CAMA Land Use Plan Update-1981

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Division of Coastal Management Copy
TOWN OF BURGAW
1981
LAND USE PLAN

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Division of Coastal Management Copy
TOWN OF BURGAW
1981
LAND USE PLAN

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Executive Summary
CAMA LAND USE PLAN UPDATE, 1981
Introduction
This planning document contains a comprehensive update of Burgaw's
CAMA Land Use Plan, which was originally drafted and adopted in 1976.
Both the land use plan update and the 1976 Plan were prepared in
accordance with the land use planning guidelines established by the
Coastal Area Management Apt, although it should be noted that the
guidelines have been amended substantially since 1976. It is expected
that this plan will be updated once again in 1986.
Some of Burgaw's residents may wonder why Burgaw should have
a land use plan. Most importantly, it provides all the citizens of
Burgaw an opportunity to manage the ever increasing development pressures
which are evident in eastern North Carolina. By managing land develop-
ment pressures, Burgaw will be able to preserve the very features which
make the area economically and aesthetically desirable.
Population and Economy
Through an analysis of Burgaw's population several significant
•
trends were discovered. Most notably 1980 Census figures for Burgaw
showed a 10% population decline since 1970, yet during the same time
period Burgaw had a 10% increase in housing units. On the other hand,
both Pender County and Burgaw Township experienced significaBt population
gains, particularly the coastal areas of Pender County.

Since the economies of Burgaw and Pender County were so closely
meshed, economic analysis was generally made on a county -wide basis.
Nonetheless the economic analysis identified an expanding economy
in Pender County. Substantial increases in employment, retail sales
and incomes during the recent past were documented. It is also
important to point out that the Pender County economy is shifting
from its historically agricultural base to a mixture of industry,
agriculture, and tourism.
Existing Land Use
In order to gain a better understanding of existing and potential
land use problems, land use throughout Burgaw's jurisdiction was mapped
based upon the findings of a "windshield survey". From this survey
it.was found that transportation, communication and utilities was the
largest urban use of land, followed in order by residential, recreation,
governmental and institutional, commercial, and industrial. However,
more importantly, undeveloped areas accounted for 87% of all the land
in Burgaw's jurisdiction, indicating there is ample space for growth
as well as the opportunity to manage this growth. The land use
survey also revealed that land use trends documented in the 1976 Plan
such as mixed land use, strip development, and suburban sprawl, have
continued through 1980. This plan affords Burgaw another opportunity
to address these issues.
Constraints To Development
Consideration of constraints to development was one of the most
important features of the plan update, as it established Burgaw's
ability to accomodate land development in the future. The capacity
of local soils and Burgaw's wastewater treatment plant were identified
If
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as the primary concern. Many of the soil types in Burgaw have
limitations for septic tank use and surface drainage, creating a need
for special consideration of soil potential whenever land development
is proposed. Burgaw's sewer treatment plant, because of substantial
infiltration and inflow, has an unmeasured capacity for additional
customers. However, the Town of Burgaw is working with State and
s
Federal agencies to -solve the sewer problems and allow expanded
• use of the sewer system.
Estimated Growth Demand
Based on the analysis of Burgaw's population and economy, it was
predicted that both population and economic growth could be expected
for the Burgaw planning area. Burgaw's population was projected to
increase 12% over -the next ten years, resulting in a population of
1,765 in 1990. Population growth in the extraterritorial jurisdiction
and surrounding areas was also predicted. Substantial economic growth
was anticipated, in large part because of construction of Interstate 40
through Pender County, but also because of local industrial recruiting
efforts, growth spurred by coastal development and industrial development
in the Wilmington area.
Of course, economic and population growth will have an impact on
land use and community facilities. It was estimated that approximately
167 acres of land would be required over the next 10 years to accomodate
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projected growth. With the exception of Burgaw's wastewater treatment
plant, which has an unknown capacity for additional customers, it was
concluded that existing community facilities can accomodate growth
projected for Burgaw.
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Development Issues and Policy Statements
Although Burgaw considered many different development issues there
was little need for Burgaw to adopt drastic policy changes or initiatives
as part of this plan update. This was primarily because of the moderate
amount of land development and the absence of environmentally fragile
lands in Burgaw's jurisdiction. Perhaps the most important policy '
initiative was the decision to study revisions to the zoning ordinance
in an attempt to better manage land use problems. In any case, it
should be stated that Burgaw has had a planning head -start on most of
the towns and counties across North Carolina and the United States,
for many towns have never had a land use plan much less zoning and
subdivision regulations. Nevertheless, Burgaw is well prepared to
manage land use for the betterment of the community.
A.
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TABLE OF CONTENTS
PAGE
SUMMARY OF PLAN
i
CHAPTER I - INTRODUCTION
1
..Purpose of Study
1
..The Study Area
2
r ..Citizen Participation
2
CHAPTER II - ANALYSIS OF CHANGE
4
..Introduction
4
..Population
4
..Economy
7
..Existing Land Use Survey and Analysis
13
..Current Plans, Policies & Regulations
21
CHAPTER III - CONSTRAINTS TO DEVELOPMENT
26
..Introduction
26
..Natural Constraints
26
CHAPTER IV - ESTIMATED GROWTH DEMAND
31
..Introduction
31
..Population and Economy
31
..Future Land Needs
33
..Community Facilities Demand
33
CHAPTER V - DEVELOPMENT ISSUES
36
..Introduction
36
..Issues
36
..Policy Statements
42
..Resource Protection
42
..Economic and Community Development
43
CHAPTER VI - LAND CLASSIFICATION
47
..Introduction
47
..Land Classifications
47
R
The preparation of this document was financed, in part,
through a
Coastal Area Management Act 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 Coastal Zone Management, National Oceanic
and
Atmospheric Administration.

LIST OF EXHIBITS
PAGE
Exhibit 1 - Land Use Changes, 1976-1981 14
Exhibit 2 - Land Classification Map 50
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CHAPTER I
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4
PURPOSE OF STUDY
L;
The Town of Burgaw prepared a Land Use Plan in 1976 in response
to the Coastal Area Management Act, passed by the North Carolina
Legislature in 1974. The purpose and intent of the act is -best
described in Section .0101 "Introduction to Land Use Planning"
Subchapter 7B - Land Use Planning Guidelines (as amended 9/l/79):
.0101 Introduction
(a) The Coastal Area Management Act of 1974 establishes a
cooperative program of coastal area management between
local governments and the state. Land use planning lies
at the center of local government's involvement, as it
gives the local leaders an opportunity and responsibility to
establish and enforce policies to guide the development of their
community.
(b) The purpose of these state guidelines is to assist local
governments in each of the 20 coastal counties with the
preparation of their own individual land use plans. Each
county and the municipalities within the coastal counties
are encouraged to develop a plan which reflects the desires,
needs and best judgment of its citizens. The land use
plans prepared under these guidelines, when considered
together, form the basis for "a comprehensive plan for the
protection, preservation, orderly development and management
of the coastal area of North Carolina," which is the primary
objective of the Coastal Area Management Act of 1974.
Further in the guidelines in Section .0201 (c), the heart of why
North Carolina communities and counties need to prepare land use plans
is described.
.0201 Introduction
(c) Local governments, through the land use planning process,
address issues and adopt policies that guide the development.
of their community. Many decisions affecting development are
made by other levels of governments, and.local policies must
take account of and coincide with established state and
federal policies. Most decisions, however, are primarily of
local concern. By carefully and explicitly addressing these
issues, other levels of government will follow local policies
that deal with these issues. Policies which consider the type
of development to be encouraged, the density and patterns of
development, and the methods of providing beach access are
examples of these local policy decisions.
1

More significant even than the "requirement" that communities
prepare Land Use Plans every five years is the uses that are made
of the local plans once they have been completed. In the publication,
The Impact of State Regulation of Coastal Land in North Carolina,
prepared by Charles D. Liner of the Institute of Government at Chapel
Hill, he noted the impact of local land use plans on state and
federal decisions:
...Land -use plans have a potential effect on (local) land use
because:
(a) CAMA Permits may not be issued for development that is
inconsistent with land -use plans (since CAMA permits are
required'only in AECs, this effect is limited to land
within AECs).
(b) Local ordinances and regulations that apply to AECs must be
consistent with the land -use plan; local ordinances and
regulations affecting land outside AECs are subject to
review by the Coastal Resources Commission, which is
authorized to recommend modifications to the local government.
(c) Federal actions involving grants, licenses, permits, and
development projects must be consistent with local land -
use plans, as required by Section 307 of the FCZMA.
(d) In accordance with the Governor's Executive Order Number 15,
certain state agency actions and policies must be consistent
with 14nd-use plans.
THE STUDY AREA
Burgaw is situated near the geographic center of Pender County,
which is located on the Atlantic coast approximately 60 miles north
of the North Carolina - South Carolina border. The Burgaw study area
includes about 1,300 acres located within the Town Limits and 5,600 acres
in Burgaw's extraterritorial planning jurisdiction, for a total of
10.8 square miles.
CITIZEN PARTICIPATION
Citizen participation is an important aspect of any community planning
effort, but especially for a land use plan since it can have many
effects on an individual's use of his land.
During the update of Burgaw's land use plan the Burgaw Planning
Board was the primary vehicle for citizen input. Monthly meetings
with the Planning Board provided the Board and the general public,
with an opportunity to comment on the plan as it was being developed.
Two public information meetings, preceded by advertisements in the local
newspapre, were conducted by the Planning Board for the purpose of
securing input,.in'development of the plan. At several of these meetings,
including the public information meetings, the issues raised by the CAMA
guidelines and additional issues raised during the meetings were
discussed and analyzed until the Planning Board was satisfied that a
workable solution had been reached. The Town Commissioners also held a
public information meeting and a summary of the plan was published in the
local newspaper.
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2

As part of the preparation of Burgaw's 1976 CAMA Plan, a survey
questionnaire was mailed to most of the households in Burgaw. A
majority of the survey respondents favored a slight population increase
while about one-third were in favor of a large population increase.
Expenditure of more public funds for industrial development was most
favored, followed by parks and recreation facilities, water and sewer
facilities, fire and police protection, and storm drainage. When
asked what areas should be preserved or protected in their natural
state, the most frequent response was the Courthouse square, the
hospital, the cemetery, and old homes.
Although five years have passed since the survey was conducted,
it is felt that the results still represent the viewpoint of most
of Burgaw's residents. The fact that the public's attitude has
not changed measurably since 1976 was demonstrated throughout
the plan update process. When existing policies were reviewed,
the primary concern was to resolve issues which arose as a result
of implementation of the 1976 Plan. For example, the Planning Board
was especially concerned about "fine tuning" the present Burgaw
Zoning Ordinance, which was drafted and adopted based on objectives
in the 1976 Plan. The attitudes about man-made hazards, mobile
homes, strip development, non -conforming uses, and other issues have
not necessarily changed, it is just that the issues and their
alternative solutions are better understood.
3

CHAPTER II
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INTRODUCTION
An important step in the CAMA planning process involves analyzing
the past and present conditions in Burgaw in order to gain a better
understanding of the changes Burgaw has experienced since the 1976 CAMA
Plan. This will provide an indication of the direction Burgaw is likely
to take in the future.
As will be seen this chapter provides an analysis of the past and
present population, economy, and land use in Burgaw. From this analysis
it will be evident there have been few changes over the last few years,
but that the groundwork has been laid for more significant changes in
the near future.
In addition, this chapter includes a listing and brief discussion
of the current plans, policies, and regulations that have an impact on
land use in Burgaw's planning jurisdiction. An examination of these
plans, policies, and regulations will provide some indication of why
Burgaw exists as it does today as well as indicating which direction
Burgaw will take in the future.
The population of the Town of Burgaw has been slowly declining
since 1960. But the population of Pender County and Burgaw Township
has shown increases in the last ten years. (See Table 1.)
Table 1 ... Population Change for the Town of Burgaw, Burgaw Township,
and Pender County, 1950-1980
YEAR
BURGAW
% CHANGE
BURGAW TOWNSHIP
% CHANGE
PENDER CO.
% CHANGE
1950
1,613
4,068
18,423
1960
1,750
+8.5%
4,135
+1.6%
18,508
+0.5%
1970
1,744
-0.3%
4,422
+6.9%
18,149
-1.9%
1980*
1,570
-10.0%
4,940
+12%
22,107
+22%
Source: U.S. Census 1950-1980
*1980 figures are the first final counts and are subject to
revision.
4

