town of Bridgeton and
provides other law enforcement services when required.
The Town has discussed maintaining some sort of local
30

I
police protection, such as a security guard or
constable, but no firm decision has been made on the
issue.
b. Fire Protection
Fire protection is afforded the Town of Bridgeton by
the Bridgeton Volunteer Fire Department, which is
chartered and regulated by the original Town of
Bridgeton Code of Ordinances. The Bridgeton VFD has
21 active members and operates two pumper trucks,
owned by the town. Firefighting suppport can be
provided if needed by the nearby Tr i-Community VFD.
c. Emergency Medical Service
The closest doctor's offices and hospital facilities
are located in New Bern, which is convenient enough so
that lack of adequate health care facilities is not a
problem for town residents. Specialized medical
services are available in Wilmington and Greenville.
The Bridgeton Rescue Squad, located in Bridgeton next
to the elementary school, provides residents with
excellent emergency medical and accident response
services, including water rescue services. The squad
maintains two ambulances, one boat, and two crash
trucks. The Town of Bridgeton actively supports
rescue squad activities, and several members of the
Bridgeton Volunteer Fire Department also serve on the
rescue squad.
7. Community Facilities
The only existing town -maintained facilities are the Town
_
Hall/Fire Department building located on Bridge Street,
and the abandoned Bridgeton Police Department building on
"B" Street. The existing Town. Hall and Fire Department
facility is adequate for current and expected use through-
out the planning period. However, the town has an
immediate need for recreational facilities and public open
space. The old Police Department building might be a
potential home for a community -supported recreational
facility. Additionally, the Bridgeton Volunteer Fire
_
Department owns a parcel of property on the waterfront
north of the railroad tracks which would be an excellent
site for a park and public marina if the town could obtain
the property and finance improvements.
1 31

F. CURRENT PLANS, STUDIES AND REGULATIONS
2.
3.
Town Code of Ordinances
The original Bridgeton Town Code was adopted in 1963, and
addressed general government, fire protection, streets,
traffic, health, etc. There have been numerous amendments
to the original Town Code, as well as new ordinances
addressing issues not regulated by the original code,
adopted since 1963.
North Carolina State Building Code
The State Building, Plumbing and Electrical Codes were
adopted with the original Town Code in 1963. The town
also adopted some miscellaneous regulations concerning
construction within the town limits at that time, includ-
ing registration and bonding requirements for contractors.
Presently, building permits for new construction or
improvements must be obtained from the Craven County
Building Inspection Department, which also conducts build-
ing inspections and enforces the State Building Codes in
Bridgeton by verbal agreement with the town. However,
Craven County will not issue a building permit for any new
construction or alteration in Bridgeton unless the appli-
cant can present a zoning permit from the Bridgeton Zoning
Administrator approving the construction activity. This
procedure has been very successful in maintaining effec-
tive communication between town and county personnel
regarding development within the town.
Zoning Ordinance
The Town of Bridgeton adopted a Zoning Ordinance in 1980,
and it has been periodically amended since that time.
Enforcement of the ordinance is the responsibility of the
Town's Zoning Administrator. As discussed above, any new -
construction, alteration, or movement of an existing
structure requires a zoning permit issued by the Zoning
Administrator. The ordinance defines permitted and condi-
tional uses for rural residential, residential, waterfront
residential, general business, highway commercial, resi-
dential commercial, industrial, and marine highway commer-
cial districts within the town lmits. As a result of the
"residential commercial" designation, there are not many
nonconforming uses within the town, and the existing land
use within Bridgeton is generally consistent with current
zoning requirements, despite the existence of non-
conforming uses which existed before the ordinance was
adopted. The Bridgeton Board of Aldermen must approve
conditional uses within any designated zoning district.
32

4. Utilities Plans and Ordinances
The Town of Bridgeton does not have any current ordinances
concerning use of the public water system, which is
regulated by the First Craven Sanitary District.
A Preliminary Engineering Sewer Study outlining proposed
sewer system improvements tor Me town was prepared in
1986. It is expected that the town will adopt a sewer use
ordinance to regulate tie-ons and monthly fees once the
new sewer system is completed. Presently, the only
regulations affecting wastewater disposal within the town
are the Craven County wastewater disposal regulations,
enforced by the Craven County Health Department, and NPDES
discharge requirements (for effluent discharge) enforced
by the North Carolina Division of Environmental
Management.
The town does have a solid waste disposal ordinance which
requires all residential and commercial units to have cans
or receptacles for solid waste.
5. Land Use
The Town of Bridgeton does not have an existing land use
plan. A Town Planning Board was established in 1979 to
ensure "... the coordinated and harmonious development of
the area," and "... to prepare, amend, and revise a
comprehensive and coordinated plan for the physical devel-
opment of the area." In 1955, the town passed an ordi-
nance designating the entire town as a Bird Sanctuary.
Town officials remain committed to orderly growth and
resource protection and development in and adjacent to the
town.
6. Emergency Management
Concurrent with preparation of the town's Flood Insurance
Study in 1987, the town adopted a Flood Damage Prevention
Ordinance. At the same time, the town amended its zoning
ordinance to require all uses located in a special flood
hazard area to comply with provision of the Flood Damage
Prevention Ordinance.
In general, the flood ordinance requires the owner of
property located in the special flood hazard area to
obtain a development permit ( in conjunction with a zoning
permit) from the Zoning Administrator prior to undertaking
any substantial alteration or improvement to the property.
Finish floor elevations, floodproofing information, lot
area and general construction plans, and watercourse
33

alteration information are required submittals for obtain-
ing a development permit. The Zoning Administrator is
also responsible for inspecting work in progress (in
conjunction with the Craven County Building Department),
with correcting violations, and with carrying out adminis-
trative procedures in general. Implementation of the plan
has served to prevent the possibility of substandard
construction and flood -prone construction within the town,
and to assure good communication with Craven County
Building Inspection personnel.
In 1982, Craven County adopted a Hurricane Disaster Miti-
gation Plan. Bridgeton chose not to participate in the
county plan, and is currently discussing the possibility
of preparing a hurricane plan for the town. Preparation
of this land use plan is an integral part of planning
procedures associated with preparation of a hurricane
planning document for the town.
7. Extraterritorial Jurisdiction
Bridgeton currently has no extraterritorial jurisdiction,
and thus has no ability to regulate development in areas
immediately outside the existing town limits. Based on
expanding development adjacent to the town, and construc-
tion of a public sewer system, which will undoubtedly
attract more development to the areas adjacent to the
town, extraterritorial jurisdiction is an option that the
town will have to consider seriously if it wishes to
control and plan adjacent development in a manner consis-
tent with its current zoning ordinance and general poli-
cies outlined in this land use plan. However, an evalu-
ation of the town's administrative/financial capability to
regulate development within extraterritorial jurisdiction
should be an important element of any examination of
expanding the town's planning jurisdiction. Possibilities
for planning assistance include volunteer help from
citizens or planning board members, or additional town
staffing financed with permit or utility fees.
34

tG. PROJECTED DEKAND
1. Socioeconomic Projections
Population
a.
Table 12, below, shows the estimated population of the
Town of Bridgeton in 1987, with projections to 1990
and 1995 (end of the planning period) .
TABLE 12
Town of Bridgeton Population
1987, with Projections to 1995
Year Population Number Change % Change
*1987 503 -
**1990 523 +20 +4.0%
**1995 555 +32 +6.1%
Source: N.C. State Data enter; Office ot State
Budget and Management
*As of July 1, 1987.
**Assumes constant annual growth rate of 1.3%, based
on 1980-1987 Bridgeton population growth.
The estimated total population increase of 52 individ-
uals from 1987-1995 may be conservative. First, the
completion of a 42-unit townhouse development may
accelerate the recent pattern of population growth.
Second, it is anticipated that the availability of
municipal sewer service, waterfront resources, and
availability of vacant land suitable for residential
development, will all serve as factors increasing pop-
ulation growth in and around Bridgeton through 1995.
Thus, Bridgeton may begin to exhibit the higher growth
rate characteristic of surrounding areas in Township
2, which have grown much faster than Bridgeton from
1980-1989.
Although Bridgeton will probably not experience sig-
nificant increases in seasonal population throughout
the planning period, seasonal population increases in
resort areas to the north, south and east during the
planning period will have a direct impact on traffic
congestion, retail sales, litter and parking in
Bridgeton, due to the town's strategic location on U.S
17 at the northeastern end of the Neuse River Bridge.
b. Local Economy
Based on recent growth trends noted in most cases for
local industry, the proliferation of commercial estab-
lishments along U.S. 17 and N.C. 55 in and immediately
outside the town limits, recent interest by commercial
35

developers in Bridgeton property, and the proposed
construction of a municipal sewer system, it is likely
that Bridgeton and surrounding areas will experience
significant economic growth during the planning
period.
According to Tom Thompson, the Executive Director of
the Craven County Economic Development Commission, one
of the major restrictions on industrial/commercial
development in Bridgeton has been the lack of a
municipal sewer system. Mr. Thompson stated that the
EDC had no plans to pursue industrial park development
in the Bridgeton vicinity, and pointed out that the
riverfront AECs would impose severe restriction on
certain types of industrial development in existing
industrially -zoned areas of Bridgeton, regardless of
the existence of a municipal sewer system. Storm -
water runoff and land -disturbing activities associated
with industrial developments could conflict with
existing state and federal regulations enforced by the
Division of Environmental Management, Division of
Coastal Management, and U.S. Corps of Engineers.
However, he stated that many commercial businesses,
and smaller industries without waste management or
large storm water management problems, would find
Bridgeton a very attractive location with the avail-
ability of municipal sewer service.
Specific recent interest in local commercial property
includes a proposal for a new marina in an area on the
river north of Georgia-Pacific, which is zoned indus-
trial. However, the Town of Bridgeton revised the
zoning ordinance in FY1988-1989 to allow highway
commercial uses and marina development within the
industrial zone. Additionally, Hardee's, Inc., and
Miller Foods (owners of Piggly Wiggly) have options
on, or own, property inside the town limits.
It is expected that Bridgeton's waterfront resources
will also be attractive to commercial developers, and
since residential growth is projected for the area,
service -type commercial activity should naturally
display parallel growth during the planning period.
Hopefully, economic growth will have a direct positive
effect on local income and employment, which have
historically not been significantly affected by local
industry and commerce.
c) Housing Trends
As a result of the progressive deterioration of older
dwellings, the relatively hiqh percentage of house-
holds living on fixed incomes, and the immediate lack
36

