Land Use Plan Update-1987

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I Ka a I Im
LAND USE PLAN
UPDATE
1987
DCM COPY - -"'QMrrA "' DCM COPY
Please do not remove!!!!!
Division of Coastal Management Conv
Tal Bert, Cox & Associates, I nc,
n Espey, Huston Company
Local Adoption Date:
MARCH 1, 1988
CRC Certification Date:
MARCH 25, 1988

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1987
TOWN OF BURGAW
LAND USE PLAN UPDATE
Prepared By
TOWN OF BURGAW PLANNING BOARD
and
TOWN OF BURGAW BOARD OF COMMISSIONERS
Assistance By
Kenneth Weeden, AICP
Talbert, Cox & Associates, Inc.
Harriett A. Britt, APA
Talbert, Cox & Associates, Inc.
Project Manager
Project Planner
"The preparation of this report (map, document, etc.) was
financed in part through a grant provided by the North
Carolina Coastal Management Program, through funds provided
by the Coastal Zone Management Act of 1972, as amended, which
is administered by the Office of Ocean and Coastal Resource
Management, National Oceanic and Atmospheric Administration."

m = = = = m = i = = = = = = = m m m
GEi
0 25 50 75 100
MAP I
Location Map
( in Pender County )
e

BURGAW, NORTH CAROLINA
LAND USE PLAN: 1987 UDPATE
TABLE OF CONTENTS
'
SECTION
I: ANALYSIS OF EXISTING CONDITIONS
PAGE
A. Establishment of Information Base
1
3
B. Present
Conditions
1.
Population
3
a. Composition
3
b. Seasonal Population
C. Population Summary
5
5
2.
Economic Analysis
6
'
a. General
6
b. Commercial Activity
6
c. Manufacturing
6
'
d. Income
7
e. Economic Summary
8
'
3.
Housing
8
C. Existing Land Use Analysis
10
r1.
General Patterns
10
a. Residential Land Use
10
'
b. Commercial Land Use
10
C. Industrial Land Use
10
d. Institutional Land Use
10
e. Land Use Summary
11
2.
Significant Land Compatibility Problems
11
'
3.
Major Problems from Unplanned Development
12
'
4.
Areas Experiencing or Likely to Experience Major
Land Use Changes
12
5.
Identification of Areas of Environmental
'
Concern (AECs)
12
D. Review of Current Plans, Policies, and Regulations
13
II-1

I
E
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1
PAGE
E. Constraints: Land Suitability 15
1. Physical Limitations 15
a. Man -Made Hazards
15
b. Natural Hazard Areas
15
c. Sources and Estimated Quantity of Water Supply
16
2.
Fragile Areas
17
a. Natural Resource Fragile Areas
17
b. Cultural Resource Fragile Areas
17
3.
Areas of Resource Potential
18
F. Constraints: Capacity of Community Facilities
19
1.
Water
19
2.
Sewer
19
3.
Solid Waste
19
4.
Schools
20
5.
Transportation
20
6.
Medical Services
23
7.
Emergency and Protective Services
24
8.
Other Facilities
24
G. Estimated Demand
25
1.
Population and Economy
25
2.
Future Land Need
25
3.
Community Facility Need
26
SECTION
II: POLICY STATEMENTS
27
A. Resource Protection
27
1.
Areas of Environmental Concern
27
2.
Protection of Archaeological Sites
27
3.
Protection of Architecturally or Historically
Important Properties
28
4.
Development in Areas with Constraints
29
5.
Hurricane and Flood Evacuation Needs and Plans
30
6.
Other Resource Protection Policy Areas
30
B: Resource Production and Management Policies
33
1.
Agriculture
33
2.
Commercial Forestry
33
3.
Mining Resource Areas
34
4.
Commercial and Recreational Fisheries
34
5.
Off -Road Vehicles
34
6.
Residential and Commercial Land Development
34
II-2

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PAGE
C.
Economic and Community Development Policies
36
1. Types and Locations of Desired Industry
36
2. Local Commitment to Service Provisions
37
3. Desired Urban Growth Patterns
37
4. Redevelopment of Developed Areas
38
5. Commitment to State and Federal Programs
6. Assistance to Channel Maintenance
39
39
7. Energy Facilities Siting
39
8. Tourism and Beach and Waterfront Access
39
9. Density of Development
39
10. Land Use Trends
40
iD.
Continuing Public Participation Policies
41
E.
Storm Hazard Mitigation, Post -Disaster Recovery,
and Evacuation Plans
42
SECTION III: LAND CLASSIFICATION SYSTEM
44
A.
Developed
44
B.
Transition
45
C.
Rural
46
D.
Conservation
47
'
E.
Other Classifications
47
F.
Land Classification Summary
47
'
SECTION IV: RELATIONSHIP BETWEEN POLICIES AND LAND
CLASSIFICATIONS
48
A.
Developed and Transition Classes
48
B.
Rural Class
48
C.
Conservation Class
48
D.
Community Class
49
SECTION V. INTERGOVERNMENTAL COORDINATION
50
II-3