The decline in Burgaw's population can be almost entirely
attributed to the following factors: 1) movement of Town.residents
into the County, particularly Burgaw Township, 2) a decrease in the
average number of persons per household from 3.11 in 1970 to 2.63
in 1980, 3) a declining birth rate, 4) and migration of Town residents
to other counties and cities. Most of the population decline stems
from the decrease in household size and the declining birth rate.
While these forces have been working to decrease Burgaw's
population, there are other forces that have prevented the population
decline from being so severe. This is exhibited by the substantial
amount of growth that has occurred in and around Burgaw. For
example, since 1970 the number of housing units increased by 10%
in Burgaw and by 29% in Burgaw Township (see Tables 2,3,4 & 5).
Many of the 1,816 housing units in Burgaw Township are within the
Town of Burgaw's Planning Area. Actually there are 642 housing
units in Burgaw and 371 housing units in Burgaw's extraterritorial
jurisdiction. A substantial number of the housing units in the
extraterritorial jurisdiction are new single family dwellings and
mobile homes which are occupied by former Town residents.
On a countywide basis there was an even greater amount of growth
in housing units, especially in the coastal areas where a large
seasonal population is evident. Burgaw has,no seasonal population and
remains unaffected by seasonal population in the coastal area.
Regrettably, the 1980 Census information on the age, race and
sex characteristics of the population are not yet available.
As reported in the 1976 CAMA Plan, Burgaw's population was
concentrated in the middle and elderly age groupings. Since
Burgaw's birth rate has not been increasing and there has been
no great influx of people through in -migration, one must assume
the age characteristics remain similar to those reported in the
1976 plan. The same assumption holds true for the sex and race
characteristics reported in the 1976 plan when the ratio of
males to females was 49 to 51 and the ratio of blacks to whites
was 44 to 56.
Future population trends and characteristics will be discussed
in the chapter entitled "Estimated Demand".
Table 2... Housing Change for the Town of Burgaw, Burgaw Township,
and Pender County, 1970-1980
YEAR TOWN
1970 584
1980 642
HOUSING UNITS HOUSEHOLD SIZE
TOWNSHIP COUNTY TOWN
1,413
1,816
% Change +10% +29%
6,758 3.11
10,397 2.63
+54% -15%
TOWNSHIP COUNTY
3.29 3.42
2.90 2.92
-12% -15%
•
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Table 3...
Housing
Change for Towns in
Pender
County, 1970-1980
HOUSING UNITS
HOUSEHOLD SIZE
TOWNS
1970
1980*
% Change
1970
1980
Burgaw
584
642
+10%
3.11
2.63
Atkinson
124
137
+10%
2.98
2.29
Topsail
471
805
+71%
2.41
2.06
Surf City
255
1,037
+307%
2.81
2.20.
Watha
58
71
+22%
3.35
3.03
Source: U.S. Census
*1980 figures are the first final count and are subject
to revision.
Table 4... Population Change For Towns in Pender County, 1970-1980
TOWNS
1970
1980*
Change
Burgaw
1,744
1,570
-10%
Atkinson
1,023
996
-3%
Topsail
108
245
+127%
Surf City
166
390
+135%
Watha
181
185
+2%
Source: U.S. Census
*1980 figures are the first final count and are subject
to revision.
Table 5-Population Change for Pender County, 1960-1980
TOWNSHIP
1960
1970
1980*
% Change, 70-80
Burgaw
4,135
4,422
4,940
+11.7%
Canetuck
466
256
330
+28.9%
Caswell
1,171
1,023
996
-2.6%
Columbia
1,691
1,542
1,740
+12.8%
Grady
1,148
1,264
1,360
+7.6%
Holly
1,579
1,373
1,684
+22.7%
Long Creek
1,045
886
1,158
+30.7%
Rocky Point
1,728
1,616
1,941
+20.1%
Topsail
2,431
2,860
4,515
+57.9%
Union
3,114
2,907
3,443
+18.4%
TOTALS
18,508
18,149
22,107
+21.8%
Source: U.S. Census
*1980 figures are the first final count and. are subject
to revision.
6

ECONOMY
The current economic state in Burgaw and Pender County is very
similar to the economy when the 1976 CAMA Plan was prepared. The
rational economy is also in a situation similar to when the previous
plan was done.
Because the Burgaw economy is affected by a number of forces,
many of which are not local, this economic analysis will focus
on employment, retail sales, and income data compiled on a county -wide
basis. One should also consider Burgaw has historically been the
county's economic center, although job opportunities in neighboring
counties and increased mobility have changed this somewhat over the
past 20 years.
F.MPT.0VMF.NT
Employment of Pender County residents has been steadily increasing
over the last ten years, with the exception of the recession years in
the mid-70's. Table 6 shows employment estimates by industry for the
years 1970, 1975 and 1979. From this table one can see that all
employment categories have experienced increases except the
agricultural category. The decrease in agricultural employment
is related to mechanization of farm operations and is in keeping
with statewide trends.
Since 1976 there has been one industry to begin operation in
Pender County, the Coastal Pallet Company of Hampstead. Myers Craft
Manufacturing of Burgaw is presently undertaking an expansion of their
existing plant and there have been employee expansions at several
other manufacturers since 1976. Table 7 provides a listing of the
manufacturing firms in Pender County and their respective employment
ranges. -his luting shows the close relationship between Pender County
industries and agricultural -forest production.
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PENDER COUNTY
Table 6... ANNUAL AVERAGE LABOR FORCE ESTIMATES 1970, 1975 & 1979
1970
1975
1979
CIVILIAN LABOR FORCE/1
6,960
7,190
8,940
UNEMPLOYMENT, TOTAL
460
950
560
Rate of Unemployment
6.6
13.2
6.3
w EMPLOYMENT, TOTAL
6,500
6,240
8,380
Agricultural Employment
1,140
1,030
760
Nonag. Wage & Salary Employ.
4,960
4,850
7,110
All Other Nonag. Employment/2
400
360
510
INDUSTRY EMPLOYMENT BY PLACE OF WORK/3
Manufacturing 580
290
710
Food 60
60
60
Lumber and Wood 120
60
130
Other Manufacturing/4 400
170
520
Nonmanufacturing 1,910
2,160
2,930
Construction 60
110
140
Trans., Comm., & P. Util. 90
80
100
Trade 540
770
1,150
Fin., Ins., & Real Estate 30
70
70
Service 250
230
370
Government 900
890
1,080
Other Nonmanufacturing/5 40
10
20
1/ Data based on place of residence.
2/ Includes Nonagricultural self-employed workers,
unpaid family workers,
and domestic workers in private households.
3/ Industry segments are not additive to the
"Nonag. Wage & Salary Employ."
shown under "CIVILIAN LABOR FORCE" since
labor force
data are by "Place
of Residence."
4/ Includes Textiles; Apparel; Furniture; Printing; Chemicals; Stone, Clay &
Glass; Elec. Machinery; Instruments; and
Misc. Mfg.
5/ Includes Agricultural Services and Fisheries.
Source: N.C. Employment Security Commission
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Table 7
PENDER COUNTY
Manufacturing Firms, 1980
NAME
LOCATION
PRODUCT
American Foods,
Inc.
Burgaw
Packing fresh fruits
Batson Farmers
Exchange
Burgaw
Chickens, dairy and
hog feed
Burgaw Lumber
Company
Rocky Point
dimension and chips
C.H. Clark & Son,
Inc.
Rocky Point
sausage and liver
pudding
Electronic Com-
ponents Corp.
Burgaw
transformers
Filtro Pipes
Burgaw
tobacco smoking pipes
H & P Wood
Turning, Inc.
Rocky Point
wood products
Holt Hosiery
Mills, Inc.
Willard
hosiery
Lewis Sausage Co.
Burgaw
sausage products, smoked
sausage links
Murphy Brothers
Milling Co.
Burgaw
feed and grain
Myers Craft Manu-
facturing Co.
Burgaw
wood stretched strips,
stretched art canvas, &
and wood artist easels
Oxford of Burgaw
Burgaw
women's sportswear,
jackets
Pender Lumber Co.
Burgaw
lumber
Pender Packing
Company, Inc.
Rocky Point
liver pudding, sausage,
and bar-b-que
Rowe Fiberglass
Corporation
Burgaw
fiberglass showers, tubs,
and camper tops
EMPLOYMENT RANGE
50-99
1-4
20-49
20-49
100-249
5-9
10-19
50-99
10-19
5-9
20-49
10-19
10-19
5-9
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(CONTINUED) Manufacturing Firms, 1980 Pender County
Southern Printing
Company Burgaw commercial printing
Williams Lumber
Company Burgaw plywood, roof decking
Source: 1979-1980 Directory of North Carolina Manufacturing Firms,
N.C. Dept. of Commerce
OTHER PENDER COUNTY MANUFACTURING FIRMS
NAME
Rocky Point Milling
Nunalee Lumber
Carlyle Poultry and Egg
J.H. Lee Seafood
Atlantic Seafood
Carolina Blueberry Cooperative
True Blue Blueberry Cooperative
Leslie Lee Seafood
Rivenbark Cabinet Shop
Langston Cabinet Shop
Wood Treatment Equipment Company
Wood Treaters
Burgaw Veneer Company
Atlantic Limestone Company
Coastal Pallet Company
Source: Burgaw Planning Board
LOCATION
Rocky Point
Rocky Point
Burgaw
Hampstead
Hampstead
Burgaw
Burgaw
Topsail
Burgaw
Rocky Point
Rocky Point
Rocky Point
Burgaw
Maple Hill
Hampstead
1-4
5-9
10

It is important to remember that the civilian labor force
figures provided in Table 6 are based on the place of residence
of the employee. The employment information for manufacturing and
non -manufacturing are based on the place of work.
This information makes it clear there is a broad difference
in the number of Pender County residents actually working inside
of the County. In fact, according to the 1976 plan, 46% of
Pender County workers commuted out of the county for employment.
More than 50% of these commuters worked in New Hanover County.
The General Electric plant in New Hanover County is perhaps the
largest of the outside employment draws.
A large out -commuting work force does have an effect on
Burgaw's economy since people spend a significant portion of their
income near the place of employment. It also indicates Burgaw
and Pender County do not have enough jobs to meet the employment needs
of their residents. However, it must also be noted that employment
opportunities in surrounding counties have attracted new residents
to Burgaw and Pender County.
Retail Sales
Pender County retail sales have increased 138% from 1970 to
1979 (see Table 8). But in constant dollars (a method of injecting
the national inflation rate into the dollar value) the increase
in retail sales amounts to 16%. Increasing retail sales indicates
expansion in the retail sector of the economy and supports
the contention that the county's population, employment, and
income are increasing.
The amount of retail growth occurring in the Burgaw Planning
Area cannot be determined from the available information. However,
there have been several new retail establishments opened in the past
few years in the Planning Area, most of which have located on U.S. 117
By -Pass. But when retail sales are considered in view of the
population trends of Burgaw and the County, one would conclude most
of the retail sales growth has taken place in the coastal vicinity
where a majority of the County's population increase occurred in the
last ten years.
The market area of Burgaw and Pender County is also an
important consideration as far as retail sales. Burgaw and
Pender County residents frequently travel to Wilmington, Jacksonville,
and to a lesser extent Wallace for retail shopping. On the other
hand, few retail customers travel from outside of the Burgaw area
to shop in Burgaw.
11