of local manufacturing, construction and higher -paying
service industry employment opportunities, it is
expected that substandard housing, noted under Section
I.B.3., will continue to be a major concern for the
Town of Bridgeton.
The town has considered applying for Community
Revitalization funds to address some of its worst
housing needs, and this land use study has served to
identify areas of concentrated need, an important step
in seeking funding for housing rehabilitation.
The availability of land for new housing development
in Bridgeton, coupled with the projected economic
growth in Bridgeton and adjacent areas discussed pre-
viously, are positive indicators for the improvement
of the town's existing housing stock and availability
of newer, standard housing for incoming residents. In
addition to the developer who recently put up the
42-unit Eastern Shores townhouse project, the town has
also had several inquiries from other developers con-
cerning property values or ownership of parcels on the
river and in other areas inside the town limits.
2.. Land Demand/Availability Analysis
a. Residential Land Use
Based on the community facilities and economic factors
cited above, it is expected that the moderate popula-
tion growth experienced by Bridgeton since 1980 will
continue, and may accelerate, thus leading to a sig-
nificant demand for residential development in and
adjacent to the Bridgeton area. There are very few
standard vacant housing units available in Bridgeton;
however, there is ample vacant land suitable for resi-
dential development in residentially -zoned areas in
the southeast quadrant of town. There are also iso-
lated areas of vacant land on the riverfront and in
the older residential areas west of U.S. 17. However,
the small lot sizes in the center of town will prob-
ably hinder future residential development in that
area, despite the availability of the public sewer
system.
There is an abundance of rural vacant land to the east
of Bridgeton which may be suitable for future residen-
tial development. However, the availability of a pub-
lic sewer system in Bridgeton, coupled with the diffi-
culties of obtaining wastewater disposal permits in
previously undeveloped areas, is expected to attract
more single-family residential development, including
mobile home development, to areas within the town
limits rather than immediately adjacent to the town
37

throughout the planning period. However, townhouse or
subdivision -type, single-family developers could be
attracted to vacant areas adjacent to Bridgeton
because of lower land costs and the possibility of
future annexation by the town.
In summary, the availability of land suitable for
residential development in and adjacent to Bridgeton
should exceed the development demand throughout the
planning period. Moreover, the availability of vacant
land should allow the town to carefully plan the type
and location of future residential development within
the existing town limits (with particular attention to
mobile home and multi -family development) while not
restricting residential development associated with
the Bridgeton area's economic/population growth in
general. However, the town will have to seriously
consider establishing extraterritorial jurisdiction to
alleviate unplanned development in adjacent areas, and
to allow planning flexibility for adjacent areas in
the future. The town should begin financial and
administrative planning for the day-to-day changes in
town administration that would result if it expands
its planning jurisdiction.
b. Commercial and Industrial Land -Use
Economic trends previously cited indicate that commer-
cial development associated with the U.S. 17 corridor
should continue, particularly with the availability of
a public sewer system. There is an abundance of
vacant land zoned for commercial use along both sides
of U.S. 17, which will be another positive factor in-
fluencing commercial development throughout the plan-
ning period. The major planning issues/land use prob-
lems regarding future commercial development facing
Bridgeton are (1) avoiding a "strip" commercialization
along U.S. 17, including a proliferation of signs and
billboards, which detracts from aesthetic appeal,
exacerbates traffic congestion, etc., and (2) provid-
ing a policy which allows a harmonious coexistence of
commercial and residential uses in areas where both
uses are currently permitted, and which minimizes the
coexistence of those uses in the future.
Existing zoning laws will require that any new heavy
industrial development be confined to existing indus-
trial areas to the north of town throughout the plan-
ning period. The existence of nearby AECs will
severely restrict the development of any new heavy in-
dustry to this area, and the town has already rezoned
one waterfront industrial tract to marine highway com-
mercial. It is expected that small manufacturers/
distributor -type industries will be attracted to
rM

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1
Bridgeton because of the availability of adequate
sewage disposal. Since existing non -waterfront indus-
trial parcels are occupied, these industries would
have to locate outside the town limits, or petition
the town to change an existing highway commercial area
to industrial. Since there is an abundance of vacant
land available for either option, excess demand for
industrial land use in and near the Bridgeton town
limits is not expected to be a problem during the
planning period, i.e., through 1995.
As is the case with planning for increased residential
demand, the town will have to consider extraterritori-
ality as a tool to alleviate unplanned commercial and
industrial development adjacent to the town. In light
of natural resource concerns and the desire to avoid a
congested, commercial appearance, unbridled adjacent
commercial/industrial development is an even more se-
rious concern than unplanned residential development.
c. Public Land Use
One of the most important concerns for the Town of
Bridgeton is the lack of public open space, riverfront
access, and community facilities available for members
of the community. Fortunately, there is available
land for those types of public use within the existing
town limits. Throughout the planning period, the town
must first define some specific land acquisition
goals, then budget the acquisition cost for these
facilities. The public ownership of property for com-
munity facilities is the major hurdle to be crossed in
providing the facilities. Once the property is pur-
chased, volunteers, civic organizations, and grant
monies can be utilized with a minimum of town general
funds to develop the physical improvements required.
d. Areas Likely to Experience Major Land Use Changes
Since the town has an established zoning ordinance
prohibiting basic types of incompatible land use, and
some types of mixed use are allowed and currently
exist, no major changes in existing patterns of land
use within the town limits are foreseen throughout the
planning period. One change that is expected to
develop gradually is the change in character of the
northern riverfront from strictly industrial to a
marine commercial/industrial use.
Of course, existing vacant land will be developed
throughout the planning period, but land use in unde-
veloped areas should conform with existing general
patterns of development. Of major concern in future
development will be the need to integrate residential/
1
39

L11
3.
commercial uses in mixed -use areas in a way that miti-
gates their basic incompatibility, and to plan for the
coexistence of multi -family, conventional single-
family, and mobile home residential use.
e. Summary
As a result of effectively removing the most important
obstacle to continued residential and commercial
development - adequate wastewater disposal - the Town
of Bridqeton is on the threshold of a period of devel-
opment that will influence land use planning discus-
sion and policy for years to come. The town is in the
fortunate position of having adopted some rational
planning guidelines in the past, and of beinq able to
recognize and attempt to solve existing and potential
land use problems.
Additionally, there is an abundance of vacant land for
all types of use within the town limits, which allows
continued enforcement and rational modification of
existing zoning policies and land use regulations
without restricting development associated with
healthy municipal growth. Also, there is an abundance
of vacant land adjacent to the town limits which can
hopefully accommodate the expected parallel growth of
the surrounding area during the planning period. How-
ever, unless the town has an effective means of regu-
lating development in these adjacent areas, problems
which have been noted in this study of existing condi-
tions inside the town limits could also develop in
adjacent areas, and thus diminish the town's ongoing
planning effort.
Community Facility Demand/Availability Analysis It
Projected population growth, whether it continues at the
recent rate or accelerates due to economic factors, will
obviously place an increased burden on community facil-
ities during the planning period. Existing and proposed
public facilities such as water, sewer, police/fire/
medical, and solid waste disposal should be adequate to
serve the population within the existing town limits
throughout the planning period, even if population projec-
tions increased significantly. User fees and tie -on fees
for sewer use should also be adequate to cover the cost of
serving additional sewer customers within the existing
town limits.
Although the elementary school is currently overcrowded,
its population is at a nine-year low. It is not projected
that growth within Bridgeton will result in movement of
children to other schools during the planning period, even
though the elementary school enrollment should increase.
40

A significant community facilities problem brought about
by development within the town limits during the planning
period will be increasing traffic congestion. This will
be a primary concern in the regulation of commercial
development, which will affect parking requirements, lot
size, setback requirements, driveway access, speed limits,
and sign ordinances.
Another problem brought about by internal development will
be the ability of the Town Clerk and Zoning Administrator
to handle the increased administrative burden associated
with permits, tax collection, utility billings and tie-
ins, etc. The town will also have to hire individual (s)
to maintain its sewer system and treatment plant. Thus,
while the level of demand for town -supplied utilities and
services within the existing town limits is not expected
to exceed the availability of those utilities and servi-
ces, the impact of the sewer improvement project and
development in general on town management services/payroll
will be significant. Increased management costs will have
to be considered in formulating annual budgets.
Internal development will also cause additional demand for
community recreational facilities, the lack of which is
already a serious concern. Policies addressing the pur-
chase and improvement of property for such facilities will
have to consider increasing demand for those facilities.
During the planning period, there is a strong possibility
that the town will have requests to extend municipal ser-
vices to areas outside the existing town limits, which are
also expected to develop during the planning period.
Adjacent development, while not a problem for the town
with regard to water service, will undoubtedly cause a
demand for municipally -supplied sewer service, particular-
ly in light of restrictions on septic tanks. Also, if the
town establishes extraterritorial jurisdiction, it will
place an additional burden on the town's administrative
staff. The expansion of adjacent areas will also increase
`
the demand on community facilities and recreational space,
which leads to the user/taxpayer conflict, and ultimately,
to questions of annexation. Important issues facing the
town are examining the cost/benefit of expanding municipal
services, and developing rational, objective policies to
respond to adjacent demand for services.
Adjacent development throuqhout the planning period will
obviously increase overcrowding of the elementary school.
This is a problem which, like police protecton, needs to
be coordinated with Craven County throughout the planning
period. Existing fire and rescue services provided by the
town's volunteer fire department and rescue squad already
extend to the potential extraterritorial area, and are
expected to be adequate to meet increased demand in that
area through 1995.
41

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SECTION II :
Policy Statements

SECTION II: INTRODUCTION TO POLICY STATEMENTS
During the discussion of existing conditions in Part I of this
plan, a number of land use problems and areas of concern associ-
ated with ongoing development were discussed. In this section,
specific policies to address growth management and problems will
be presented. These policies must be contingent upon development
needs and objectives as stated by two parties: First, the desires
and objectives of the citizens of Bridgeton, as expressed through
the local governing and planning boards, have to be considered.
Second, there are stated objectives of the Coastal Resources
Commission which must be addressed in this plan. Finally, the
objective realities of future demand for land development and
community services and facilities must enter into the equation.
In other words, policies contingent on local government/CAMA
objectives must not pose too great an administrative and enforce-
ment burden on town government, nor should stated policies
restrict healthy, environmentally -compatible residential and
commercial growth needed for Bridgeton to achieve its community
and economic development goals.
The Coastal Resources Commission is requiring all qovernments
including the Town of Bridgeton to specify stated development
policies under each one of five broad topics in this land use
plan. These topics include:
° Resource Protection
Resource Production and Management
° Economic and Community Development
° Continuing Public Participation
° Storm Hazard Mitigation, Post -Disaster Recovery, and
Evacuation Plans
Based on the analysis of existing conditions and trends, sugges-
tions from the town's citizens, and discussion with the Town
Planning Board, the policies outlined in the following sections
II. A. through II. E. have been formulated to provide a guide for
advising and regulating development of available land resources in
Bridgeton throughout the current planning period, or through
1995.
11
�
42