BURGAW, NORTH CAROLINA
LAND USE PLAN: 1987 UDPATE
LIST OF TABLES AND MAPS
TABLE
NUMBERS
PAGE
1
Town of Burgaw Population 1950-1985, with
Projections to 1995
3
2
Historical and Projected Racial Composition
for Town of Burgaw
3
3
Town of Burgaw, Age by Sex, 1960-1980
4
4
Selected Age Group Summary, 1960-1980
5
5
Town of Burgaw: Current Manufacturers
7
'6
Town of Burgaw: Families Below Poverty
Level, 1979
7
7
Town of Burgaw: Persons Below Poverty
Level, 1979
8
8
1980 Census: Town of Burgaw Housing Summary
8
9
School Capacity and Utilization
20
10
Town of Burgaw, Average Daily Traffic,
Years 1983-1986
21
MAPS
1 Location Map I
2 Existing Land Use Map (Attached)
3 Existing Water Lines Map (Attached)
4 Existing Sewer Lines Map (Attached)
5 Average Daily Traffic Coordinates Map 22
6 Land Classification Map_ (Attached)
III

BURGAW, NORTH CAROLINA
LAND USE PLAN UPDATE, 1987
Analysis of 1981 Policy Statements/Implementation Actions
The CAMA Land Use Plan for coastal communities is essentially a poli-
cy document aimed at guiding localities toward sound growth manage-
ment. Because circumstances, conditions, and issues change over
time, the Coastal Resources Commission, under State law, requires the
local land use plans to be updated every five years in order to "take
a second look" at old policies for their relevance as well as examine
newly emerging trends and concerns. The Commission requires for all
updates an assessment of the previous policy statements and imple-
mentation steps taken to effectuate them. The 1981 Plan Update was
prepared in a slightly different format, but did include direct poli-
cy statements, proposed implementation actions, and expressions of
policy objectives.
RESOURCE PROTECTION
Status/Relevancy
policy/Implementation Actions
1. Policy Statement: The Town of 1. Implemented; ongoing
Burgaw feels there is no alterna- concern.
tive 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.
2. Policy Statement: Burgaw will 2. Implemented.
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.
3. Policy Statement: Burgaw will 3. Partially implemented;
identify historic and architec- ongoing concern.
turally significant properties and
implement land use controls and the
"Downtown Revitalization Study" in
a manner that would encourage use
of historically and architecturally
significant properties.

RESOURCE PROTECTION (continued)
Status/Relevancy
Policy/Implementation Actions
4. Policy Statement: Burgaw will con- 4. Implemented. Two
tinue to permit industrial develop- industries were located
ment within the existing zoning and in the Town's industri-
subdivision regulations and utility al park.
practices.
5. Policy Statement: Burgaw will 5. The ordinances were '
study existing land use controls reviewed, but without
for revisions that would reduce or significant revisions.
prevent strip development and mixed However, more commer-
land use and encourage commercial cial growth did take
development in the downtown area p l a c e a l o n g t h e
and along U.S. 117 Bypass. Other U.S: 117 Bypass.
policies relative to residential '
and commercial development will
remain unchanged.
6.
Policy Statement: Burgaw will con-
6.
Ongoing policy con-
tinue to promote development within
cern.
the. Town limits by permitting high-
er density development within the
,
Town limits as opposed to the
extraterritorial jurisdiction.
7.
Policy Statement: Burgaw will con-
7.
Still under discus-
,
duct a comprehensive review of the
sion.
zoning map for the purpose of
reducing the number of nonconform-
ing uses plus considering alterna-
tives to R-20 zoning in the extra-
territorial jurisdiction.
8.
Policy Statement: Burgaw will pro-
8.
Implemented.
vide water and sewer services
according to existing policies.
9.
Policy Statement: Burgaw will
9.
This policy is under
retain existing land use controls
review for modification
'
relative to mobile homes.
in order to permit some
units of manufactured
housing within the
Town.
10. Policy Statement: Burgaw will con- 10. Partly implemented. ,
tinue efforts to implement the
"Downtown Revitalization Study."
11. Policy Statement: It shall be the 11. Implemented; ongoing
policy of the Town of Burgaw to concern.
encourage and allow public partici-
pation in all land use planning
matters.

1
RESOURCE PROTECTION (continued)
policy/Implementation
12. 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.
1
1
Status/Relevancy
Actions
12. Still a relevant con-
cern.