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Table 8... Retail Sales for Pender County, 1970 - 1979
Year
1970-71
1971-72
1972-73
1973-74
1974-75
1975-76
1976-77
1977-78
1978-79
Dollar Volume
% Increase Constant Dollar Value % Increase
$20,432,672
$17,102,146
24,042,981
18%
27,487,031
14%
33,853,823
21%
36,536,356
8%
40,346,464
10%
44,:286,065
10%
44,747,643
1%
48,597,876
9% 19,827,933 16%
Source: N.C. Department of Revenue
U.S. Department of Labor, Consumer Price Index
Income
The 1976 CAMA Plan pointed out a disparity in income between
Pender County and North Carolina as a whole. It also predicted the
gap in incomes would begin dropping in the near future. According
to 1975 income estimates prepared by the N.C. Department of
Administration the difference in incomes has decreased. In 1970,
per capita income for the State ($2,492) was 45% greater than that of
Pender County ($1,713). By 1975 the difference had declined to
35% as Pender County per capita income rose to $3,646 and North
Carolina to $4,922.
Another indicator of Pender County's income relative to the
State is the number of persons receiving public assistance.
(Public assistance includes the following programs: Aid to Families
with Dependent Children, Aid to the Aged, Aid to the Disabled,
and Aid to the Blind). The "Profile of North Carolina Counties, 1978"
showed 8.5% of Pender County residents received public assistance,
whereas only 6.4% of the State's population received public assistance.
Again this indicates the Burgaw area has proportionately more
persons with low income than the State. Low income is directly
related to the small proportion of employment in the manufacturing
field.
12

EXISTING LAND USE SURVEY AND ANALYSIS
Introduction
This section provides a discussion of nine different land use
classifications, including: residential; commercial; industrial;
transportation, communication and utilities (TCU); government and
institutional; cultural, entertainment and recreational; agricultural
and woodlands; and undeveloped. The location and types of land use in
the Burgaw Planning Area were identified by a windshield survey in
October, 1980. Exhibit 1, the land use change map, depicts the locations
where land use has changed from that which was shown on the 1976 map.
The land use of the areas identified on the map changed from undeveloped
(meaning agricultural, woodland, or unimproved) to either residential,
commercial, or public use.
Table 9 contains a breakdown of the number of acres by land use
category according to the results of the 1980 land use survey and the
survey results included in the 1976 CAMA Plan. The acreages for 1980
land use were determined by adding the acreage of development since 1975
to the land use acreages listed in the 1976 CAMA Plan.
Prior to conducting the windshield survey, the planning area was
separated into four quadrants for data collection and analysis purposes.
As the survey was being conducted it became apparent that each quadrant
represented a homogeneous residential neighborhood, in that housing types
and conditions were fairly uniform within each respective quadrant. The
quadrant boundaries are depicted on the existing land use map and are
described as follows: NE Quadrant, N. Wright Street and Horse Branch
Road to the West and E. Wilmington Street to the South; SE Quadrant,
S. Wright Street and Dickinson Street to the West and E. Wilmington Street
to the North; SW Quadrant, S. Wright Street and Dickinson Street to the
West and W. Wilmington Street to the North; NW Quadrant, N. Wright Street
to Horse Branch Road to the West and W. Wilmington Street to the South.
These streets are the North -South and East-West axis which the Town
uses for assigning addresses.
The survey results indicate recent urban development has been evenly
distributed between Burgaw and its extraterritorial jurisdiction.
It also shows that development trends identified in the 1976 CAMA Plan
have been continuing; such as strip development, low density sprawl, and
a slow growth rate.
Residential Land Use
The residential land use category includes single family dwellings,
mobile homes, and multi -family dwellings. Table 9 indicates residential
land use increased in acreage more than any other classification since
the 1976 CAMA Plan was prepared. This is substantiated by the 1980 Census
of Burgaw which showed an increase in housing units from 584 in 1970 to
642, or a 10% increase.
Residential land uses occupy 29% of the total developed acreage with-
in the Planning Area. The survey revealed only three (3) duplex and one
(1) quadplex apartment building, for a total of ten (10) multi -family
housing units. A total of 125 mobile homes were counted and the remaining
898 housing units within the Planning Area consist of single family homes.
13

CAMA
'•\ LAND
© USE
PLAN
UPDATE
-1981-
� IBURGAW, N.C.
117
y
o�
00000�
o00000000 � �
_ I 400
Wr ;
N7 Not*- Shia map Was [laaaced in part With [ada
��, [rat the national Ocala and httoepharle
ldnlaletrat.ioa aad the State of North
Carolina t►ra O the OL[laa of Ooeetal
Der"Weat of YWral
lleeoaroM ad Oae�alq OSeeloprat.
Prepared by. Ferran Planning Group
LAND USE CHANGES
1976 — 1981
Residential yr'+<<` +�a
Public
Commercial

Table 9... Existing Land Use Acreages
Bu rgaw
Land Use Category
1975
1980
Residential.
163.1
178.1
Commercial
27.3
34.6
Industrial
13.4
13.4
TCU
200.0
205.0
Govt. & Inst.
76.8
80.8
Cult, Ent. & Rec.
11.2
11.2
Total Urban
Extraterritorial Jurisdiction % of Total
1975
1980
Developed
77.4
98.7
29.6%
9.6
12.1
5.0%
15.1
15.1
3.0%
171.2
173.2
40.0%
17.3
17.8
10.4%
95.5
95.5
11.4%
Developed
491.8
523.1
386.1
412.4
Agricultural
210.0
207.8
2462.3
2650.1
Woodland
136.8
134.6
2280.5
2468.3
Undeveloped
487.3
460.4
452.0
50.0
Total
1325.9
1325.9
5580.8
5580.8
100.0%
Source: CAMA Land Use Plan, 1976, Burgaw; N.C. Department of Natural
and Economic Resources, Windshield Survey, 8/75; Ferren Planning
Group, Windshield Survey, 10/80;
During the land use survey subjective ratings of housing conditions
were made. Each housing unit (excluding mobile homes) was rated
with standard, deteriorated, or dilapidated. Dwellings were rated
standard if they were not in need of repair, or if only minor repair
was necessary; such as a need for paint, a broken window frame, or a
broken gutter. A deteriorated rating was given where dwellings were
found to be in need of major repairs; like replacing the foundation,
a wall, or a combination of many minor repairs. A dilapidated dwelling
included those in need of several major repairs. Frequently, they were
uninhabited and/or uninhabitable. A listing of the number and condition
of housing units by planning quadrant is provided in Table 10.
The overall condition of the housing units is very good, as only
32 dwelling units, or 4% of the total number in the Planning Area are
classified as dilapidated. Inside the city limits 48% of the deteriorated
and dilapidated dwellings are located in the southwestern quadrant. The
northwestern quadrant exhibited the second highest incidence (22% of the total
number) of substandard dwellings inside the Town. North Wright Street, the
boundary between the northwestern and northeastern quadrants, also had a high
concentration of substandard dwellings (48%). In the extraterritorial
15

Table 10—Housing Survey
Housing units
Single
Multi-
Mobile
City
Family
Family
Homes*
NE Quadrant
167
2
5
SE Quadrant
155
6
0
SW Quadrant
158
0
10
NW Quadrant
133
2
9
City Totals
613
10
24
Extra-
territorial
Jurisdiction
Housing
Conditions
Standard Deteriorated Dilapidated
152
16
1
152
9
0
117
31
10
116
15
4
537
71
15
NE Quadrant
108
0
23
88
15
5
SE Quadrant
47
0
34
33
5
9
SW Quadrant
33
0
2
30
3
0
NW Quadrant
82
0
42
76
3
3
Extra-
territorial
Jurisdiction
Totals
270
0
101
227
26
17
Planning
Area Totals
883
10
125
764
97
32
Source: Ferren Planning Group, Windshield Survey 10/80;
* Mobile homes are not included in the counts for "single family"
or in the conditions survey.
16

jurisdiction the substandard dwellings were concentrated in the two
eastern quadrants, primarily on unpaved roads.
Mobile homes are noticeably concentrated in the two western quadrants
inside the city. In the extraterritorial jurisdiction, mobile homes
are evenly dispersed except that none are located in the southwestern quadrant.
All mobile homes are on individual lots with the exception of several
relatively small mobile home parks. The practice of permitting mobile homes
on individual lots next to a conventional dwelling can devalue the
conventional dwelling and/or surrounding undeveloped land because the value
of a typical mobile home is much less than that of a conventional home.
Often this creates a situation where the conventional homeowner is
reluctant to maintain his home in standard condition because he may not
receive a return equal to his investment.
Another issue the Town should address is the increasing amount of
strip residential development along the highways and state roads. A
substantial number of new dwelling units have been constructed on lots
adjacent to state highways and roads, particularly in the extraterritorial
jurisdiction. Strip development of this nature decreases the traffic
carrying capacity and safety of the highway, landlocks adjoining tracts of
land, and increases the cost of delivering public services.
Some of Burgaw's residences have a problem with incompatible neighbors;
for example, a manufacturing operation, service station, retail store, or
in some cases home occupations. Instances of incompatible land use are
most prevalent on the fringes of the downtown where homes surround the
central business district. Each time a new or expanding business locates
in this fringe area, it results in more encroachment on the residential
uses. Many of the state roads and highways also have instances of
residential and non-residential compatibility problems, especially
Highway 117 Bypass and East Wilmington Street (Highway 53). The
hospital and electric utility operation on East Fremont Street are other
examples of incompatible land use encroaching on a residential
neighborhood. Over an extended"period of time, situations such as this
sometimes lead to poor housing conditions since the homeowner and/or tenant
no longer find the residence desirable because of the traffic, noise,
trash, and unsightliness often generated by the non-residential neighbor.
Residents frequently find it useless to continue investing money in an
unsatisfactory home, so it is allowed to deteriorate.
Although a large number of homes have been built in strip development
fashion since 1976, there has also been a substantial amount of development
occuring in subdivisions, particularly on the East side of Town. Most
of this subdivision development occurred in the area bounded by Fremont
Street, Bickett Street, U.S. 117 Business and Bennett Street. In all
likelihood, the undeveloped lots and tracts in this neighborhood will
continue to be one of the principle residential growth areas in the
Planning Area. And unless subdivision and zoning policies are changed,
strip residential development will continue along the major roads and
highways.
17

Commercial Land Use
Included in .the commercial classification are uses such as professional
offices, retail stores, services, and restaurants. Commercial land uses
are presently concentrated in the downtown and on U.S. 117 By -Pass. Others
are located along state roads and highways and a few are located within
residential neighborhoods. Commercial land uses occupy 5 % of the
developed land in the planning area.
Several businesses have been constructed on U.S. 117 By -Pass since
the 1976 CAMA Plan and the By -Pass is certainly desirable for additional
development from the retailer's viewpoint. But continued strip development
on the By -Pass will decrease the carrying capacity of that road and increase
the probability of accidents.
The mixture of commercial land uses with residential land uses seems
to be a problem in several areas of Town, as was mentioned in the discussion
of residential land use. Frequently, the long term effect of mixed land
uses is deteriorated housing conditions and struggling businesses.
Many businesses cannot survive in a residential area because the
location is often obscure, and at the same time the nuisances of traffic,
parking and noise associated with the business make the surrounding
environment undesirable for a home.
Industrial Land Use
The industrial land use category amounts to only 3 % of the developed
land in the planning area. Industrial land uses are not concentrated in
any one area. Most are located along the major highways, state roads, or the
railroad. In fact, all the industrial uses are located directly adjacent
to or within a block of Highway 117 By -Pass, West Wilmington Street
Extended (Highway 53), or the railroad.
As was mentioned earlier in the economy section, there have not been
any new industrial operations in Burgaw's planning jurisdiction since
the previous CAMA plan was prepared. But the Pender Progress Corporation, an
industrial development authority chartered by the County Commissioners,
recently acquired a 50 acre tract of land for development as an industrial
park. The site has direct access to Dickson Street, the railroad, and
S.R. 1413 and it also abuts the Burgaw Junior High School property.
Transportation, Communication, and Utilities
This category (TCU) has the largest amount of developed land use within
the planning jurisdiction; representing 40% of all developed land. TCU
includes streets, electric utilities, radio stations, and the telephone
company among others. Most of the acreage in this classification is street
or highway rights -of -way.
The street and highway network in Burgaw is not overburdened at present
but as the Town grows, close attention should be directed to the location
of additional major streets and the interconnection of streets in new
subdivisions. Dead-end streets and subdivision development without
interconnection of streets will create traffic circulation problems as the
amount of urban development increases. Strip development adjacent to major
streets is an issue of importance and has been discussed in other categories.
18