A. Resource Protection Policies
Resource -Protection -Land Use Issues/Constraints Identified
Physical Limitations
Topic Issue/Constraint Identified
1. Soils Moderate to severe limita-
tions for septic tanks,
building construction
2. Flood Hazard Entire Town of Bridgeton
Areas is located in 100-year
flood plain
3. Groundwater/ Desire to minimize
Protection of adverse effects on
Potable Water surficial aquifer
supply
4. Man-made Hazards No significant issues
identified
5. Stormwater Possibility of adverse
Runoff effects on AECs and
surface water quality due
to contaminated runoff
Fragile Areas
6. Natural Fragile
Areas
7. Cultural/
Historic
Resources
8. Industrial
Impacts on
Fragile Areas
Pol icy
Statement #
(outlined
below)
A. 1 ( a )
through (f)
A. 2 ( a )
through (c)
A. 3
A. 4
A. 5
Conservation of coastal A.6 (a)
wetlands, estuarine shore- through (d)
lines, estuarine waters
AECs, possible 404 wetlands
areas identified in study
area
Preservation of underwater A.7 a, b, c
archaeological sites near
waterfront; possible
historical buildings/sites
in Bridgeton
Existing industries located A.8
adjacent to identified
fragile areas
43

IMiscellaneous Resource Protection
Policy
Topic
Issue/Constraint
Identified
Statement #
out ine
below)
9. Hurricane and
Mitigation plan
required
A.9
Flood Evacuation
Needs
10. Package Treat-
Possible adverse
impact
A.10
ment Plant Use
on surface water
quality
and AECs
1 1 . Local Resource
Development
Desire to develop river- A.11
front resources, yet
Issues
preserve environmental
quality
12. Marina and
Desire to develop river- A.12
Floating Home
front resources, yet
Development
preserve environmental
quality
Resource -Protection -Policy Statements
Physical Limitations
A.1. Soils: To mitigate existing septic tank problems and the
m—iocerate to severe restrictions on residential and commer-
cial development
posed by soil limitations, the Town of
Bridgeton will
(a) Enforce, through the development and zoning permit
process, all current regulations of the N.C. State
Building Code and Craven County Health Department
relating to building construction and septic tank
installation/replacement in areas with soils
restrictions;
(b) coordinate all development activity in general with
appropriate county and state regulatory personnel, and
in particular, with the Craven County Building
Inspector and Sanitarian;
(c) complete its currently -proposed town -wide public sewer
system as expediently as possible;
(d) adopt a local ordinance requiring system tie-in within
90 days following completion of system;
1 44

(e) require by local ordinance all new raw sewage
generators within the town limits to tie-in to the
municipal sewer system;
(f) within treatment plant and financial restrictions,
provide sewer service to any new sewage generator
within an area that has petitioned for annexation and
subsequently been incorporated within the Bridgeton
town limits.
A.2. Flood Hazard Areas:
(a) The Town of Bridgeton will continue to coordinate all
development within the Special Flood Hazard Area with
the Craven County Inspections Department, North
Carolina Division of Coastal Management, FEMA, and the
U.S. Corps of Engineers.
(b) The town will continue to enforce its existing zoning
and flood damage prevention ordinances and follow the
storm hazard mitigation plan included herein.
(c) During the planning period, the town will refine
zoning restrictions pertaining to waterfront develop-
ment, to provide greater consistency with county,
state, and federal regulations concerning floodplain
management.
A.3. Groundwater/Protection of Potable Water Supplies: It
shall e the policy of the Town of Bridgeton to conserve
its surficial groundwater resources by enforcing CAMA and
N.C. Division of Environmental Management stormwater run-
off regulations, and by coordinating local development
activities involving chemical storage or underground
storage tank installation/abandonment with Craven County
Emergency Management personnel and the Groundwater Section
of the North Carolina Division of Environmental Manage-
ment. During the planning period, the town shall review
and amend the local zoning ordinance with regard to under-
ground chemical and gasoline storage regulations to ensure
a minimum of risk to local groundwater resources.
A.4. Manmade Hazards: No policy statements required. For a
discussion of UST/chemical storage management policies,
see A.3., above.
A.5. Stormwater Runoff: The Town of Bridgeton shares the
concern ot the State Division of Environmental Management
that stormwater runoff from urbanized areas may be
contributing to declining surface water quality in some
areas. Maintenance of water quality is of utmost concern
to Bridgeton. The town recognizes the value of water
45

quality maintenance both in terms of protecting natural
fragile areas and providing clean water for recreational
purposes. The town will continue to enforce state and
CAMA regulations relating to stormwater runoff resulting
from development. Additionally, during the planning
period, the town will consider adoption of local storm -
water management regulations to minimize contamination of
its waterfront resources from stormwater runoff. Public
drainage system improvements, which would also mitigate
environmental problems associated with stormwater runoff,
are discussed under Section II.C., "Economic and Community
Development."
Fragile Areas
A. 6. Natural Fragile Areas: Protection of environmentally -
sensitive as well as vitally important public resources is
a strong ongoing concern of the Town of Bridgeton. The
overall policies of the town in relation to AEC protection
and protection of other fragile areas such as 404 wetland
areas shall be as follows:
1. Bridgeton shall continue to give priority to those
uses which are supportive of the protection and
coordinated management of the estuarine system and
wetlands. It is the intent of the town to safeguard
and perpetuate the biological, economic, and aesthetic
values of these areas and to insure that any develop-
ment occurring within these areas is compatible with
natural characteristics so as to minimize the likeli-
hood of significant loss of private property and
public resources.
2. Bridgeton will continue to support the existing devel-
opment permit system enforced by North Carolina
Division of Coastal Management, the U.S. Army Corps of
Engineers, combined with enforcement of the town's
zoning ordinance, which already restricts land use in
defined fragile areas.
3. The town believes that existing zoning for defined
fragile areas is generally compatible with their
"conservation" designation. During the planning
period, the Town of Bridgeton will encourage a
harmonious combination of single-family residential,
marine -related commercial, and public recreational or
institutional use along the riverfront. The zoning
ordinance will also be generally refined to make
permitted and conditional land uses in or near natural
fragile areas to be more compatible with existing
state and federal permitting regulations regarding
development in these areas.
1
46

A.7. Cultural/Historic Resources:
(a) In order to protect identified and unidentified
cultural/historic resources associated with its water-
front, the Town of Bridgeton shall amend its zoning
ordinance during the planning period to require that
zoning/development permits obtained for development on
riverfront property include a section that verifies
that the development has been coordinated directly
with the N.C. Division of Archives and History.
(b) The Town of Bridgeton shall coordinate all housing
code enforcement/redevelopment projects with the
N.C. Division of Archives and History, to ensure that
any significant architectural details or buildings are
identified and preserved.
(c) The town will also coordinate all public works proj-
ects with the N.C. Division of Archives and History,
to ensure the identification and preservation of
waterfront or terrestrial archaeological sites within
the town's jurisdiction.
A.8. Industrial Impacts on Fragile Areas:
As outlined under A.6, above, the potential for damage to
natural and cultural fragile areas from unrestrained
waterfront development has been greatly alleviated by
existing zoning regulations adopted by the town. Georgia-
Pacific is the only "industrial" property remaining on the
Neuse River within the town limits. Georgia-Pacific is a
stable, carefully -regulated operation which will be served
by the new municipal sewer system, and which does not pro-
pose any major land -disturbing activities in the future.
It will be the policy of the Town of Bridgeton during the
planning period to prohibit further industrial development
in defined "conservation" areas within its planning juris-
diction, except in the one industrial -zoned area on the
waterfront. Additional development in this area must con-
form with current state and federal regulations concerning
stormwater runoff, land -disturbing activities, sewage
disposal, etc. During the review of its zoning ordinance,
the town will revise the industrial classification to
better define the types`of uses permitted in the indus-
trial zone located on the waterfront. No parcels in
conservation use areas shall be rezoned for industrial use
during the planning period.
Miscellaneous Resource Protection
A.9. Hurricane and Flood Evacuation Needs: Policies concerning
storm hazara mitigation and post -recovery are outlined in
Section II.E. of this land use plan.
47

1
1
I
1
A.10. Package Treatment Plant Use: As a result of possible
adverse impact on groundwater or surface water quality and
estuarine areas clue to periodic non-compliance with
non -discharge or discharge permits, the town wishes to
minimize treatment plant effluent discharge points and
centralize treatment plant operation within its juris-
diction. Therefore, during the planning period, the town
will enforce the following policy:
No additional package treatment plants will be con-
structed within the Bridgeton town limits. This pol-
icy will be incorporated into the sewer use ordinance.
Within its potential planning jurisdiction, the Town
of Bridgeton will discourage new package plant con-
struction, especially on parcels containing waterfront
conservation areas. Subject to physical and financial
constraints, it will extend sewer service to any area
that has petitioned for annexation and subsequently
been incorporated within the town limits.
A.11. Local Resource Development Issues: Local policies
concerning these issues are discussed in Section II.B.
A.12. Marina and Floating Home Development: The development of
bulkheads, marinas, and private oat slips in Bridgeton
has generally been allowed and is regulated by the town's
zoning ordinance, the Division of Coastal Management, and
the U.S. Army Corps of Engineers. Private boat slip and
bulkhead construction in waterfront residential districts
will continue to be allowed as long as they do not result
in any adverse impacts on identified environmentally -
sensitive areas, in compliance with state, federal and
local regulations.
Marinas may include as allowed uses boat slips, boat
storage, boat sales and service, fuel sales and boating
supply. Drystack storage facilities will be allowed as a
part of marina development. Currently, there are two
areas along the riverfront where marina development is
allowed. One area is zoned highway commercial and the
other, industrial.
Based on a desire to encourage residential development
along the riverfront, and its pressing need for public
recreation space, the town will prohibit rezoning of
existing "waterfront residential" districts to "marine
highway commercial" or "industrial" districts, which allow
marina construction, within the existing town limits
during the planning period. However, it reserves the
option of allowing any institutional use, including public
boat access areas, in areas along the waterfront when
suitable property for public use can be located. Such
institutional development, if it occurs, shall be per-
formed in a manner consistent with resource protection
goals outlined herein.
48

The town' s zoning ord inace does not address floating home '
development. However, the town does not support the
location of floating homes in marina or open water areas.
In waterfront conservation areas outside the town limits
but within the town's planning jurisdiction, the town will
encourage a mix of waterfront commercial, institutional,
and waterfront residential uses during the planning
period.
B. Resource Production and Management Policies
Resource Production
and Management-Issues/Constraints
1
Topic
Issue/Constraint Identified
Policy
Statement #
(outlined
below)
1. Recreational
Importance of Neuse River
B.1 (a)
Resources
as a recreational/economic
through (d)
resource to the community
2. Residential Desire to encourage river- B.2
and Commercial front development and
Development tourism while maintaining
environmental quality
3. Other Resources No significant resources/ B.3
(Agricultural, issues identified
Forest Lands,
Mineral Resources,
Impact by Off -Road
Vehicles)
Resource Production and Management Policies
B.1. Recreational Resources: Recognizing the importance of the
Neuse River as a recreational, economic, cultural, and
aesthetic resource to its citizens, Bridgeton has identi-
fied the following general waterfront resource production
goals, to be hopefully achieved through a continuing
commitment to specific resource protection and community
development goals outlined elsewhere herein:
(a) Encourage a compatible waterfront mix of single-
family residential, commercial marine, and public
recreational uses which allows recreational and
visual enjoyment of the Neuse River as a whole by all
of Bridgeton' s citizens.
49

1
(b) Refine existinq zoning and related ordinances to
provide a more unified waterfront development
character, preserve and make maximum use of existing
natural areas and green spaces, minimize impacts of
natural hazards, and preserve public access to the
river.
(c) Define the need for, finance, and construct
publicly -owned waterfront recreational facilities.
B.2. Residential and Commercial Development: It is the policy
of the Town of Bridgeton to encourage regional tourism and
economic development associated with the Neuse River
through active support of Craven County and New Bern plans
relating to riverfront development and tourism in general.
However, Bridgeton believes that the best way to encourage
tourist -related economic development is by following
specific riverfront conservation and development policies
outlined herein, rather than by extending services or
allowing conditional land uses solely as an incentive for
attracting water -related commercial development.
B.3. Other Resources: No other resource production management
issues, such as commercial forestry, mineral resources,
fisheries, etc., were defined during the discussion of
existing conditions.
1
1
50
1

C. Economic and Community Development Policies
Economic -and -Community Development Issues/Constraints
Pol icy
Topic Issue/Constraint Identified Statement #
out TIMe
below)
1. Water Supply No issues identified. C.1
2. Sewer System a) Need to complete sewer C.2 (a)
system/eliminate septic
tanks
b) Package plant C.2 (b)
construction
3. Schools No significant issues C.3
identified
4. Stormwater Need to provide policies CA
and public works improve-
ments minimizing adverse
effects of stormwater
runoff on fragile areas
5. Transportation Traffic congestion problem; C.5 (a)
desire to maintain direct through (d)
surface link with New Bern
6. Community Lack of existing recre- C.6
Facilities ational facilities/open
space; possibility of too
much demand for fire
protection service
7. Redevelopment Substandard housing; C.7 a, b, c
of Developed dilapidated structures
Areas
8. Urban Growth
a)
Commercial/residential
C.8
(a)
Patterns
land use/incompatibility
Desired;
b)
"Strip" commercialization
C.8
(b)
Location of
and billboards
Industry
c)
Conventional dwelling
C.8
(c)
unit/mobile home
incompatibility
d)
Multi -unit housing
C.8
(d)
e)
Riverfront development
C.8
(e)
f)
Types/locations of
C.8
(f)
industries
g)
Unplanned adjacent
C.8
(g)
development
51

Pol icy
Topic
Issue/Constraint Identified
Statement #
(outlined -
'
below)
9. Local Commit-
Defining extent of commit-
C.9
ment to Pro-
ment offered during
viding Services
planning period
'
to Development
10. Commitment to
Identification of available
C.10
'
State/Federal
resources, issues, local
Programs
programs affecting Bridgeton
development
'
11. Tourism
Desire to increase tourist- C.11
related economic growth
'
12. Estuarine
Access
Desire to improve public C.12
riverfront access; maintain
fragile area quality
13. Density of
Potential septic tank C.13
'
Residential
problems in adjacent areas;
Development
small lot sizes in residen-
tial areas
'
Economic and Community Development Policy Statements
C.1. Water Supply: There were no significant constraints to
development or land development issues relating to potable
water supply during the discussion of water supply in
Section I. The First Craven Sanitary District has an
'
adequate water supply and treatment facility to serve
anticipated development in the Bridgeton area during the
planning period. The town's policies concerning water
supply during the planning period shall be to: 1 ) require
'
as part of its sewer use ordinance that all existing and
new residential and commercial development to be connected
'
to the municipal sewer system also tie on to the First
Craven Sanitary District water system; 2) allow installa-
tion of private wells for irrigation only through the
NCDEM permit process; 3) ensure that the preceeding two
t
policies are carried out through the local zoning permit
process.
C.2. Sewer System: Subject to physical and financial
'
constraints, it will be the general policy of the Town of
Bridgeton to provide sewer service to newly -developed
areas within the town' s planning jurisdiction, when such
areas have petitioned for annexation and subsequently been
incorporated within the town limits. However, the town
will not expand sewer service to undeveloped areas solely
as an incentive to attract residential and commercial
'
development. This policy will hopefully provide sewer
service in planned growth areas where needed to protect
'
conservation areas, yet restrict unplanned development in
areas adjacent to the existing town limits.
52

Specific policies concerning use of the proposed sewer
system and permitting of package treatment plants are
covered under Sections II.A.1 and 10.
C.3. Schools: No significant issues concerning schools requir-
in�' g statement of policy for the planning period were
identified.
C.4. Stormwater: During the planning period, the town will
review and revise its existing zoning ordinance as it
relates to the town's conservation areas, as stated in
Section II.B., above. During this review, the incorpora-
tion of regulations affecting stormwater management in
developed areas into a single ordinance will be consid-
ered. In particular, a stormwater ordinace would focus on
preventing the adverse impact of stormwater on the Neuse
River and associated AEC's.
It is the policy of the Town of Bridgeton to cooperate
with the NCDO T, the North Carolina Division of Environ-
mental Management, and other state agencies in mitigating
the impact of stormwater runoff on its fragile resource
areas. The town will actively support the Division of
Environmental Management stormwater runoff retention
permitting process through its zoning permit system. The
town will attempt to apply for grant funds, and utilize
Powell Bill funds, to improve stormwater drainage systems
associated with existing rights -of -way.
C.5. Transportation: The Town of Bridgeton recognizes that
existing traffic congestion within and near the town
limits is a serious constraint to development, and a
nuisance and a hazard to citizens. However, the town
wishes to maintain a convenient transportation link with
nearby communities. Therefore, during the planning period
the town will:
( a) revise and amend its zoning ordinance during the
planning period to provide commercial access, parking,
and lot size regulations consistent with the goal of
alleviating traffic congestion;
(b) periodically review local ordinances relating to speed
limits and traffic flow with the goal of reducing
congestion and risk in severely -congested or unsafe
areas;
(c) support all county, regional or state transportation
plans which include improvement of the N.C. 55-U.S. 17
intersection and request that improvements to the
intersection be included in the.State Transportation
Improvement Plan;
53

L7�
1
I
I
1
L
1
(d) support any Neuse River Bridge/U.S. 17 route replace-
ment alternative which would result in both the
construction of a U.S. 17 Bypass crossin�e Neuse
River downstream of Bridgeton, and the continued
operation of the existing swing -span bridge and
maintenance of a U.S. 17 business link to New Bern.
The town objects to a U.S. 17 realignment which would
result in abandonment of the existing swing bridge.
C.6. Community Facilities: During the planning period,
Bridgeton will eve op a community services/facilities
plan (as a stand-alone document, not as an expansion of
this plan), which will define existing deficiencies in
police protection, fire protection, local administrative
buildings, public recreational facilities, public parks
and open space, and public access to the Neuse River. The
plan will prioritize needs and make specific recommenda-
tions concerning financing and budgeting the worst needs.
Additionally, the town will remain actively committed to
obtaining, by any financially feasible means, waterfront
property for development as a public waterfront access/
recreation area.
C.7. Redevelopment of Developed Areas: The most significant
redevelopment issues facing Bridgeton through 1995 are
substandard housing and dilapidated commercial or acces-
sory buildings detracting from visual quality and posing
vector control and safety hazards. There are not any non-
conforming waterfront developments. During the planning
period, the town will attempt to correct the worst
housing/substandard structural conditions within its
developed areas by:
(a) adopting a Minimum Housing Code;
(b) applying for Community Development Block Grant
Community Revitalization funds;
(c) coordinating redevelopment efforts with the Craven
County Building Inspection Department.
C.8. Urban Growth Patterns Desired; Location of Industry:
During the discussion of existing conditions in Section I,
several existing land use incompatibility and potential
problems from unplanned development were discussed. As a
general policy, Bridgeton wishes to encourage healthy
residential and economic growth in Bridgeton by permitting
development in vacant areas within the town limits, and
adjacent to the town limits, according to recent patterns
of land use established by the 1980 zoning ordinances.
That is, confine heavy industry to currently industrial
zoned areas, gradually draw commercial development to the
U.S. 17 corridor and residential development away from
U.S. 17, and provide for restricted waterfront residential
54

and commercial uses in defined conservation areas.
However, the town realizes that there are existing and
projected land use problems which will require the imple-
mentation of more specific policies than provided by the
existing zoning ordinance. Additionally, and perhaps most
importantly with regard to future development patterns,
the town has no extraterritorial planning jurisdiction.
This places a severe restriction on the town' s ability to
implement the policies stated herein as they relate to
resource protection and development compatibility in areas
adjacent to the town limits.
Realizing the imperfections in its existing zoning/plan-
ning, capabilities, the Town of Bridqeton will committ to
a qeneral policy of revising its entire zoning ordinance
during the planning period, and will support the following
zoning and planning policies relating to urban growth:
(a) Commercial/Residential Mixed Land Use: The town will
support zoning ordinance revisions that will provide
for gradual elimination of new non -marine commercial
development in areas not adjacent to U.S. 17 and
N.C. 55. Conversely, the town will support zoning
revisions which gradually eliminate new residential
development in areas adjacent to U.S. 17 and N.C. 55.
(b) "Strip" Commercialization: As a result of the lack of
a "grid" -type major thoroughfare system, the town
realizes that commercial developers will be attracted
to the U.S. 17 corridor, and that a "strip" type of
commercial development along U.S. 17 is inevitable if
the town is to sustain a strong local economy.
However, the town is committed to a general policy of
upgrading the appearance of the Highway 17 corridor,
and creating a pleasant transition between new commer-
cial and existing residential development. Bridgeton
will support zoning revisions and other planning tools
and policies which will help to carry out this general
policy, and ultimately seeks to develop U.S. 17 as a
mechanism for promoting waterfront and residential
development.
(c) Conventional Dwellings/Mobile Homes: The town will
support zoning revisions which will have the effect of
discouraging the coexistence of commercial units and
mobile homes in residential areas. The town will also
support zoning revisions which attempt to define
mobile home residential use districts, which are iso-
lated from commercial and industrial development, and
provide (in conjunction with Building and Housing
Codes) for objective standards of mobile home develop-
ment.
55