Burgaw has been able to reduce the amount of unpaved streets over
the last few years in conjunction with the County's Community Development
Block Grant Program and with Powell Bill Funds. On the other hand,
new subdivision streets in many areas do not have curb and gutter,
which will result in increased maintenance costs for the Town.
A discussion of the use and capacity of the Town's utilities and
roads is included in the chapter on "Constraints to Development".
Government and Institutional -
Schools, churches, government offices, and cemeteries are examples
of land uses within this classification. Government and institutional
land uses occupy 10.4% of the total developed land, the fourth largest
amount in the planning area. The major addition to this category since
1976 is the County's new office building and law enforcement center.
Cultural, Entertainment, and Recreational
The golf course on East Wilmington Street and Pender Memorial Park
on South Smith Street were the only land uses within Burgaw's planning
jurisdiction included in this category. Recreation facilities on
school premises are available but are not included in this classification.
Agricultural and Woodland
This category includes active agricultural lands and tracts of wooded
land, but not vacant wooded lots. The agricultural and woodland
classification has more acreage than any other, 74% of the total. In
the past 10 to 15 years a significant amount of land in this category has been
developed for urban purposes, especially in the extraterritorial jurisdiction.
Land in this classification is likely to continue experiencing change during
the planning period. But land is one of Pender County's more abundant
resources since the county contains approximately 460,000 acres, the
state's seventh largest county. According to the 1976 Pender County
Land Use Plan, 62,000 acres are in cropland and 370,000 acres are in
woodlands.
Undeveloped
The undeveloped classification includes vacant, unimproved land
located in an urban surrounding. Of the total land area inside the Town
limits, 35% or 460.4 acres are within this category. Most of the land
classified as undeveloped is located within the town limits and has
access to existing public facilities. Because of the availability of
public facilities it would be advantageous to the Town if this land were
developed before public facilities are extended into other areas.
The Osgood Branch is the principal drainageway in Burgaw and it has
a considerable amount of undeveloped land adjacent to its banks. The
probability of flooding adjoining lands will increase as urban development
continues in the stream's drainage basin. Burgaw residents stated the stream
overflows its banks occasionally but that it does not result in hazard
or damage to property. Unfortunately, flood plain mapping is not available,
which makes development on land adjoining the stream a risky venture unless
structures are well setback from the stream.
19

Vacant lots are included in the undeveloped classification and a
number of them are in need of a clean-up because of a possible health
hazard from debris, rodents, and a couple of abandoned structures.
One particular instance that needs prompt attention is an abandoned,
dilapidated structure on the southern end of Vann Street.
The land use survey for the 1976 Plan listed 452 acres of undeveloped
land in the extraterritorial jurisdiction, but only 5 acres were
included on the 1976 existing land use map. Thus,it was not possible
to compare undeveloped land in 1980 to that in 1976 since the 1976
existing land use map was the only measure for comparison.
The 1980 land use survey identified 50 acres of undeveloped land
in the extraterritorial jurisdiciton; which is a sizeable difference
from the 452 acres listed in 1976. Again, one cannot explain why there
is such a large difference because undeveloped land in the extraterritorial
jurisdiction was not identified in 1976. But since the amount of urban
development has increased by only 28.3 acres in the extraterritorial
jurisdiction, one must assume that most of the land previously classified
as undeveloped is now classified woodland or agricultural.
Nevertheless, the point to be made here is that urban development
increased from 877.9 to 935.5 acres since 1976, which leaves 5971.2
acres, or 87% of Burgaw's jurisdiction undeveloped. With such a small
amount of land being converted to urban use, the loss of agricultural
and forestland is not a point of major concern to Burgaw.
20

CURRENT PLANS, POLICIES AND REGULATIONS
Listed below are the plans, policies and regulations which are
presently in effect within Burgaw's planning jurisdiction. Each of
the existing plans were reviewed in order to prevent duplication of
effort during the update of this plan. The plans also serve as a
source of information and as a base from which change in policies and
physical conditions can be measured. An examination of the current
policies and regulations will determine whether implementation has been
effective as well as indicating where revisions are needed. It is the
purpose then of this section to review existing plans, policies and
regulations which have a direct or indirect impact on land use in Burgaw.
Current Plans
"201" Wastewater Management Plan - This plan was prepared in 1977 and
adopted by the Town Board in the same year. It establishes a management
and improvement program for Burgaw's sanitary sewer facilities for a
20 year planning period.
It was found that the Town's treatment plant was in good working
order but occasionally stormwater inflow and groundwater infiltration
overload the capacity of the treatment plant, resulting in untreated
effluent being discharged directly into the receiving stream. The plan also
states that insufficient stream flow in the Osgood Branch, which is the
Town's receiving stream is leading to excess concentrations of treated
wastewater in the stream flow.
Four alternatives were considered to solve these problems with the
recommended solution being a correction of the stormwater inflow and
relocation of the effluent discharge point to the Northeast Cape Fear
River.
Burgaw has moved quickly to implement the program, as the inflow
problems have been corrected and relocation of the effluent discharge
has begun.
The "201" plan concluded that correction of the inflow problem
would.provide the plant with sufficient capacity to meet demand projected
within the planning period. Maximum population during the 20 year
planning period was projected at 2,250, with a reserve of 16,900 gallons
per day for anticipated but unprojected needs.
Land Use Plan - Burgaw's current land use plan was prepared in 1975
and adopted in 1976 under the guidelines of the 1974 Coastal Area
Management Act. It includes population, economic and land use data
analysis, statements of land use policy and means for policy implementation,
and a land classification map.
The principal objectives and policies approved in this plan, and
their implementation status, are listed as follows:
1) Employ a town manager to direct implementation of plans and programs.
The Town Board has not budgeted money for this position.
2) Employ a building inspector to enforce the building code, zoning ordinance,
and subdivision regulations. A building inspector was hired and given
21

responsibility for enforcing the building code and zoning ordinance.
3) Encourage development within the Town limits and avoid urban sprawl.
Development has been encouraged inside the Town by providing or
requiring urban services (paved streets, water, sewer, fire, police)
for new development and by permitting higher density development.
On the other hand attempts to avoid sprawl have been negligible, as
present land use controls outside the Town limits allow residential
development on 20,000 square foot lots, plus water service has been
extended to some areas outside of Town.
4) Establish a zoning district which permits mobile homes on individual
lots within a specified area. Burgaw's current zoning ordinance
permits mobile homes on individual lots in the R-20 zoning district.
The entire extraterritorial jurisdiction is zoned,.R-20,
with the exception of two B-2 and one 0 & I districts on Highway 117
Business and Bypass. There are no areas within the Town limits
where mobile homes on individual lots are permitted.
5) Establish an industrial park. The Pender Progress Corporation, an
industrial development authority established by the County Commissioners,
purchased a 50-acre tract located on South Dickson Street and S.R. 1412.
Interior streets and water and sewer services have not been installed
on the site yet.
6) Adopt a thoroughfare plan with the N.C. Department of Transportation.
No action has been taken towards preparing a thoroughfare plan.
7) Adopt subdivision regulations. Burgaw adopted a subdivision
ordinance on November 11, 1975.
On the whole Burgaw has been successful in implementing the goals
and objectives which were adopted in the 1976 Land Use Plan.
Downtown Revitalization Study - Burgaw contracted with the Cape
Fear Council of Governments for preparation of this plan. It was completed
in 1979 with the purpose of developing a strategy for improving the
downtown. The principal conclusions of the plan were that a substantial
amount of underutilized land and building space exists in the downtown
and a number of activities formerly in the downtown are now moving to
locations along major traffic arteries.
Citizen input was obtained by a survey questionnaire distributed
through the schools and to downtown merchants. Most of the survey
respondents indicated they shop in Burgaw and Wilmington on a regular
basis. Downtown Burgaw was chosen as a shopping place primarily
because of convenience. Respondents found absence of variety and
unattractiveness to be the major shortcomings of downtown Burgaw.
The principal objectives and implementation strategies included
improving the convenience and physical appearance and establishing an
organization to promote the interests of the downtown.
Current Policies
Water and Sewer System Policies - Burgaw has an adopted policy whereby
water and sewer services are extended to subdivisions that are located within
the Town limits at the Town's expense. Another policy requires connections
to the water and sewer system when a development is located within 300
feet of existing mains. In addition to those policies, Burgaw's subdivision
regulations require the developer to install water and sewer services in
subdivisions with lot sizes less than 20,000 square feet. Aside from these
22

policies, decisions relative to provision of water and sewer service are
handled on a case -by -case basis.
Current Regulations
Building Code - The North Carolina State Building Code, Plumbing Code,
Heating and Air Conditioning Code, and Electrical Code have been adopted
by Burgaw. The Building Inspector is responsible for enforcing all of
these codes.
Zoning Ordinance - Burgaw's zoning ordinance was prepared in 1976
by the North Carolina Department of Natural Resources and Community
Development and adopted in September 1977. The ordinance contains
residential, office and institutional, business, industrial and flood
plain zoning districts. All of the districts are included on the zoning
map except for the flood plain zoning district which is omitted because
flood plain mapping is not available for Burgaw. In addition to building
code enforcement, the Building Inspector is responsible for enforcing
the zoning ordinance. _
On initial examination of the ordinance several topics that deserve
further study were discovered. First one could see that a number of
nonconforming uses are located in the extraterritorial jurisdiction.
Many of the nonconforming uses are businesses or industries located in
an R-20 zoning district, principally on Horse Branch Road, N.C. 53 North
and South, S.R. 1332, and Highway 117 South. Secondly with the exception
of three small areas the entire extraterritorial jurisdiction is zoned
R-20, a district which permits mobile homes and conventional dwellings on
individual lots adjacent to one another. This zoning is contrary to the
stated objective of "avoiding urban sprawl" which was adopted in the 1976
CAMA Plan. Lastly, although a number of zoning map changes have been
approved by the Town Board since the ordinance was adopted, none of the
zone changes have been made to the Town's official zoning map.
Generally speaking a zoning ordinance should have a comprehensive over-
haul every five years. With that in mind plus the fact that new land use
policies will be adopted as a part of this update, Burgaw should pursue
a complete update of their zoning ordinance.
Subdivision Regulations - Like the zoning ordinance and land use
plan, Burgawls subdivision regulations were prepared with assistance from
the Department of Natural Resources and Community Development. The sub
regs were adopted in 1977, but responsibility for enforcement and
administration of the ordinance has not been assigned. The Planning Board ,
and Town Commissioners have been reviewing subdivision plats since the
ordinance was adopted.
The subdivision ordinance provides Burgaw with a means for planning
land division and street patterns. It requires subdivision development
to comply with any other adopted plans or policies of Burgaw and to give
consideration to protection of natural resources. Installation of streets,
sidewalks, storm drainage, and water and sewer services are mandated
by the subdivision ordinance.
Pender County Wastewater Disposal Ordinance - This ordinance applies
within Burgaw's jurisdiction when land development without public sewer
is proposed. It requires County Health Department approval for installation
23

of a septic tank. Although there is no written minimum, a lot size of 20,000
square feet or more is normally required for use of a septic tank, depending
upon the land use and soil characteristics.
Current State and Federal Regulations - The following listing includes
state and federal regulations affecting coastal land and water resources.
Since Burgaw is not a coastal or riverfront community many of these
regulations will have little impact on land use in Burgaw. The listing
was provided by the Department of Natural Resources and Community Development.
Department of Natural Resources and Community Development, Division of
Environmental Management:
..Permits to discharge to surface waters or operate waste water treatment
plants or oil discharge permits; NPDES Permits, (G.S. 143-215)
..Permits for septic tanks with a capacity over 3000 gallons/day
(G.S. 143-215.3)
..Permits for withdrawal of surface or ground waters in capacity use areas
(G.S. 143-215.15)
..Permits for air pollution abatement facilities and sources (G.S. 143-215.108)
..Permits for construction of complex sources; e.g. parking lots, subdivisions,
stadiums, etc. (G.S. 143-215.109)
..Permits for construction of a well over 100,000 gallons/day (G.S. 87-88)
Department of Natural Resources and Community Development, Office of Coastal
Management:
..Permits to dredge and/or fill in estuarine waters, tidelands, etc. (G.S.113-229)
..Permits to undertake development in Areas of Environmental Convern (G.S.113A-
118) Note: Minor development permits are issued by the local government.
Department of Natural Resources and Community Development, Division of
Earth Resources:
..Permits to alter or construct a dam (G.S. 143-215.66)
..Permits to mine (G.S. 74-51)
..Permits to drill an exploratory oil or gas well (G.S. 113-381)
..Permits to conduct geographical exploration (G.S. 113-391)
..Sedimentation erosion control plans for any land disturbing activity
of over one contiguous acre (G.S. 113A-54)
Department of Natural Resources and Community Development, Secretary of NRCD:
..Permits to construct an oil refinery
Department of Administration:
..Easements to fill where lands are proposed to be raised above the normal
high water mark of navigable waters by filling (G.S. 146.6 (c))
Department of Human Resources:
..Approval to operate a solid waste disposal site or facility (G.S. 130-166.16)
..Approval for construction of any public water supply facility that furnishes
water to ten or more residences (G.S. 130-160.1)
24

Army Corps of Engineers (Department of Defense):
..Permits required under Sections 9 and 10 of the Rivers and Harbors Act of
1899; permits to construct in navigable waters
..Permits required under Section 103 of the Marine Protection, Research
and Sanctuaries Act of 1972
..Permits required under Section 404 of the Federal Water Pollution Control
Act of 1972; permits to undertake dredging and/or filling activities
Coast Guard (Department of Transportation):
..Permits for bridges, causeways, pipelines over navigable waters; required
under the General Bridge Act of 1946 and the Rivers and Harbors Act of 1899
..Deep water port permits
Geological Survey, Bureau of Land Management (Department of Interior):
..Permits required for off -shore drilling
..Approvals of OCS pipeline corridor rights -of -way
Nuclear Regulatory Committee:
..Licenses for siting, construction and operation of nuclear power plants;
required under the Atomic Energy Act of 1954 and Title II of the Energy
Reorganization Act of 1974
Federal Energy Regulatory Commission:
..Permits for construction, operation and maintenance of interstate pipelines
facilities required under the Natural Gas Act of 1938
..Orders of interconnection of electric transmission facilities under Section
202(b) of the Federal Power Act
..Permission required for abandonment of natural gas pipeline and associated
facilities under Section 7C (b) of the Natural Gas Act of 1938
..Licenses for non-federal hydro -electric projects and associated transmission
lines under Sections 4 and 15 of the Federal Power Act
25

CHAPTER III
INTRODUCTION
Like most other eastern North Carolina towns and counties, there are
natural and man-made conditions in Burgaw's planning jurisdiction that
present some type of constraint or limitation to various types of land
use. The purpose of this chapter is to identify those constraints
and the implications they have for land use. They can be divided into
three general categories, man-made hazards, capacity of community facilities,
and physical conditions. Because there have been few significant changes
since the 1976 land use plan was prepared, most of the discussion in this
chapter is based on information found in the earlier plan.
NATURAL CONSTRAINTS
SOIL LIMITATIONS
Soil conditions are one of the most important considerations when
determining the suitability of land for development. Soils can have a
great affect on the foundations of buildings and streets, drainage of
storm water, and wastewater disposal. Crop and wood production is also
greatly affected by soil conditions as any farmer would tell you.
The most recent soil data for the Burgaw area was discussed in the
1976 land use plan. According to this information all soil associations,
except for the Nixonton assication, have severe limitations to septic tank
use primarily because of a high water table. To a lesser extent soils
also pose a limitation to sanitary sewer systems, outdoor recreation,
streets, light industry, agriculture and forest production.
Fortunately, the Soil Conservation Service is presently conducting a
detailed soil survey and analysis for the entirety of Burgaw's jurisdiction.
According to preliminary results from the survey there will be revisions
to both the soils map and the limitations associated with the soil
associations. Upon completion of the soil survey Burgaw will have the
information necessary to determine more accurately when development proposals
need to give special attention to soil conditions. In all cases the Burgaw
Planning Board should use the best available information to determine
whether adequate consideration has been given to soils during preparation
of a subdivision plat. Careful attention should be directed tp provisions
for storm water drainage, wastewater disposal, and street construction
when reviewing subdivision plats.
KI

Conversations with local officials and citizens identified'one area
that was experiencing septic tank problems. The area was located on the
southwest side of Penderlea Road and was developed prior to adoption of
land use controls. Drainage,building foundation and street foundation
problems were not identified although the potential exists. However,
as mentioned in the previous chapter the sanitary sewer system has been
plagued with infiltration due to the high water table.
SOURCES OF WATER SUPPLY
For obvious reasons land use planning, or the lack thereof, can have
significant implications for the quality of water supplies. Seepage of
chemicals into groundwater recharge areas or wellfields and undue soil
erosion into watersheds are examples of how land use can have an adverse
impact on the quality of water supplies.
In Burgaw groundwater is the sole source of water supply, therefore
it is not pertinent to discuss watershed areas. Burgaw has three wells
which pump groundwater from the upper Cretaceous System Acquifer
according to the 1976 plan. In regards to Burgaw's water supply the
regional hydrologist with the then Department of Natural and Economic
Resources stated the following: "it is unlikely future man-made activities
in Burgaw would degrade the good,water quality presently pumped from the
well -field. Nor is the future quality of ground water... in jeopardy."
The hydrologist also pointed out there is a limited amount of knowledge
about groundwater recharge in the Burgaw area, therefore each well should
be closely monitored to determine variations in quantity or quality.
AMPS AREAS
The LAMA guidelines specify that land with a predominant slope in excess
of 12% should'be given special consideration. However there are no areas
within Burgaw's jurisdiction which fit this description, thus it is not
relevant to discuss this topic.
FRAGILE AREAS
Sand dunes, ocean beaches, coastal wetlands, public trust waters,
estuarine waters, estuarine shorelines, complex natural areas, areas that
sustain remnant species, unique geologic formations, natural landmarks,
prime wildlife habitats, scenic and prominant high points, archeological
sites, historic properties, and wooded swamps are lands classified as fragile
by the CAMA guidelines. No fragile areas within Burgaw's jurisdiction have
been identified, but as previously pointed out in the 1976 plan a number of
structures and sites of possible architectural and historical significance
have been identified. The courthouse and courthouse square, several churches,
and a number of commercial and residential buildings merit special consideration
for their historical and architectural value. There also is a possibility
of both prehistoric and historic archaeological sites in the Burgaw planning
area. Hence Burgaw should solicit the expertise of the N.C. Division of
Archives and History when large construction projects are initiated in the area.
RESOURCE POTENTIAL
Agricultural land, woodlands, mineral sites, gamelands, fishing areas,
areas with recreational value, and wildlife sanctuaries are among the
different types of land valued for their resource potential. Within Burgaw's
planning area agricultural lands and woodlands are the only identified lands
with resource potential. Their location is graphically depicted on the
existing land use map included in the summary of the 1976 Land Use Plan.
27

On a_countywide basis, agriculture and forest production provide
an invaluable input into the local economy, but the contribution from
land within Burgaw's jurisdiction is small when compared to the County
as a whole. This is especially evident when one realizes there are over
400,000 acres of land in Pender County but just 7,000 acres are located
within Burgaw's jurisdiction.
Undoubtedly as Burgaw continues to grow the acreage devoted to
agricultural and forest production will decline. But this would be an
efficient use of land since it would allow concentration of urban
- development in Burgaw while preserving outlying areas for resource
production. The soil survey did not identify any lands considered as
excellent or prime for resource production.
MAN-MADE HAZARDS
A number of land uses within Burgaw's jurisdiction were considered
man-made hazards, with each one being either a bulk fuel of chemical storage
facility. Most of these facilities were located adjacent to major roads
and some were found adjacent to residences.
The obvious hazard associated with such a facility is the potential
for a fire, explosion, or spill that could result in significant
damage to unsuspecting neighbors. All of the observed storage facilities
were above ground and many were observed in close proximity to adjoining
land uses. Additional setback requirements, below ground storage,
and spill retention ditches are measures that would significantly reduce
the rotential for damage to adjoining properties.
CAPACITY OF COMMUNITY FACILITIES
Heretofore the discussion of development constraints has focused
on the natural environment. This section will focus on Burgaw's
capacity to provide services to its residents. Specifically, the water
and sewer system, schools, and roads will be examined to determine their
current use and capacities.
WATER SYSTEM
As mentioned earlier there are no bodies of surface waters in the
Burgaw area, therefore groundwater serves as the supply source. Three
wells capable of pumping 750 gallons per minute provide water for an
estimated population of 1,600. Approximately 550,000 gallons per day could
be provided based on a 12-hour demand according to information in
the previous CAMA plan. Two elevated storage tanks provide a reserve
capacity of 175,000 gallons.
In the 1976 plan it was estimated that average daily usage was about
250,000 gallons, a figure that has not changed markedly. In fact Town
records show that average daily usage was approximately 220,000 gallons
per day during February, 1981 or 40% of the system's capacity. Exhibit
depicts the service area of the water system. From the map one can see that
most of the developed areas within the town limits are served by the Town
water system. There are also a few areas outside the Town limits which
are served.

SEWER SYSTEM
Burgaw's wastewater treatment plant has a design capacity of
300,000 gallons per day. According to the "201" wastewater facility
plan the average flow per day was 220,000 gallons. The plan also
explained that infiltration and inflow cause the plant to be overloaded
from time to time, but particularly during rainy periods. The amount of
inflow has been reduced significantly since the "201" plan was completed,
but a precise estimate of the reduction is not available.
The "201" plan states that the existing system is capable of serving
a population of 2,250 persons while providing a reserve of 16,900:gallons
per day for potential industrial customers upon correction of the inflow
problems. With current water consumption at 220,000 gallons per day
and using the assumption given in the "201" plan that only 80% of water
consumption enters the sewer system, it is estimated that present average
daily wastewater flow is 176,000 gallons per day. This amounts to 59%
of plant capacity. However, it does not include infiltration and inflow,
which exists in unknown quantity.
The service area of the sewer system is roughly equivalent to
the developed areas within the corporate limits. There are no areas
outside of town served by the sewer system.
The N.C. Division of Environmental Management has placed a restriction
on new sewer taps!and line extensions because the treatment plant's
receiving stream, the Osgood Branch, does not have sufficient flow to meet
effluent limitations. To remedy this problem the main outfall line is
in the process of being relocated to the Northeast Cape Fear River which
has sufficient flow to comply with effluent limitations. The relocation
project is expected to be completed within 12 months and it is anticipated
that the Division of Environmental Management will remove the restriction
on sewer taps upon completion of the project. If the restriction is lifted
Burgaw would be allowed to provide service to new customers within the
capacity of the treatment plant. Officials of the Division of Environmental
Management have stated that requests for sewer service by industrial customers
will have to be considered on a case -by -case basis.
STREET SYSTEM
According to the North Carolina Department of Transportation traffic
estimates all of the primary roads within Burgaw's planning jurisdiction
are well within their design limits. During 1979 the highest average daily
traffic count (ADT) on a Burgaw street was 5,500 vehicles. Not
suprisingly this count was recorded on U.S. 117 Bypass. Other roads
with relatively high traffic volumes include N.C. 53, U.S. 117A, Penderlea
Road, Wright Road, Dickson Street and Freemont Street. It was stated
in the 1976 CAMA plan that the design capacity for a two lane road with
parking on both sides is approximately 6,000 to 8,000 vehicles per day.