11
'
(d)
Multi -Unit Housing: The town will support zoning
revisions which discourage new multi -unit housing
development in currently -zoned waterfront residential
areas within the existing town limits, since it wishes
'
to preserve the historical single-family ambience of
those areas. However, the town will support the per-
mitting of multi -unit housing in other areas. The
owner of any new multi -unit housing development pro-
posed for the waterfront area will be required to
dedicate three to ten feet of river frontage for
'
neighborhood riverfront access, as suggested by CAMA
Shorefront Access Standards (NCAC, Subchapter 7M,
Section .0303).
(e)
Riverfront Development: As stated elsewhere in this
plan, during the update of its zoning ordinance
Bridgeton will develop zoning revisions which will
provide a harmonious blend of new and existing river -
front development, namely, the planned coexistence of
marine commercial, public recreational, and waterfront
residential uses, within its planning jurisdiction.
(f)
Types/Location of Industries: Bridgeton will dis-
courage the location of any new manufacturing industry
on property containing "conservation" land within its
planning jurisdiction, since industrial development in
these areas is seen as inconsistent with numerous
policies previously stated herein. However, the town
will encourage industrial development in other areas
within its planning jurisdiction, if the industry
makes a strong local employment commitment, is fis-
cally responsible for an equitable portion of required
infrastructure costs, and is located in an area not
adjacent to existing residential or other non -compat-
ible land use, or where no programmed incompatible
land use exists. Subject to physical and financial
constraints, the Town of Bridgeton will extend sewer
service to such industries if the industry is within
an area that has petitioned for annexation and subse-
quently been incorporated within the town limits.
In general, the town will discourage new industrial
development which does not meet the parameters above,
since it feels that the potential incompatibility/
'
environmental problems associated with a new industry
outweigh its economic benefits unless the industry
makes a sincere commitment to improving the local
economy.
(g)
The Town of Bridgeton will review and update its sub-
division ordinance to address the growth issues iden-
tified in this section and to incorporate specific
site planning requirements.
56

(h) Unplanned Development: In order to effectively imple-
ment the general zoning/planning policies outlined in
(a) through (f), above, and to carry out other poli-
cies concerning resource protection and community/
economic development outlined herein, during the
planning period, the Town of Bridgeton will extend its
planning jurisdiction to extraterritorial areas (with-
in one mile of existing town limits).
C.9. Local Commitment to Providing Services to Development:
The policy of the Town of Bridgeton regarding provision of
municipal services to development during the planning
period will be to attempt to provide services to develop-
ing areas within its planning jurisdiction, providing the
development is generally consistent with the growth
management policies outlined herein.
Because of the obvious strains on its financial and admin-
istrative resources, and the desire to avoid unprojected
growth in sensitive areas both within and adjacent to the
town, municipal services will not be extended or estab-
lished solely as an incentive for increased residential or
commercial development. However, the town does reserve
the right to extend municipal sewer service as an attrac-
tion to an industry consistent with the parameters
discussed in 8(f), above.
C.10. Commitment to State/Federal Programs: Bridgeton will
attempt to identify, through pu is meetings and close
coordination with Craven County development -related offi-
cials, ongoing state and federal programs relating to its
stated land use policies, to actively support all programs
consistent with its stated policies, and to communicate
with state and federal officials when areas of land use
policy incompatibility are identified.
C.11. Tourism: Bridgeton's stated policy of supporting local
tourism related commercial development, and the Craven
County tourism development plan, was discussed in Section
II.B.2.
C.12. Estuarine -Access: The policy of the Town of Bridgeton
regarding public estuarine access will be to support the
state's shorefront access policies as set forth in NCAC
Chapter 15, Subchapter 7M. The town will conform to CAMA
and other state and federal environmental regulations
affecting the siting and development of estuarine access
areas. The town will provide specific access site loca-
tions in its community services and facilities plan
referred to in Section II.C.6, page 54.
57

' C.13. Density of Residential Development: The existing and
projected ensi y or rest en 1a'=evelopment in Bridgeton
during the planning period is not expected to be a signifi-
cant concern for zoning policies or provision of services.
The existing concern of small lot size as it affects septic
tank installation should be almost eliminated by the new
sewer system. The town will consider lot size in undevel-
oped residential areas as a constraint to future develop-
ment when revising its zoning ordinance.
D. Continuing Public Participation Policies
Bridgeton recognizes that an important element in developing and
implementing any local policies or plans regarding the use of land
in the town is involvement of the town's citizenry. From the
initial stages of development of this CAMA Land Use Plan, Bridgeton
has sought to provide open opportunities for citizen input. A
"Public Participation Plan" was developed for the plan process,
outlining the methodoloqy for citizen involvement (see Appendix
II). The plan stated that public involvement was to be generated
Primarily through the Town Planning Board and through "public
information" meetings, advertised in local newspapers and open to
the general public. The Planninq Board meetings also are open to
the general public.
rSpecifically, during the beginninq stages of the process, the Plan-
ninq Board met with the planning consultant to review and discuss
preliminary development issues. Also, a description of the Land
' Use Plan preparation process and schedule was published in the Sun
Journal. During the second quarter of the plan preparation, the
Town Board of Aldermen received a report on the preparation
process. Throughout the plan development process, the town Plan-
ninq Board was actively involved. A series of meetings, or "work-
ing sessions" were held. All of these meetings were open to the
' public. Specifically, work sessions and/or meetings were held on
the following dates: November 9, 1988; December 21, 1988; January
23, 1989; February 27, 1989; and March 27, 1989.
' The final draft plan, prior to submission to the CRC, was presented
to the town Board of Aldermen on June 5, 1989. Following submittal
of the draft plan, a public information meeting for review of the
proposed plan was held. A notice of the public meeting was
published in the Sun Journal, and typed notices of the meeting were
prominently poste a out town and in the Town Clerk's office.
In addition to direct citizen input through the public meeting,
interviews were conducted with representatives of various aqencies
in the Bridgeton/Craven County area to solicit input.
It is the belief of the Bridgeton Board of Aldermen that all
citizens be afforded adequate opportunities to participate in the
governmental and planning decisions which affect them. Therefore,
citizen input will continue to be solicited, primarily through the
Planning Board with advertised and adequately publicized public
meetings held to discuss special land use issues, and to keep
citizens informed.
58

E. Storm Hazard Mitigation, Post -Disaster Recovery,
and Evacuation Plans
The entire North Carolina coastal region, including Bridgeton,
faces strong threats of damage each year from hurricanes, North-
easters, or other major storms. Notice the excerpt below from
Before the Storm: Managing Development to Reduce Hurricane
Damages, McE yea, Brower, & Godschalk, 1982, concerning evelop-
merit n coastal communities:
"At the same time, development along the coast has grown
by leaps and bounds. Unless this development is wisely
located and built to withstand hurricane forces, North
Carolina's coastal communities will face massive
destruction. Local governments, as the primary
protectors of the public health, safety, and general
welfare, have a responsibility to reduce the risk of
property damages and loss of life attending coastal
development. They also have a responsibility to ensure
that reconstruction following a major storm can occur
quickly and leave the community safer from disaster in
the future. These are the goals of hazard mitigation
and reconstruction planning." (p. iii)
The purpose of this section of the 1989 CAMA Land Use Plan is to
assist the Town of Bridgeton in managing development in poten-
tially hazardous areas through establishing storm hazard mitiga-
tion policies and to reduce the risks associated with severe
storms and hurricanes by developing post -disaster reconstruction/
recovery policies. The overriding concept behind this exercise is
simple - "Plan for disasters ahead of time." Notice the excerpt
below:
"Hazard mitigation includes any activity which reduces
the probability that a disaster will occur or minimizes
the damage caused by a disaster. Hazard mitigation
includes not only managing development, but also
evacuation planning and other measures to reduce losses
of life and property. Reconstruction involves the full
range of repair activities in the wake of a disaster
which seek to return the community to a "normal" level
of operations." (McElyea, Brower, & Godschalk, p. iii)
With this introduction, the following pages
hazard mitigation and post -disaster recovery
appropriate discussions and maps.
will present the storm
policies, along with
59

1. Storm Hazard Mitigation: Discussion
' Hazard mitigation, or actions taken to reduce the probability
or impact of a disaster could involve a number of activities
or policy decisions. The starting point, however, is to
identify the types of hazards (including the relative sever-
ity and magnitude of risks) , and the extent of development
(including residential, commercial, etc.) located in storm
hazard areas.
' Hurricanes are extremely powerful, often unpredictable forces
of nature. The four causes of fatalities and property damage
are high winds, flooding, wave action, and erosion. Two of
these, high winds and flooding, apply to Bridgeton.
a. High Winds
High winds are the major determinants of a hurricane, by
definition, i.e., a tropical disturbance with sustained
winds of at least 73 miles per hour. Extreme hurricanes
can have winds of up to 165 miles per hour, with gusts up
to 200 miles per hour. These winds circulate around the
' center or "eye" of the storm. Although the friction or
impact of the winds hitting land from the water causes
some dissipation of the full force, there is still a
tremendous amount of energy left to cause damage to
buildings, overturn mobile homes, down trees and power -
lines, and destroy crops. Although North Carolina's
barrier islands are often the first areas hit, inland
areas relatively close to sound areas, like Bridgeton,
can also suffer major wind damage. Also, tornadoes are
often spawned by hurricane wind patterns. Wind stress,
therefore, is an important consideration in storm hazard
1 mitigation planning.
b. Flooding
The excessive amounts of rainfall and the "storm surge"
which often accompany hurricanes can cause massive
coastal and riverine flooding causing excessive property
damage and deaths by drowning. (More deaths are caused
by drowninq than any other cause in hurricanes.) Flood-
ing can cause extensive damage in inland areas, since
many coastal areas have low elevations and are located in
high hazard or "Zone A" flood areas according to the
Federal Emergency Management Agency maps. Based on
recent (1987) flood insurance maps prepared for
Bridgeton, all of the town is classified as being in the
100-year "high hazard" flood zone, or Zone A (see Map 3.)
Consideration of potential flood damage is important to
Bridgeton's efforts to develop storm mitigation
policies.
60

c. Policy Statements: Storm Hazard Mitigation
In order to minimize the damage potentially caused by the
effects of a hurricane or other major storm, Bridgeton
proposes the following policies:
High Winds
Bridgeton supports enforcement of the N.C. State
Building Code. The town will continue to enforce the
State Buildinq Code on wind resistant construction
with design standards of 110 mph wind loads.
Floodinq
Bridgeton is an active participant in the National
Flood Insurance program and is supportive of hazard
mitigation elements. Bridgeton is participating in
the regular phase of the insurance program and
enforces a Flood Damage Prevention Ordinance. The
base flood elevation, as set out in the ordinance, is
9.1 NGVD. Bridgeton also supports continued enforce-
ment of the CAMA and 404 Wetlands development permit
processes in areas potentially susceptible to
flooding.
Implementation: Storm Hazard Mitigation
1. Bridgeton will continue to enforce the standards
of the State Building Code.
2. The town will continue to support enforcement of
State and Federal programs which aid in miti-
gation of hurricane hazards, including CAMA and
the U.S. Army Corps of Engineers 404 permit
process, FEMA, as well as local ordinances such
as zoning and flood damage prevention
regulations.
2. Post -Disaster -Reconstruction -Plan
Bridgeton recognizes that in the event of a major storm, it
will be very important to have a general recovery and recon-
struction plan. This section of the Land Use Plan will
address this issue.
61