SCHOOL SYSTEM
Educational services for Burgaw residents are provided by the Pender
County Board of Education. Three of the county's thirteen schools serve
Burgaw residents. As noted in the 1976 CAMA plan the school facilities
are inadequate, with mobile units and temporary buildings acting as
classrooms in some cases. Since that time the Board of Education and
County Commissioners have adopted a program of school construction and
improvement. Upon completion of the program the schools will meet existing
needs. The State Board of Education projects a relatively constant level
of school enrollment countywide at least through the 1983-1984 school year.
The design capacity and school enrollment for the three schools
attended by Burgaw residents are listed below. The Pender Board of
Education provided the current school enrollment figures and the design
capacity was included in the earlier land use plan.
Burgaw Elementary School
Design Capacity: 450
1980 Enrollment: 635
Burgaw Junior High School
Design Capacity: 300
1980 Enrollment: 614
Pender High School
Design Capacity: 800
1980 Enrollment: 892

CHAPTER IV
INTRODUCTION
The purpose of this chapter is to develop a projection or prediction
of how Burgaw's population, economy and land use will change between 1980
and 1990. Since changes in land use are so closely related to the
population and economy, the first part of this chapter will focus on Burgaw's
future population and economy.
POPULATION AND ECONOMY
In Chapter II of this update it was determined that Burgaw's
population has been declining since 1960, whereas population in Burgaw
Township has been on the increase. Burgaw's population decrease was
attributed mainly to a drop in the average household size, which was a
result of a low birth rate and a high out -migration rate. Even though a
population decrease was reported Burgaw did exhibit substantial growth
in the number of housing units. And in the land use analysis it was shown
that the number of acres converted from undeveloped to developed in the Town
and extraterritorial jurisdiction were approximately equal.
The information in Chapter II also showed that population growth in
Burgaw is closely related to the economic situation in Pender and
neighboring counties, especially New Hanover County. It was noted that
employment gains in Burgaw and Pender County were principally a result
of increased non -manufacturing employment in Pender County and manufacturing
employment in New Hanover County.
These employment trends are expected to continue throughout the
planning period, with one exception. An increase in manufacturing
employment in the Burgaw area is expected. The largest factor in favor
of increased manufacturing employment in the Burgaw area is the current
construction of Interstate 40 through Pender County. In addition to the
impact of I-40, previous industrial recruiting efforts such as hiring
a professional recruiter and acquiring an industrial park, suggest that
new industry will locate in the Burgaw area in the near future. The end
result will be migration of population into the area. Now the question is
how many jobs will become available and how many people will move into
Burgaw's planning area in order to fill these jobs. Unfortunately, no
one can answer either of these questions precisely. However, it is known
that Pender County is actively recruiting both large and small industries.
It is now established that Burgaw and Pender County's economy will
continue to expand. However, it has also been pointed out that a new
industry has not located in the Burgaw area since before 1970.
31

It was decided that a projection of future housing units would provide
the most accurate means of determining future population in Burgaw.
There are two reasons for this decision. First, the population decline
experienced since 1960 resulted mainly from a paralleling decrease in
household size. Secondly, there was an increase in the number of housing
units in Burgaw. Thus a projection based on past population trends would
continue to show a population decrease even though Burgaw has been
experiencing growth.
There are two assumptions made here in order to project Burgaw's
population. One is that average household size will equal 2.5 persons
in 1990. The second is that the number of housing units will continue
to grow at a pace comparable to that experienced during the 1970's.
It was noted in Chapter II that Burgaw had a 10% increase in housing
units from 1970 to 1980. A similar increase during the.1980's would amount
to 64 new housing units by 1990. And with 2.5 persons per unit, this
would result in a population increase of 195 persons for a total 1990
population of 1,765, or a 12% increase over the 1980 population.
For a population projection in the extraterritorial jurisdiction,
housing figures from Burgaw's 1974 Land Development Plan and the 1980
Land Use Survey will be used. In the 1974 Plan 292 housing units were
identified in the extraterritorial jurisdiction. This had increased
by 27% in 1980, or 4.5% a year. Again assuming past trends continue
through 1990, an increase of 45% can be expected or 167 new housing
units. Assuming 2.5 persons per household, an additional 418 persons
can be expected outside of Burgaw's town limits, resulting in a total
1990 population of 1,345.
A combination of the projections produces a total 1990 population
of 3,110 for the planning area, which amounts to an 18% increase.
While this projection indicates a substantial amount of growth, one
must remember it is based on past trends, which are subject to change in
the future. And it was mentioned earlier that a change is expected, i.e.
the addition of new industry in the Burgaw area. Based on case studies
across the nation, the U.S. Chamber of Commerce estimates each new
manufacturing job produces 2.5 new jobs in the service and retail sector.
Therefore, based on this estimate, Burgaw could expect to gain an additional
350 in population if a manufacturing plant employing 100 persons chooses to
locate nearby. There are several qualifications which could affect this
estimate, including how close a prospective manufacturer located to Burgaw
or how high the wages are comparable to existing income levels.
The point to be made about these population figures is that Burgaw will
continue to grow in the future. The question now is whether existing
public facilities can support this growth and how much land will be
required for new homes, businesses, or industries.
32

FUTURE LAND NEEDS
Although Burgaw experienced a population decline in the 1970's
there still was a demand for undeveloped land. In fact, 31 acres were
developed for urban purposes in Burgaw from 1975 to 1980. Over the
same period of time the extraterritorial jurisdiction had 26 acres
converted to urban use. And according to the preceding discussion,
population increases are expected during the planning period in both
Burgaw and its extraterritorial jurisdiction, which will result in
continued demand for undeveloped land.
In order to determine an estimate of land needs for the projected
population increase, it was necessary to determine present land use
densities within the planning area. After computing the existing land
use densities, they were multiplied times the expected population increase
for 1990, which produces an estimate of land need for 1990. (See Table 11).
This method of projecting land needs also does not consider the
possibility of new industry locating in the Burgaw area but the preceding
discussion did estimate population increase that can be expected
from a new industry. This information could be used to add the land needs
generated by a new industry to those presented in Table 11.
Although the projected land needs given in Table 11 cannot be
considered absolute, they do indicate a significant number of acres will
be developed for urban purposes during the next ten years.
COMMUNITY FACILITIES DEMAND
In the foregoing discussion moderate economic and population growth
was projected for Burgaw and its extraterritorial jurisdiction. Of course,
this growth will place an added demand on the public services provided
by Burgaw. An indication of the existing demand and limitations of
Burgaw's public services was presented in Chapter III. The next step
then is to identify the impact this projected growth will have on
public services.
First, the capability of Burgaw's water system to meet projected
demands will be considered. In Chapter III, Constraints to Development,
estimates showed the water system was operating at 40% of capacity.
Therefore, based on the preceding population and land use projections,
it will not be necessary to expand the water system's capacity above
what is presently available.
Information presented in Burgaw's "201 Wastewater Management Plan"
will be used to determine whether existing sewer treatment capacity is
sufficient to meet anticipated demand. The "201" plan estimated
that Burgaw's sewer system was capable of serving a population of 2,250
persons while maintaining a reserve capacity of 16,900 gallons per day
for anticipated but unprojected needs (i.e. industrial use). Since
Burgaw's projected population for 1990 was 1,765 persons it would seem
the existing plant has the capacity necessary to meet projected demand.
However, as previously mentioned, the Division of Environmental
Management has placed a restriction on new sewer taps and line extensions
because Burgaw's receiving stream, the Osgood Branch, does not have
adequate streamflow. As a solution to the problem Burgaw has begun a
33

Table 11... ........... FUTURE LAND USE REQUIREMENTS
Land Use
1980
Acres Per
1990 Land
Annual Acres
Category
Acreages
Person/1980
Need*
Needed by 1980
Town of Burgaw
Residential
178
.11
21.5
2.2
Commercial
35
.02
3.9
.4
Industrial
13
.01
1.95
.2
TCU
205
.13
25.35
2.5
Govt. & Inst.
81
.05
9.75
1.0
Cult., Ent., Rec.
11
.01
1.95
.2
64.4
6.5
Extraterritorial
Jurisdiction
Residential
99
.09
24.21
2.4
Commercial
12
.01
2.69
.3
Industrial
15
.01
2.69
.3
TCU
173
.16
43.04
4.3
Govt. & Inst.
18
.02
5.38
.5
Cult., Ent., Rec.
96
.09
24.21
2.4
102.22
10.2
*1990 Land Need was computed as follows: 195 (expected population increase in Burgaw)
x .11 (acres per person in 1980) = 21.5 from 1980 to 1990
Source: Ferren Planning Group, Windshield Survey, 10/80
0
34

project to relocate its main outfall line to the Northeast Cape Fear
River, which according to Division of Environmental Management officials
should result in removal of the restriction.
.The State Board of Education, as discussed in Chapter III, has
projected a relatively constant level of school enrollment on a
countywide basis through 1984. However, some of the existing schools
were considered inadequate (for present use), which places the school
system in a "catch up" position. The County School Board and Commissioners
have shown their committment to school needs by adopting a program of
construction and improvement intended to alleviate existing inadequacies.
The existing usage of principal streets and highways was shown to be
much less than capacity in Chapter III. In addition, with the completion
of Interstate 40 a significant amount of North- South through traffic
should be diverted from U.S. 117 and N.C. 53 to the Interstate.
Even though the existing street and highway system have sufficient
capacity for the planning period, Burgaw should prepare and adopt a
thoroughfare plan in order to determine what actions will be necessary
once traffic volumes move closer to capacity. In addition, one of the
adopted goals in the 1976 CAMA Plan was to jointly prepare a thoroughfare
plan with the State.
Overall Burgaw's capacity to provide these public services is well
within the demand anticipated for the next 10 years. But just one of
many variables, such as a large new industry, could greatly increase the
demand for these services. Plus in addition to the services discussed
here, there are other services, like recreation, fire, and police,
which should be considered but are not within the scope of this update.
35

CHAPTER V
INTRODUCTION
In the preceding chapters discussion has focused on identification of
land use, population, and economic conditions in the Burgaw planning area.
Through these discussions it has become evident that Burgaw, like many
other coastal communities, is faced with a number of issues which will
affect future development and land use in Burgaw. It is the purpose
of this chapter to discuss those issues, along with those mandated by
the CAMA guidelines, and to examine the different approaches that Burgaw
has considered in an attempt to improve upon existing conditions or prevent
potential problems.
The following pages then include a discussion of issues identified in the
preceding chapters as well as issues specified in the LAMA guidelines.
I41 addition to the discussion of land use issues, this chapter presents the
policies that Burgaw has selected as a means of addressing the issues.
This chapter also contains the mechanisms which Burgaw selected to implement
the adopted policies.
. The issues are presented within the framework of four broad topics
contained in the CAMA guidelines and listed as follows; resource protection,
resource production and management, economic and community development, and
public participation. The selection of policy statements was done in the
following manner: 1) several alternative policies relative to each issue
were presented to the Burgaw Planning Board; 2) the alternative policies
were reviewed and discussed by the Planning Board; 3) the Planning Board
then chose the policy, or combination of policies, which it found best
suited to the needs of Burgaw. After the Planning Board selected a policy
to address each issue, methods for implementing the policies were chosen.
ISSUES
Resource Protection
Under CAMA guidelines issues such as areas of environmental concern,
soil limitations, water supply sources, areas of severe slope, preservation
of historically significant buildings, fragile areas and man-made and:,fiood hazard
areas are included within this broad topic. However, in Burgaw's jurisdiction
the only relevant issues were soil limitations, preservation of historically
significant buildings and man-made hazards since the other issues were not
identified in Burgaw.
Previous discussions have identified soils as a point of concern
because all of the soils within Burgaw's jurisdiction were found to have
some degree of limitation to urban development. Soils were considered
a limitation to urban development principally for two reasons: 1) because of
36

potential for malfunctioning septic tanks and 2) more frequent and early
deterioration of street and building foundations. Malfunctioning septic
tanks were found in one location, an area adjacent to S.R. 1332 west of
Burgaw. Problems with streets or building foundations were not found
although the potential exists.
Burgaw is confronted with the question of whether or not current
regulations are sufficient to prevent development that is incompatible
with the soils. Presently when public sewer is not available to a
development, the Pender County Health Department by use of an ordinance
regulates the use of septic tanks. Pender County's septic tank ordinance
is similar in some respects to ordinances in other eastern North
Carolina counties but it does not contain a minimum lot size requirement
for septic tank use. As a general rule, however, the Health Department
requires 20,000 square feet per lot where an individual well and septic
tank is used for a residence. In addition to the County's septic tank
ordinance, most of the undeveloped land without public sewer and water
are zoned such that 20,000 square feet is the minimum lot size. j
Burgaw's Subdivision Ordinance establishes construction standards
for streets according to the North Carolina Department of Transportation
standards. The Ordinance also provides review of soil conditions prior to
approval of a subdivision, thus giving Burgaw an opportunity -to determine
whether a development would be compatible with the soils.
Man-made hazards, such as bulk petroleum and chemical storage,
were considered a potential problem in view of the possibility of spills
or explosions. Under Burgaw's current zoning ordinance, this type of
land use is restricted to industrial zoning districts, where structures
must be at least 50 feet from a street or residence. However,
bulk storage facilities could locate directly opposite uses like
restaurants or building supply storage yards, which would result in
increased hazard to both life and property. There are no provisions
in the Zoning Ordinance which would reduce the possibility of damage
from a spill or chemical explosion, such as a retention pond or an increased
setback requirement.
As mentioned before, flood hazard areas have not been identified in
Burgaw's planning area, therefore the Town does not participate in the
federally sponsored flood management program. However, all Pender County
flood hazard areas are being mapped at this time under the auspices of the
Federal. Emergency Management Association. If the completed mapping delineates
flood hazard areas in Burgaw's planning area, it will be necessary for Burgaw
to decide whether a flood management program should be adopted.
In the 1976 CAMA Plan and again in Chapter III of this update, it*
was pointed out Burgaw has a number of buildings with architectural
and historical significance. A detailed inventory and analysis of these
buildings has never been conducted, which may explain why they do not
receive special attention or protection. At the time of the recent
land use survey many buildings of apparent significance were in use and
did not appear to be threatened with removal. A complete inventory of
Burgaw's historically and architecturally significant structures,
should be undertaken, perhaps jointly with the County, before any course of
action is taken. Otherwise any decision would be made without a complete
listing of the buildings or understanding of their value.
37