L7
a. Appointment of a "Post -Disaster Recovery Team"
In the event of a major storm having landfall near
Bridgeton, when evacuation orders are issued the Mayor
shall appoint a "Post -Disaster Recovery Team." The total
team may consist of the following:
1. Mayor
2. Fire Chief (team leader)
' 3. Town Zoning Administrator
4. Town Board of Aldermen members
The Fire Chief will serve as the team leader and will be
responsible to the Mayor. The base of operations will be
the Emergency Operations Center (EOC) designated by the
' governing body. The Post -Disaster Recovery Team will be
responsible for the following:
1. Establishing an overall restoration schedule.
2. Setting restoration priorities.
' 3. Determining requirements for outside assistance and
requesting such assistance when beyond local
capabilities.
4. Keeping the appropriate County and State officials
informed.
' S. Keeping the public informed.
6. Assembling and maintining records of actions taken
and expenditures and obligations incurred.
7. Recommending to the Mayor to proclaim a local "state
of emergency" if warranted.
8. Commencing and coordinating cleanup, debris removal
and utility restoration which would include coordi-
nation of restoration activities undertaken by
private utility companies.
9. Coordinating repair and restoration of essential
public facilities and services in accordance with
determined priorities.
10. Assisting private businesses and individual property
owners in obtaining information on the various types
of assistance that might be available to them from
Federal and State agencies.
62
�

b. Immediate Clean-up and Debris Removal
As soon as practical after the storm, the Post -Disaster
Recovery Team will direct appropriate town personnel, and
as necessary, request State and/or Federal assistance to
begin clearing fallen trees and other debris from the
town's roads and bridges.
C. Long -Term Recovery/Restoration
The Post -Disaster Recovery Team will be responsible for
overseeing the orderly implementation of the recon-
struction process after a major storm or hurricane in
accordance with the town's building and land use
regulations and policies.
Damage Assessments
Damage assessments will be necessary to determine as
quickly as possible a realistic estimate of the
amount of damage caused by a hurricane or major
storm. Information such as the number of structures
damaged, the magnitude of damage, and the estimated
total dollar loss will need to be developed.
As soon as practical after the storm, i.e., clearance
of major roadways, the Post -Disaster Recovery Team
Leader shall set up a Damage Assessment Team (DAT)
consisting of a Craven County Building Inspector, the
Zoning Administrator, a local realtor or building
contractor, and appropriate personnel from the Craven
County Tax Department. The DAT will immediately
begin to make "windshield" surveys of damaged struc-
tures to initially assess damages and provide a
preliminary dollar value of repairs or replacement.
The following general criteria shall be utilized:
1. Destroyed (repairs would cost more than 80
percent of value).
2. Major (repairs would cost more than 30 percent of
the value).
3. Minor (repairs
the value, but
uninhabitable).
would cost less than 30 percent of '
the structure is currently
4. Habitable (some minor damage, with repairs less
than 15 percent of the value).
63
1

L�
Each damage assessment will be documented according
to County tax records. Also, town tax maps and/or
records may be used for identification purposes. The
total estimated dollar value of damages will be
summarized and reported to the Post -Disaster Recovery
Team Leader.
Reconstruction Development Standards
Developed structures which were destroyed or sus-
tained "major damage" and which did not conform to
the town's building regulations, zoning ordinances,
and other storm hazard mitigation policies, i .e. ,
basic measures to reduce damage by high winds, flood-
ing, wave action or erosion, must be repaired or
redeveloped according to those policies. In some
instances, this may mean relocation of construction,
or no reconstruction at all. Building permits to
restore destroyed or "major" damaged structures which
were built in conformance with the town's building
code and town storm hazard mitigation policies shall
be issued automatically. All structures suffering
major damage will be repaired according to the State
Building Code and town Flood Damage Prevention Ordi-
nance. All structures suffering minor damage,
regardless of location, will be allowed to be rebuilt
to the original condition prior to the storm.
Development Moratoria
Because of the density of development at Bridgeton
and the possible extensive damage caused by a major
storm, it may be necessary for the town to prohibit
all redevelopment activities for a certain period of
time after a storm. This "moratorium" could allow
the town time to carefully assess all damage in view
of existing policies, building regulations, and ordi-
nances, in order to help determine whatever existing
policies, etc., should be revised to mitigate similar
damage from future storms. The intent of such a
moratorium would be to learn all the lessons possible
and try and determine what steps and precautions the
town can take in rebuilding so as not to suffer
damage to the same extent. If a moratorium is
established, the time frame will be commensurate with
the extent of the damage. The actual time frame will
be established by the Board of Aldermen.
64

Repair/Reconstruction Schedule
The following schedule of activities and time frame
are proposed with the realistic idea that many
factors of a hurricane may render the schedule
unfeasible.
Activity
- Complete and Report Damage
Assessments
- Begin Repairs to Critical
Utilities and Facilities
- Permitting of Reconstruc-
tion activities for all
damaged structures ( "minor"
to pre -storm original
status, "major" or
"destroyed" to State
Building Code and hazard
mitigation standards)
Time Frame
Two weeks after
storm
As. soon as possible
after storm
After a 90-day
moratorium, and
completion of all
assessments
Repair and Replacement of Public Utilities
If sewer pump stations or the sewage treatment plant
is damaged and it is determined that the facilities
can be relocated to a less hazardous location, then
they will be relocated during reconstruction. This
activity will be coordinated with Carolina Power and
Light Company, for electrical service. The Mayor
will be responsible for overseeing the repair or
replacement of public utilities.
65

1
1
1
1
1
1
1
1
1
1
1
1
1
1
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SECTION III :
Land Classification System

j
SECTION III: LAND CLASSIFICATION SYSTEM
The land classification system provides a uniform way of looking
at how the planned use of land interacts with environmentally -
sensitive areas and with the development of a county or town. It
is not a strict regulatory device in the sense of a zoning ordi-
nance or zoning map. It represents more of a tool to understand
relationships between various land use categories and how these
relationships help shape local policy. Particular attention is
focused on how intensely land is utilized and the level of
services required to support that intensity. The regulations for
the Coastal Area Management Act state:
"The land classification system provides a framework to
be used by local governments to identify the future use
of all lands. The designation of land classes allows
the local government to illustrate their policy state-
ments as to where and to what density they want growth
1 to occur, and where they want to conserve natural and
cultural resources by guidinq growth." (7B.0204) (b)
There are five general land use classifications under CAMA regula-
tions: Developed, Transition, Community, Rural, and Conservation.
In applying the land classification system, each local government
should give careful consideration to how, where and when certain
types of, and intensity of, development will be either encouraged
or discouraged. A brief summary of the five broad classifi-
cations, as contained in the CAMA rules, miqht illustrate this:
"Urban land uses and higher intensity uses which
presently require the traditional urban services should
be directed to lands classified developed. Areas devel-
oping or anticipated to develop at urban densities which
will eventually require urban services should be
directed to lands classified transition. Low density
' development in settlements which will not require sewer
services should be directed to areas classified as
community. Agriculture, forestry, mineral extraction
and other similar low intensity uses and very low den-
sity, dispersed residential uses should be directed to
lands classified rural. Generally, public or private
water or sewer systems will not be provided in areas
classified rural as an incentive for intense develop-
ment." (7B.0204) (c)
1 The purpose of the conservation class is to "provide for the
effective long-term management and protection of significant,
limited, or irreplaceable areas." Consequently, urban services
' (whether public or private) should not be provided to those areas
as an incentive to "stimulate" more intense development. Each of
these classes must be represented on a Land Classification Map.
66

The five land classifications and Land Classification Map are
therefore intended to serve as a visual reflection of the policies
previously stated in Section II. Ideally, the map which depicts
these classifications should be as flexible as the policies that
guide them. Of the stated five land classifications, only three,
Developed, Transition, and Conservation, are applicable to
Bridgeton (see Map 5, Land Classification Map).
These three land use classifications, as they will be applied in
Bridgeton, are identified and defined below.
A. DEVELOPED
The developed class of land use provides for continued inten-
sive development and redevelopment of existing cities or
municipalities. Areas to be classifed as "developed" include
lands currently developed for urban purposes or approaching a
density of 500 dwellings per square mile that are provided
with usual municipal or public services, police and fire
protection. In other words, such areas must be currently
"urban" in character, i.e., have mixed land uses such as
residential, commercial, industrial and institutional, or
other uses at high to medium densities.
All of the developable land in Bridgeton located west of
U.S. 17 comes under this classification. Additionally, there
are isolated areas of high -density developed property within
the existing town limits east of U.S. 17, most notably the
areas of intensive mobile home development, which are
scheduled to be among the initial areas served by the town
sewer system currently in the design phase. These areas have
also been classified as "developed."
B. TRANSITION
Transition land is classified as those lands providing for
future intensive urban development within the ensuing ten
years on lands that are most suitable and that will be
scheduled for provision of necessary urban utilities and
services (whether from public or private sources). They may
also provide for additional growth when additional lands in
the developed class are not available or when they are
severely limited for development.
Lands classified "transition" may include:
1. Lands currently having urban services;
2. Lands necessary to accommodate the population and
economic growth anticipated within the planning
jurisdiction over the next five to ten years;
67

3.
Areas which are in, or will be in, a "transition" state
of development; i.e., going from a lower intensity to a
higher intensity of uses, and will eventually require
urban services.
'
Transition lands must further:
1.
Be served or be readily served by public water, sewer,
and other urban services including public streets; and
2.
Be generally free of severe physical limitations for
urban development.
The
"transition" class should not include:
1.
Lands of high potential for agriculture, forestry, or
mineral extraction, or land fallinq within extensive
rural areas being managed commercially for these uses,
when other lands are available;
2.
Lands where urban development might result in major or
irreversible damage to important environmental, scien-
tific, or scenic values; or,
3.
Land where urban development might result, in damage to
natural systems or processes of more than local concern;
and
4. Lands where development will result in undue risk to life
or property from natural hazards or existing land uses.
Areas to be classified as "transition" in Bridgeton include
all areas within the existing town limits and located east of
U.S. 17 not designated as "developed." These areas contain
some isolated residences and commercial properties which are
'
currently provided public water services and available town
services, and which can easily be served by municipal sewer
service during the planning period. Additionally, these
areas contain vacant land which is generally free of physical
limitations to development and able to accommodate residen-
tial and commercial development with less potential for
negative environmental impact than vacant land closer to the
Neuse River. The areas defined on the Land Classification
Map as transition will undoubtedly undergo a change to
higher -density development during the planning period.
There are areas adjacent to the eastern town limits which can
also be technically classified as "transition." However,
although the development of these properties toward a higher -
density use is a probability during the planning period, such
development is not within the town's current planning
68

C.
D.
jurisdiction nor is it "necessary" to accommodate population
and economic growth in Bridgeton during the planning period.
These areas have therefore not been classified in this
initial land use plan; however, the development of these
areas is a planning issue facing the town.
The Developed and Transition classes should be the only lands
under active consideration by a municipality for intensive
urban development requiring urban services. The area within
these classes is where detailed local land use and public
investment planninq will occur. State and Federal expendi-
tures on projects associated with urban development (water,
sewer, urban street systems, etc.) will be guided to these
areas.
CONSERVATION
The final land use category for Bridgeton is the "Conser-
vation" class, which provides for effective long-term manage-
ment of significant, limited, or irreplaceable areas. This
management may be needed because of its natural, cultural,
recreational, productive, or scenic values. This class
should be limited to lands that contain: major wetlands;
essentially undeveloped shorelines that are unique, fragile,
or hazardous for development; for providing necessary habitat
conditions; publicly owned water supply watersheds and aqui-
fers. Development shold be limited to residential, commer-
cial piers, bulkheads, marinas and other water dependent uses
which will not be detrimental to water quality and meet the
use standard set forth in Chapter 15 NCAC, Subchapter 7H.
In Bridgeton, the environmentally -sensitive areas identified
as Areas of Environmental Concern (AECs), i.e., the coastal
wetlands, estuarine waters, estuarine shorelines, and public
trust waters, are classified as "Conservation." The poten-
tial "404" wetlands area located between Pine and Academy
Streets, west of U.S. 17, is not considered a "conservation"
area due to the fact that it is not considered a significant
natural resource, and it could be developed for urban pur-
poses with permitting -type mitigation. The area is located
adjacent to existing industrial/highway commercial districts
that would severely inhibit an attempt at conservation and
protection as a protected wetland.
LAND -CLASSIF-ICATION SUMMARY
The proposed classification of land, according to the levels
of intensity and provision of public services in Bridgeton,
were presented in parts A. through C., above. These classi-
fications relate directly to the "policy statements" con- '
tained in Section II of this plan. Additional information on
the relationship between the land classification system and
policies will be presented in the following Section IV. ,
69

SECTION IV:
Relationship Of Policies And
Land Classification System

L�
F
SECTION IV: RELATIONSHIP OF POLICIES AND LAND CLASSIFICATIONS
As required by the Coastal Area Management Act, the land use plan
must relate the policies section to the land classification map
and provide some indication as to which land uses are appropriate
in each class.
A. DEVELOPED AND TRANSITION CLASSES
As mentioned in the discussion of existing conditions, the
majority of Bridgeton is developed, and most of the transi-
tion tracts of land should be developed within the planning
period. This is the area where basic services such as water,
sewer, and community support services are available and/or
will be available within the planning period. The developed
and transition classes were specifically designated to accom-
modate the more intensive land uses, including residential,
commercial, and open space, community facilities and trans-
portation. Hazardous or offensive uses such as heavy
industry, land application systems, power plants, and hazard-
ous chemical storage facilities will not be permitted in
these classes. Land uses will be strictly regulated by the
town's existing and amended zoning and development regula-
tions. Policy statements in Section II addressing these
classes were primarily directed at redevelopment issues,
avoiding incompatible land use and unplanned development, and
the issues of municipal services, community facilities and
transportation.
B. CONSERVATION CLASS
The conservation class is designated to provide for effective
long-term management of significant limited or irreplaceable
areas which include Areas of Environmental Concern. Develop-
ment in the estuarine system should be restricted to such
uses as residential, commercial and residential piers, bulk-
heads, marinas, and other water -dependent uses which are
judged not to be detrimental to water quality or the overall
integrity of the environment through pollution, etc., and
which meet the use standard as set forth in 15 NCAC 7H.
Policy statements under Resource Protection, and Resource
Production and Management in Section II of this plan, address
the town's intentions under this class.
70

APPENDIX I
,VRCD - COASTAL .NANAGE.1fF—VT
T1S. 07H .0200
.0204 AECs NNTTHLV THE ESTL'ARWE SYSTEM
The following regulations in this Section define each AEC within the estuarine system, describe its
significance, articulate the policies regarding development, and state the standards for development
within each AEC.
History,'Vote: Statutory Authority G.S.113A-107(a); 113A-107(b); 113A-124,
Eff. September 9, 1977.
.0205 COASTAL WETI.-CNDS
(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 marshland
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),
(_) Black Needlerush (Juncos roemerianus),
(31 Giasswort (Salicomia spp.),
(4) Salt Grass (Distichlis spicata),
1

COASTAL MA.VAGE.1IE.V T TIS: 07H .0200
(5) Sea Lavender (Limonium spp.),
(6) Bulrush (Scirpus spp.),
(7) Saw Grass (Cladium jamaicense),
(8) Cat -tail (Typha spp.),
(9) Salt Meadow Grass (Spartina patens),
(10) Salt Reed Grass (Spanina cynosuroides).
Included in this definition of coastal wetlands is "such contiguous land as the Secretary of NRCD
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 appearsto 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.
%fan 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.
`iarshlands also act as nutrient and sediment traps by slowing the water which flows over them and
C.-
causing suspended organic and inorganic particles to settle out. In this manner, the nutrient storehouse
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.
(c) Management Objective. To give highest priority to the protection and management of coastal
wetlands so as to safeguard and perpetuate their biological, social, economic and aesthetic values; to
coordinate and establish a management system capable of conserving and utilizing coastal wetlands as
a natural resource essential to the functioning of the entire estuarine system.
(d) Use Standards. Suitable land uses shall be those consistent with the management objective in this
Rule. Highest priority of use shall be allocated to the conservation of existing coastal wetlands. Second
priority of coastal wetland use shall be given to those types of development activities that require water
access and cannot function elsewhere.
Unacceptable land uses may include, but would not be limited to, the following examples: restaurants
and businesses; residences, apartments, motels, hotels, and trailer parks; parking lots and private roads
and highways; and factories. Examples of acceptable land uses may include utility easements, fishing
piers, docks, and agricultural uses, such as farming and forestry drainage, as permitted under North
Carolina's Dredge and Fill Act andior other applicable laws.
In every instance, the particular location, use, and design characteristics shall be in accord with the
general use standards for coastal wetlands, estuarine waters, and public trust areas described in Rule
.0208 of this Section.
History Note: Statutory Authority G.S. 113A-107(a); IMA-107(b); 113A-113(b)(1); 113A-124;
Ef. .. September 9, 1977,
Amended Eff. January 24, 1978.
.0206 ESTUARLN'E WATERS
(a) Description. Estuarine waters are defined in G.S. 113A-113(b)(2). The boundaries between in-
land and coastal fishing waters are set forth in an agreement adopted by the Wildlife Resources Com-
mission and the Department of 'Natural Resources and Community Development and in the most
current revision of the Noah Carolina Marine Fisheries Regulations for Coastal Waters, codified at 15
NCAC 3F .0200.
(b) Significance. Estuarine graters 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
n
FORTH C.4ROL1.V.4 .4D.11LN7STR.4TIYE CODE 12112188 Page 2

VRCD - COASTAL MA.`AGEMENT I15: 07H .0100
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 or some part of their life
cycle within the estuarine waters to mature and reproduce. Of the ten leading species in the commercial
catch, all but one are dependent on the estuary.
This high productivity associated with the estuary results from its unique 6=ulation 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 pol-
lutants, 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, aiid important nursery areas.
Secondary benefits include the stimulation of the coastal economy from the spin off operations re-
quired to service commercial and sports fisheries, waterfowl hunting, mariina<, boatyards, repairs and
supplies, processing operations, and tourist related industries. In addition, there is considerable non -
monetary value associated with aesthetics, recreation, and education.
(c) Management Objective. To give the highest priority to the conservation and management of the
important features of estuarine waters so as to safeguard and perpetuate their biological, social. aes-
thetic, and economic values; to coordinate and establish a management system capable of conserving
and utilizing estuarine waters so as to maximize their benefits to man and the estuarine system.
(d) Use Standards. Suitable landwater uses shall be those consistent with the management objectives
in this Rule. Highest priority of use shall be allocated to the conservation of estuarine waters and its
vital components. Second priority of estuarine waters use shall be given to those types of development
activities that require water access and use which cannot function elsewhere such as simple access
channels; structures to prevent erosion; navigation channels; boat docks, marinas, pig, wharfs, and
mooring pilings.
In every instance, the particular location, use, and desiga characteristics shall be in accord with the
general use standards for coastal wetlands, estuarine waters, and public trust area described in Regu-
lation .0208 of this Section.
History :Vote: Statutory Authority G.S. 113A-107(a); 113A-107(b); 113A-113(b)(2); 113A-24;
Eff. September 9, 1977;
Amended Eff. October 1, 1988; December 1, 1985; Jarruary 24, 1978.
.0207 PL:BLIC TRUST AREAS
(a) Description. Public trust areas are all waters of the 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 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 cre-
ated bodies of water containing significant 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 pre-
scription. custom. usage, dedication, or any other means. In determining whether the public has ac-
quired 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,
(S) 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 navigation from one public area to another public
area.
(b) Significance. The public has rights in these areas, including navigation and recreation. In addi-
tion. these areas support valuable commercial and spore fisheries, have aesthetic value. and are im-
portant resources for economic development.
i
FORTH C.4ROLLVA .-tD.1f1.VISTRATIT E CODE 12112188 Page 3