Resource Production and Management
Even though prime farmland or woodlands have not been identified in
Pender County, both agriculture and forest production have been considered
an integral part of the local economy. There is over 400,000 acres of
agricultural and forest land available countywide, an amount that is
sufficient to meet urban needs yet it would not adversely affect
agricultural and forest production. This is especially easy to
recognize when one finds that only 57 acres of undeveloped land
were converted to urban use from 1975 to 1980 in Burgaw's
jurisdiction. In the preceding pages it was projected that 106
additional acres would be needed for urban use by 1990, which would
leave approximately 5,900 undeveloped acres (85%) in Burgaw's
jurisdiction. Thus, with such an abundance of land and.a relatively
slow rate of conversion to urban use, Burgaw does not consider it
necessary to adopt policies to protect lands used for agricultural
and woodland. purposes from conversion to urban use.
The CAMA guidelines also require localities to address existing
and potential mineral production areas, commercial and recreational
fisheries, and off -road vehicles. Burgaw considers each of these
topics irrelevant to its particular situation, therefore no policy
alternatives were considered relative to these issues.
Economic and Community Development
The topic of economic and community development contains a broad
range of issues which are particularly relevant to Burgaw. However,
before these issues are discussed it is important to state that Burgaw
is committed to economic and community development. Recent actions by the
Town of Burgaw, such as a downtown revitalization study and support
of the County's industrial recruiting efforts, point to their :commitment.
But questions remain about the manner in which Burgaw will address the
specifics of economic and community development. For example, will
all types of development be encouraged and permitted, or will development
be limited to subdivisions, mobile home parks, shopping centers, and
industrial parks? Will development be guided in a specific direction
or with no regard for specific locations? What will happen with
existing development in Burgaw, will a housing or downtown improvement
program be initiated? Will water and sewer services be adequate to meet
future demands? Do the zoning and subdivision regulations manage
development as they were intended? The discussion that follows
will consider each one of these issues plus a number of others raised
by the CAMA guidelines.
Since industrial development is considered by many to be synonymous
with economic development, it will be discussed first. The previous
chapters have shown that recent growth in Burgaw was related to industrial
development, but to industrial development in New Hanover County primarily.
However, Pender County has begun an industrial recruiting program
aimed at bringing industries into the County. One of the first actions
of this program was the acquisition of a 50-acre industrial park
located adjacent to the Burgaw Junior High School. This tract of land
was rezoned to permit industrial uses, an action which indicates one
area where Burgaw will encourage industrial development. In addition to
this site the interchange of Interstate 40 and N.C. 53 is regarded as a
prime industrial site. Although the interstate does not pass through
38

Burgaw's jurisdiction, it is located within the wastewater facility
planning area which may result in the Town being called upon to provide
sewer service to the area. Burgaw's capability to provide sewer service
is another issue in itself and will be presented later. Two other
areas are also zoned appropriately for industrial use, thus leaving
the question of whether or not existing sites are adequate.
As previous discussions have pointed out Burgaw still must address
residential and commercial development even if industrial recruiting
efforts are unsuccessful. In all likelihood development patterns which
were identified in the land use analysis will continue unless policies
are adopted to the contrary. The development patterns are strip residential
and commercial development, mobile homes on individual lots, and mixed
land use. A continuation of these patterns may result in problems that
will demand corrective measures. For example, mixed land use has been
identified as a'cause of housing deterioration, therefore if mixed land
use is allowed to spread then the logical conclusion is that housing
deterioration will spread. Burgaw's zoning and subdivision ordinance
could be used to prevent or reduce the frequency of these patterns,
but the existing design of the ordinances will allow them to continue.
The subject of mobile homes is an issue in itself for Burgaw
residents, principally because there are questions as to whether enough
mobile home sites are available. Under Burgaw's present zoning regulations
mobile homes are permitted on individual lots in the R-20 zoning district
plus mobile home parks are permitted in the R-20 and R-5 zoning districts.
Burgaw's extraterritorial jurisdiction is zoned almost exclusively R-20,
providing over 5,000 acres of land zoned suitably for mobile home use.
Within the Town limits there are three areas,totalling about 250 acres,
that are zoned R-5. Hence all mobile home development inside the Town
limits is restricted to mobile home parks. Any revision of the mobile
home regulations should be conducted only with a complete understanding of
its affect on other land uses. For instance, a relaxation of the
requirements may allow an increased number of -mobile homes mixed in with
conventional dwellings whereas more restrictive requirements may cause a
shortage of suitable mobile home sites.
As the population in Burgaw's retail market area continues to increase,
so will the demand for retail goods and services. It is likely there
will be pressure to locate these services outside of the downtown area,
probably on U.S. 117 Bypass. There is also a strong possibility that a
shopping center will locate on the bypass and judging from past trends,
strip commercial development along other major roads and highways may
occur. But Burgaw's zoning map would require revisions to permit these
types of commercial development whereas vacant buildings and lots are
available in the downtown area.
Mention of the downtown leads to another issue, that of downtown
and neighborhood improvement. In the past Burgaw has shown its concern
for improving both. The Town contracted with.the Cape Fear Council of
Governments in 1979 to prepare a "Downtown Revitalization Study". The plan
was completed but there has been little progress towards implementation.
One of the more relevant recommendations of the plan was to "adopt strict
land use policies to prevent the further erosion of the CBD and to
protect stable residential areas from the intrusion of commercial and
professional interests". Neighborhood improvements such as street paving,
sidewalk construction, and installation of water and sewer services, have
been completed in the recent past with assistance from the County's
39

Community Development Block Grant Program. These improvements were made
in areas with relatively high incidences of substandard housing as an
incentive for the homeowner to improve his home.
The County no longer has any CDBG monies yet there are still areas
with concentrations of substandard housing and public services. Burgaw
had also considered a minimum housing code but chose not to adopt it.
Both the downtown and areas of substandard housing will continue to
deteriorate until positive action is taken. A more concentrated effort
towards implementing the downtown study would help improve both problems.
Continued cooperation with the County may be the best approach to the
housing problem particularly because of limited resources.
Through discussions with the Planning Board the zoning map was
identified as a point of concein, primarily because of a sizable number of
nonconforming uses but also because the extraterritorial jurisdiction was
almost completely zoned R-20. Revisions of the zoning map to address these
issues might produce unexpected results. More specifically revisions
of the map with the intent of reducing nonconforming uses could subject
residences to further encroachments from business and industries. Before
changes of this nature are made to the zoning ordinance careful study
should be a prerequisite in order to determine all the consequences.
Before any of the issues about type and location of development
can be settled the matter of how or if Burgaw can provide services to
development should be considered, since the availability of public services
is so closely related to the kinds of development that can be allowed
and encouraged. In Chapter III, Constraints to Development, it was
shown that Burgaw's water system is more than adequate to meet expected
demand. Unfortunately the capacity of the sewer system is not as clear cut
as that of the water system. Under the present circumstances sewer taps
are not allowed unless an exception is granted by the N.C. Division of
Environmental Management. This restriction is expected to be lifted after
the main sewer outfall line is relocated from Osgood Branch to the Northeast
Cape Fear River, or within 12-18 months. Upon completion of the project
it is anticipated that residential and commercial taps will be permitted
within the limits of the plant's capacity. Taps for industrial users
will be considered on an individual basis by the Division of Environmental
Management. Burgaw's "201 Wastewater Facility Plan" estimated the
treatment plant had sufficient capacity to serve a population of 2,250 with
a reserve of 16,900 gallons per day for prospective industries. Neither
of these limits are being approached, as the 1980 population was 1,570
persons and there have not been any industrial users added to the system
since 1977 when the plan was prepared.
Once the restriction on sewer taps is removed, Burgaw will be capable
of extending sewer lines to areas which have not been served in the past.
r However there is no comprehensive policy to determine the circumstances when
water and sewer services will be extended. The lone policy regarding
utility extensions states that the Town is responsible for extending
water and sewer services to subdivisions inside the corporate limits.
In other situations a request for a service extension must be considered
on an individual basis and without an established policy. In the absence
of an overall policy it will be difficult to justify why one request
for service extension was approved and why another was denied. By
establishing the Town's responsibility in respect to providing services,
an adopted policy would also assist developers to determine whether a
40

project is financially feasible. In addition a service extension policy
could be used as a tool for guiding or establishing development patterns
since public services act as an inducement to development. Due to the
limited capacity of the sewer treatment plant it would be wise to restrict
sewer service to areas within the corporate limits otherwise the Town
would not receive tax benefits from the prospective development.
One issue which the CAMA guidelines stress is the potential for
development of energy facilities. But the possibility of an energy facility,
such as a nuclear reactor, locating in Burgaw is quite remote because of
the absence of large supplies of surface water. Therefore Burgaw does
not consider this issue relevant.
Another issue raised by the guidelines is that of local committment
to state and federal programs. Unlike the coastal towns and counties where
beach nourishment, port development and flood hazards are dealt with on a
regular basis Burgaw is seldom required to participate in intergovernmental
programs. When the situation arises Burgaw has shown its willingness to
cooperate such as in the CAMA planning process, the County's Community
Development Block Grant Program, and "201" Wastewater Facility Planning.
Issues such as channel maintenance, beach nourishment, beach and water
access, and tourism are specified for local consideration by the CAMA guidelines.
Burgaw has considered these issues and does not find them applicable.
Continuing Public Participation
Recognizing the broad impact a land use plan has on the citizens of
each town and county, the CAMA guidelines required consideration of public
participation. The Town of Burgaw also recognizes the need for
public input into the planning process. However, since Burgaw does not
have any "overwhelming"problems or issues such as shoreline erosion or
construction of a major energy facility, it is sometimes difficult
to generate public input even though the Town is committed to it. In a town
the size of Burgaw, the Planning Board and Town Commission are often kept
abreast of the public viewpoint through discussions with the townspeople
instead of through a structured public forum. Perhaps the question in
Burgaw is whether it is necessary to pursue formal means of public
participation since the Board members often have daily contact with concerned
citizens.
41