VRCD - COASTAL MANAGEMEVT TIS. 07H .0200
i'
(c) Management Objective. To protect public rights for navigation and recreation and to preserve
and manage the public trust area so as to safeguard and perpetuate their biological, economic and
aesthetic value.
(d) Use Standards. Acceptable uses shall be those consistent with the management objectives in (c)
of this Rule. In the absence of overriding public benefit, any use which significantly interferes with the
public right of navigation or other public trust rights which the public may be found to have in these
area shall not be allowed. The development of navigational channels or drainage ditches, the use of
bulkheads to prevent erosion, and the building of piers, wharfs, or marinas are examples of uses that
may -be acceptable within public trust areas, provided that such uses will not be detrimental to the
public trust rights and the biological and physical functions of the estuary. Projects which would di-
rectly or indirectly block or impair existing navigation channels, increase shoreline erosion, deposit
spoils below mean high tide, cause adverse water circulation patterns, violate water quality standards,
or cause degradation of shellfish wateA are generally considered incompatible with the management
policies of public trust areas. In every instance, the particular location, use, and design characteristics
shall be in accord with the general use standards for coastal wetlands, estuarine waters, and public trust
areas.
Statutory G.S. 113A-107(a); 113A-107(b); 113A-113(b)(5); 113A-114,
_History :Vote: .authority
EfJ. September 9, 1977.
.0209 ESTUARNE SHORELVES
(a) - -Rationale. As an AEC, estuarine shorelines, although characterized as dry land, are considered
a component of the estuarine system because of the dose association with the adjacent estuarine waters.
This Section defines estuarine shorelines, describes the significance, and articulates standards for devel-
opment.
(b) Description. Estuarine shorelines are those non -ocean shorelines which are especially vulnerable
to erosion, flooding, or other adverse effects pf wind and water and are intimately corttsected to the es-
tuary. 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 Natural Resources and Community Development [described in
Regulation .0206(a) of this Section] for a distance of 75 feet landward.
(c) Sip ficance. Development within estuarine shorelines influences the quality of estuarine life and
is subject to the damaging processes of shore front erosion and flooding.
FORTH C.4ROLl.':4 .4D.Ifl.N'ISTRATIT E CODE 12;12188 Pape 9
1

VRCD - COASTAL MA.VAGEME.VT T15: 07H .0200
(d) Management Objective. To ensure shoreline development is compatible with both the dynamic
nature of estuarine shorelines and the values of the estuarine system.
(e) Use Standards
(1) All development projects, proposals, and designs shall substantially preserve and not weaken or
eliminate natural barriers to erosion, including, but not limited to, peat marshland, resistant clay
shorelines, cypress -gum protective fringe area adjacent to vulnerable shorelines.
(2) All development projects, proposals, and designs shall limit the constmction of impervious sur-
faces and areas not allowing natural drainage to only so much as is necessary to adequately
service the major purpose or use for which the lot is to be developed. Impervious surfaces shall
not exceed 30 percent of the AEC area of the lot, unless the applicant can effectively demon-
strate, through innovative design, that the protection provided by the design would be equal to
or exceed the protection by the 30 percent limitation.
(3) All development projects, proposals, and designs shall comply with the following mandatory
standards of the North Carolina Sedimentation Pollution Control Act of 1973:
(A) All development projects, proposals, and designs shall provide for a buffer zone along the
margin of the estuarine water which is sufficient to confine visible siltation within 25 percent of
the buffer zone nearest the land disturbing development.
(B) No development project proposal or design shall permit an angle for graded slopes or fill
which is greater than an angle which can be retained by vegetative cover or other adequate ero-
sion -control devices or structures.
-
(C) All development projects, proposals, and designs which involve uncovering more than one
acre of land shall plant a ground cover sufficient to restrain erosion within 30 working days of
completion of the grading; provided that this shall not apply to clearing land for the purpose of
forming a reservoir later to be inundated.
(4) Development shall not have a significant adverse impact on estuurine resources.
-of,
(5) Development shall not significantly interfere with existing public rights of access to, or use
navigable waters or public resources.
(6) No major public facility shall be permitted if such facility i; likely to require extraordinary public
expenditures for maintenance and continued use, unless it can be shown that the public purpose
served by the facility outweighs the required public expenditures for construction, maintenance,
and continued use. For the purpose of this standard, "public facility" shall mean a project
which is paid for in any part by public funds. -
(7) Development shall not cause major or irreversible damage to valuable, documented historic ar-
chitectural or archaeological resources.
(8) Established common-law and statutory public rights of access to the public trust lands and wa-
ters in estuarine areas shall not be eliminated or restricted. Development shall not encroach
upon public accessways nor shall it limit the intended use of the accessways.
History ,'Vote: Filed as a Temporary Amendment Eff. December 18, 1981, for a Period of
120 Days to Expire on April 15, 1982,
Statutory Authority G.S. 113A-107(b); 113A-108; 113A-113(b); 113A-124,
Eff. September 9, 1977,
Amended Eff. March 1, 1988, December 1, 1985, September 1, 1985;
December 1, 1982.
.FORTH C,4ROLL\'.4 AD.IfLVISTRATII'E CODE 12112188 Page 10

.APPENDIX II
CITIZEN PARTICIPATION PLAN
PREPARATION OF LAND USE PLAN
FISCAL YEAR 1988-89
The Town of Bridgeton has received a FY88-89 Coastal Area
Management Act grant for the preparation of its initial Land Use
Plan. Adequate citizen participation in the development of that
Plan is essential to the preparation of a document responsive to
the needs of the citizens of Bridgeton. To ensure such input, the
following Citizen Participation Program will be utilized by the
Town.
The Town of Bridgeton Town Council will be the principal point of
contact and input for the preparation of the Plan. The Council
will ensure that the final product will survey existing land use,
identify policies, recommend strategies/actions, and identify
Areas of Environmental Concern. Emphasis will be placed on
identifying service and utility needs. Specifically, the
Bridgeton Town Council will be responsible for ensuring
accomplishment of the following:
-- Develop an effective citizen participation process;
-- Survey and map existing land uses;
-- Identify and map AECs;
-- Develop land use policies and strategies;
-- Identify land use regulatory needs.
-- Establish a specific work plan schedule for dealing with
land use needs/problems;
-- Identify and forecast growth and development issues.
At the outset of the project, an article will be prepared for
distribution to all local newspapers. Those newspapers will be
requested to print the article which will include a proposed
schedule for completion. The following schedule will be
utilized:
1. November 1988 - meet with the Town of Bridgeton Town Council to
review the scope of work. Have the Citizen Participation Plan
adopted.
2. December 1988 - complete identification of existing land use
problems and map of existing land uses and AECs.

3.
January 1989 - continue preparation of draft Land Use
Plan.
4.
February 1989 - present draft section of plan dealing
with
existing issues and land use to the Town Council.
5.
May 1988 - conduct a public information meeting for review of
the proposed Plan.
6.
July 1989 - submit draft of complete Land Use Plan to
CRC for
review and comment.
7.
September 1989 - present proposed Land Use Plan to the
Town of
Bridgeton Town Council for review and scheduling of a
public
hearing.
.1
t

NEUSE RIVER
LEGEND
0 MINOR NON -NEED FRAME BUILT DWELLING
0 MODERATELY DETERIORATED FRAME BUILT DWELLING
Q SEVERELY DETERIORATED FRAME BUILT DWELLING
DILAPIDATED FRAME BUIJ DWELLING
Q MINOR NON -NEED MOBILE HOME
m MODERATELY DETERIORATED MOBILE HOME
Q SEVERELY DETERIORATED MOBILE HOME
DILAPIDATED MOBILE HOME
RIGHT-OF-WAY (NOT CLEARED)
EVAONS pNBOBBELE HOME PARK
tl0 MODERATELY DETERIORATED)
U.S. HIGHWAY NO. 17
r
W ; 1 V
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m ;0 o
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The preparation of this map was
financed In part Through a grant
provided by the North Caro Una
Coastal Management Program,
through funds provided by the
Coastal Zone Management Act of
1972, as amended. which Is
administered by the Office of
Ocean and Coastal Resourca
Management, National Oceanic and
Atmospheric Administration.
i1
ur
1/ '
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11
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TOWN OF BRIDGETON
NOVEMBER, 1988
0 100' 200' 400'
HOUSING CONDITIONS
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NEUSE RIVER - - - * • - " �'
NEUSE RIVER
LEGEND
CONSERVATION
DEVELOPED ® RIGHT OF WAY (NOT CLEARED)
® TRANSITION
TOWN OF BRIDGETON
NOVEMBER, 1988
0 100200• e00•
LAND CLASSIFICATION MAP
The preparation of this map was
financed In part through a grant
provided by the North Carolina
Coastal Management Program,
through funds provided by the
Coastal Zone Management Act of
1972, as amended, which Is
administered by 'he Office of
Ocean and Coastal Resource
Management, National Oceanic and
Atmospheric Administration.
NEUSE RIVER
MAP O
f
0

MEUSE RIVER
LEGEND
O ADT LOCATION FOR TABLE II
® RIGHT-OF-WAY (NOT CLEARED)
TOWN OF BRIDGETON
NOVEMBER, 1988
o wo 200 .oa
AVERAGE DAILY TRAFFIC (ADT) COORDINATES MAP
NEUSE RIVER
The preparation of this map was
financed in part through a grant
provided by the North Carolina
Coastal Management Program,
through funds provided by the
Coastal Zone Management Act of
1972, as amended, which is
administered by the Office of
Ocean and Coastal Resource
Monagemeni, National Oceanic and
Atmospheric Administration.
1101
MEUSE RIVER
MAP 4

The preparation of this map was
financed In part through a grant
provided by the Norlh Carolina
Coastal Management Program,
through funds provided by the
Coastal Zone Management Act of
1972, as amended, which is
adminislared by the Office of
Ocean and Coastal Resource
Management, National Oceanic and
Atmospheric Administration.
NEUSE RIVER LEGEND \
LAND USE CATEGORIES
COMMERCIAL 71
RESIDENTIAL LJ
PUBLIC, SEMI-PUBLIC Q
INDUSTRIAL
VACANT
RIGHT-OF-WAY (NOT CLEARED) ED
0
m
0
I
II
II 177
■ 1■ 1 IIIffullm
■■ ■�■ 1111 ■ 111 IIII III
INIME
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EXISTING LAND USE NEUSE RIVER
TOWN OF BRIDGETON
NOVEMBER, 1988
0 100' 200' 400'
f
I t t
a A
n . �
NEUSE RIVER
MAP 2

Or�V�1
NEUSE RIVER
The preparation of this map was
financed In part through a grant
provided by the North Carolina
Coastal Management Program,
through funds provided by the
Coastal Zone Management Act of
1972, as amended, which Is
administered by the Office of
Ocean and Coastal Resource
Management, National Oceanic and
Atmospheric Administration.
PROPOSED WASTEWATER TREATMENT
PLANT SITE
,4 ACRES
U.S. HIGHWAY NO. 17
, , r
W
i
F C STREET
B STREET
I ' '
-----------,--,---
^y
LEGEND
B" GRAVITY SEWER ---
4- FORCE MAIN
RIGHT-OF-WAY (NOT CLEARED)
�■��
■
■
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11M I
L%�"`���"�����
IIII�I Ell
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3
z
A Sl Kttl A STREET
NEUSE RIVER
TOWN OF BRIDGETON
NOVEMBER, I988 NOTE: ENTIRE TOWN (WITHIN CORPORATE NEUSE RIVER
0 100* 200' 400' LIMITS) IS IN AREA OF 100 YEAR FLOOD
PROPOSED WASTEWATER COLLECTION SYSTEM BASE FLOOD ELEVATIONS AND FLOOD HAZARD MAP 3
AND COMPOSITE HAZARDS MAP FACTORS DETERMINED