POLICY STATEMENTS
The previous section identified the various land use issues that
will confront Burgaw in the near future. The contents of this section spell
out the different policy alternatives that the Burgaw Planning Board considered
to address these issues. It also contains the selected policy alternatives
and explains the means by which Burgaw will implement the policies.
For many of the issues addressed in the CAMA guidelines, such
as areas of environmental concern and beach access, Burgaw did not
consider policy alternatives because the issues were irrelevant to Burgaw.
In other cases, like soil protection or types and location of desired
development, Burgaw had already established a policy on the issue.
Therefore, in many instances the alternative was whether existing policy
was satisfactory or were revisions desirable.
Resource Protection
Issue - Soils
Policy Statement - The Town of Burgaw feels there is no alternative as to
whether or not good soils practices are utilized. Therefore, Burgaw will
continue to permit urban development under the existing regulations
and practices as they relate to soil protection, which consists of the
County's septic tank ordinance, advice from the Soil Conservation Service
upon request, and Burgaw's Zoning and Subdivision Ordinance.
Issue - Man-made Hazards
Alternative 1 - Burgaw could allow existing bulk storage facilities to remain
in their present condition and permit construction of additional facilities
under present land use restrictions.
Alternative 2 - Burgaw could encourage cooperation between fire and rescue
personnel to minimize accident potential and/or revise existing land use
controls for regulation of future man-made hazards.
Policy Statement - Burgaw will encourage cooperation between fire and rescue
personnel to minimize accident potential from existing hazards and study
present land use controls for revisions to reduce the impact from future
development of man-made hazards.
Implementation - The Burgaw Fire Department will maintain a coordinated
"plan of action" to reduce the potential for damage to life and property
from existing man-made hazards. The Zoning Ordinance will be studied
for revisions that would reduce or eliminate hazard to properties
adjoining future man-made hazards. Requirements for increased setbacks,
retention ponds and ditches, and underground storage will be considered.
Issue - Preservation of historically and architecturally significant properties
Alternative 1 - Burgaw could conduct a professional inventory and analysis of
architecturally and historically significant properties.
42

Alternative 2 - Burgaw could implement existing land use controls and the
Downtown Revitalization Study in a manner that would encourage use
(i.e., preservation) of architecturally and historically significant
properties.
Alternative 3 - Burgaw could adopt a policy of inaction towards preservation
of architecturally and historically significant properties.
Policy Statement - Burgaw will identify said properties and implement land use
controls and the "Downtown Revitalization Study" in a manner that would
encourage use of historically and architecturally significant properties.
Implementation - Burgaw will request Pender County to apply.for a grant from
the North Carolina Division of Archives and History for a joint Town -County
architectural and histbrical property survey. Burgaw will consider the impact
of zoning changes on historically and architecturally significant properties.
Continue efforts to implement the "Downtown Revitalization Study".
Economic and Community Development
Issue - Types and location of industrial development
Alternative 1 - Burgaw could continue to permit industrial development within
the existing zoning and subdivision regulations and utility practices.
Alternative 2 - Burgaw could assume a larger role in the County's industrial
recruiting program.
Alternative 3 - Burgaw could revoke existing land use controls for industrial
development.
Alternative 4 - Burgaw could revise and update existing land use controls
to further reduce the impact of industrial development on other land uses.
Policy Statement - Burgaw will continue to permit industrial development
within the existing zoning and subdivision regulations and utility practices.
Issue - Types and location of residential (exclusive of mobile homes) and
commercial development
Alternative 1 - Burgaw could continue to permit commercial and residential
development within existing zoning, subdivision, and utility regulations and
practices.
f
Alternative 2 - Burgaw could revise and update existing land use controls
to reduce or prevent strip development and mixed land use.
Alternative 3 - Burgaw could encourage commercial development along U.S. 117
Bypass.
Alternative 4 - Burgaw could encourage commercial development in the downtown.
43

Policy Statement - Burgaw will study existing land use controls for revisions
that would reduce or prevent strip development and mixed land use and
encourage commercial development in the downtown and along U.S. 117 Bypass.
Other policies relative to residential and commercial development will remain
unchanged.
Implementation - Zoning, subdivision and utility regulations will be studied
for revisions that would reduce or prevent strip development. Policies
relative to reverse frontage lots, frequency and design of driveways and
intersections, frontage roads, and extension of utilities along state roads
will be considered. The zoning ordinance will be studied for changes that
would reduce the occurence and impact of mixed land use. Performance
standards, such as screening and increased setback requirements, will be
considered as well as reviewing the zoning map for situations that
permit mixed land use. Efforts to implement the "Downtown Revitalization Study"
_ will be continued and supported. Zoning amendments that would permit
controlled commercial development, such as a shopping center, along U.S. 117
Bypass will be examined.
Issue - Mobile Homes
Alternative 1 - Burgaw could retain existing land use controls relative to
mobile homes.
Alternative 2 - Burgaw could revise existing zoning regulations such that
the impact of mobile home development on other land uses would be reduced.
Alternative 3 - Burgaw could revise existing zoning regulations such that
sites for mobile homes would be increased.
Policy Statement - Burgaw will retain existing land use controls relative to
mobile homes.
Implementation - Enforce existing zoning regulations.
Issue - Redevelopment
Alternative 1 - Burgaw could allow existing urban development to remain in its
present condition without initiating any actions to improve existing urban
development.
Alternative 2 - Burgaw could pursue State and Federal programs that would provide
assistance for improving housing and neighborhood conditions.
Alternative 3 - Burgaw could seek continued assistance from the Pender County
Community Development program.
Alternative 4 - Burgaw could adopt the "Downtown Revitalization Study".
Policy Statement - Burgaw will continue efforts to implement the "Downtown
Revitalization Study".
Issue - Urban Growth Patterns
Alternative 1 - Burgaw could retain the existing Zoning and Subdivision Ordinance
and service extension practices as they relate to directing the location of
urban development.
44

Alternative 2 - Burgaw could revise and update their land use ordinances
and adopt service extension practices that would promote development of land
adjacent to existing urban development.
Policy Statement - Burgaw will continue to promote development within the
Town limits by permitting higher density development within the Town limits
as opposed to the extraterritorial jurisdiction.
Implementation - Enforce existing zoning regulations.
Issue - Zoning Map
Alternative 1 - Burgaw could conduct a comprehensive review of the existing
zoning map directed primarily at reducing the number of nonconforming uses
as well as considering alternatives to R-20 zoning in the extraterritorial
jurisdiction.
Alternative 2 - Burgaw could maintain the existing zoning map and consider
zoning changes upon individual requests.
Policy Statement - Burgaw will conduct a comprehensive review of the map for
the purpose of reducing the number of nonconforming uses plus considering
alternatives to R-20 zoning in the extraterritorial jurisdiction.
Implementation - Burgaw will apply for state planning assistance and/or
grant money to address the zoning issues raised through the plan update.
Issue - Provision of Public Services to Developments
Alternative 1 - Burgaw could continue to provide water and sewer services
under existing policies.
Alternative 2 - Burgaw could develop a comprehensive water and sewer policy
that would specify situations where services will be extended to new developments
and at whose costs.
Alternative 3 - Burgaw could extend water and sewer services to "prime
development sites" as an encouragement to development.
Policy Statement - Burgaw will provide water and sewer services according
to existing policies.
Implementation - Continue enforcing existing water and sewer policies.
i
Issue - Continuing Public Participation
Alternative 1 - Burgaw could not promote public participation in land use
planning.
Alternative 2 - Burgaw could continue to provide public notice and public
hearings for revisions in land use controls.
45

Alternative 3 - Burgaw could provide an annual public meeting for the purpose
of reviewing implementation of these policies or for updating policies.
Policy Statement - It shall be the policy of the Town of Burgaw to encourage
and allow public participation in all land use planning matters.
Implementation - Provide an annual public meeting before the Planning Board
for the purpose of reviewing implementation of these policies or for updating
them. Burgaw will continue to provide public notice and public hearings
for consideration of revisions to local land use regulations.
Issue - Commitment to State and Federal Programs in the area
Alternative 1 - Burgaw could continue to cooperate in State and Federal
programs where those programs are considered compatible with Town policy.
Alternative 2 - Burgaw could discontinue cooperation with State and Federal
programs altogether.
Policy Statement - It shall be the policy of the Town of Burgaw to cooperate
with State and Federal programs in the area where those programs are
considered compatible with Town policy.
46

CHAPTER VI
INTRODUCTION
The final step in the CAMA Plan Update process is preparation of a
land classification map. The land classification mapping system was
developed by the Coastal Resources Commission to assist in implementation
of the polices adopted as part of the local land use plans. It allows
local governments to specify precise areas where certain local, state
and federal policies will apply. For example, federal assistance for
water and sewer projects or home mortgages normally would be guided
to areas classified developed or transition. The system contains five
separate land classifications for use on the map (See Exhibit 2). Even
though the different classes are placed on the map they should not be
considered as a regulatory mechanism but as a means of assisting policy
implementation. The designation of land classes permits Burgaw to
demonstrate where and to what density it wants urban growth to occur.
LAND CLASSIFICATIONS
The CAMA guidelines establish five broad land classes which will be
defined in the following discussion. The impact and purpose of each
classification on land use and their relationship to Town policies are
also contained in the discussion.
Developed Land
Areas classified as developed include lands presently developed for
urban purposes at or approaching a density of 500 dwellings per square
mile that are provided with municipal or public services, including at
least public water, sewer, recreational facilities, police and fire protection.
The purpose of the developed class is to provide lands for continued
intensive urban development and redevelopment. Generally areas classified
as developed are those lands used for urban purposes and located inside
the Town limits. It should be noted that several small areas were
M classified developed which do not have water and/or sewer service.
Transition Land
s Areas classified as transition include lands currently having some
urban services and other lands necessary to accomodate the population and
economic growth anticipated within the planning jurisdiction during the
ensuing 10-year planning period. Lands classified transition to meet the
demand for population and economic growth must be served or be readily
served by water and sewer and other urban services and be generally free
of severe physical limitations to development.
47

The purpose of the transition class is to provide areas for future
urban development on lands that are most suitable and that are scheduled
to receive public services. This class also provides for growth when
lands in the developed class are not adequate or available. The
developed and transition classes are the lands under consideration by
the Town for intensive urban development requiring urban services. State
and Federal expenditures on projects associated with development, such
as water, sewer, and streets will be directed to developed and transition
areas. Land classified as transition in Burgaw's planning area are
generally located adjacent to the existing Town limits and are undeveloped.
Provision of water and sewer services in developed and transition areas will
be the responsibility of the developer and/or landowner as required by the
subdivision ordinance. The zoning ordinance guides higher development
densities to the transition and developed areas because of the availability
of public services. Industrial, multi -family and most commercial development
will be limited to these areas.
Community Land
Lands classified as community are those areas within the extraterritorial
jurisdiction characterized by a small grouping of mixed land uses such as
residences, churches; and schools, and which are suitable and appropriate
for small clusters of rural development not requiring public sewer service.
The purpose of,the community class is to provide for clustered land
development to help meet housing, shopping, employment and public service
needs within the rural sections of the planning jurisdiction. Some of
these areas may require Town water because land use or development density
precludes using both private wells and septic tanks. One area classified
as community is located around the intersection of U.S. 117 Bypass and
U.S. 117 Business south of Town. Most of this area is already served by
the Town water system. The only other area classified as community is
located northwest of Town adjacent to Penderlea Road where septic tank
problems have been identified. Urban development in the community classification
must comply with the County's septic tank policy, as public sewer is
limited to developed and transition areas.
Rural T,nnd
Lands classified as rural are those best suited for agriculture,
forest management, and low density urban uses where urban services will not
be required and natural resources will not be permanently impaired. The
rural class is the broadest of the five classes.
w
The purpose of the rural classification is to provide for agriculture,
forest management, mineral extraction and other low intensity uses such as
a small residential subdivision. These areas are not expected to require t
any urban services during the planning period although water service would
be available where provided at the developer's expense. Most of Burgaw's
extraterritorial jurisdiction is classified rural. Areas classified as
community and rural are generally zoned R-20, a district which permits
low density residential uses. Urban development in the rural classification
must meet the County septic tank policy since public sewer is limited to
developed and transition areas.
48

Conservation Land
Lands classified as conservation are those containing major wetlands,
undeveloped shorelands that are unique, fragile, or hazardous for development,
necessary wildlife habitat, publicly owned watersupply watersheds and
acquifers, and forest lands that are undeveloped and will remain undeveloped
for commercial.purposes.
The purpose of the conservation classification is to provide for
effective long-term management of significant limited or irreplaceable
' areas. Management is considered necessary because of the lands natural,
cultural, recreational, productive, or scenic values. It is intended
that these areas not be identified as transitional in the future. There
' were no areas suitable for the conservation class in Burgaw's jurisdiction.
1
49

" \ CAMA
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LAND CLASSIFICATION MAP
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