� SECTION
� Analysis of Existing Conditions
and
� Projected Demand
f

TOWN OF BURGAW
LAND USE PLAN
A. ESTABLISHMENT OF INFORMATION BASE
This 1987 Land Use Plan Update for the Town of Burgaw has been
prepared in accordance with requirements of the North Carolina
Coastal Area Management Act (CAMA). Specifically, this docu-
ment complies with Subchapter 7B, "Land Use Planning Guide-
lines," of the North Carolina Administrative Code, as amended,
June 1985.
The initial CAMA Land Use Plan was prepared for the Town of
Burgaw in 1976, and the first update in 1981. According to
the Land Use Planning Guidelines, the major purpose of per-
iodic updating of local land use plans is to identify and
analyze newly emerging community issues and problems. An
additional element which was not required in either the 1976
Plan or the 1981 Update is a "Storm Hazard Mitigation, Post -
Disaster Recovery, and Hurricane Evacuation Plan," and is
required to be included in the 1986 Update. This element is
designed to help local governments coordinate effective poli-
cies and actions relating to the impact of hurricanes or other
severe storms. The Town of Burgaw, however, is an inland
community and not as subject to hurricane threats as some
other coastal communities.
The guidelines further give the following objectives the
update should meet:
° To further define and refine local policies and issues
° To further examine and refine the land classification
system and the land classification map
° To assess the effectiveness of the existing land use plan
and its implementation
° To further explore implementation procedures
° To promote a better understanding of the land use planning
process
Both the 1976 Land Use Plan and the 1981 Update provided some
of the needed information base for this most recent update.
However, in many cases, new information had to be developed.
A number of data sources were tapped during the preparation of
this plan in order to prepare updated analyses of population,
housing, economics, and existing land uses. Most of the data
came from primary and secondary sources in the form of direct
contacts with representatives of various state and federal
1

agencies and/or previously published documents or reports.
Also, "windshield" surveys were conducted to obtain data on
existing land use patterns. Interviews were conducted with
various Town officials. Efforts were made to obtain. data that
was as up to date and accurate as possible.
The data analysis showed some dramatic changes and emerging
trends in some cases. The major conclusions of this updated
land use plan are:
1.
Burgaw's population has rapidly increased since the 1981
.Land Use Plan Update. Consequently, residential growth
within the Town limits has nearly peaked, thereby encour-
aging more residential development in the extraterritorial
limits.
2.
Strong commercial growth has occurred along major highways
of the Town. The population growth and the construction
of Interstate 40 are two major factors contributing to
this growth.
Some of the data sources utilized in preparing this document
include:
1.
U.S. Census of the Population, General Population
Characteristics, 1960
2.
N.C. State Data Center, Office of State -Budget and
Management
3.
1981 Burgaw Land Use Plan Update
J
2

B. PRESENT CONDITIONS
1. Population:
Table 1, below, shows the decennial population of the Town
of Burgaw from 1950 to 1980, with 1985 estimates and pro-
jections to 1990 and 1995.
TABLE 1: Town of Burgaw Population
1950-1985, with Projections to 1995
Year Population Num. Change % Change
1950 1,613 -- --
1960 1,750 +137 + 8.50
1970 1,744 - 6 - 0.3
1980 - 1,586 -158 - 0.9
*1985 1,829 +243 +15.30
**1990 2,176 +347 +19.00
**1995 2,531 +355 +16.31
Source: N.C. State Data Center; Office of State Budget
and Management
*As of July 1, 1985
**Assumes constant annual growth rate of 3.06%,
based on 1980-1985 figures
Although Burgaw showed a substantial growth of 8.5%
between 1950 and 1960, it then experienced a slight
decline in population for the next two decades. From 1960
to 1980, the Town lost a total of 164 persons. However,
the Town of Burgaw had a remarkable growth rate from 1980
to July 1985, gaining 243 persons; thus, an increase in
population of 15.3%. This five-year period of growth far
exceeded the Town's population growth over the previous 30
years.
a. Composition
TABLE 2: Historical and Projected Racial Composition
for Town of Burgaw
White Non -White
Year M- F- Total M M- F- Total M
1960 950 (54%) 800 (46%)
1970 -- -- 968 (55%) -- -- 776 (45%)
1980 414 522 936 (59%) 287 363 650 (41%)
1990 565 719 1284 (59%) 392 500 892 (41%)
1995 657 836 1493 (59%) 457 581 1038 (41%)
' -- Not Available
The racial composition of Burgaw's population has
changed moderately since 1960. As Table 2 shows,

TABLE 4: Selected Age Group Summary, 1960-1980
Selected Num. Num. Total
Age Change Change Change
Groups 1960 1970 (1960-70) 1980 (1970-80) (1960-80)
Under 5 160 144 - 16 85 - 59 - 75
5-14 353 340 - 13 241 - 99 -112
15-24 247 285 38 257 - 28 10
25-64 813 794 - 19 748 - 46 - 65
65+ 177 181 4 255 74 78
Source: U.S. Census of the Population, General Popu-
lation Characteristics, PC(1)-35B, -
Washington, 1960
U.S. Bureau of the Census, First Count Sum-
mary Tape, unpublished census data, 1970
N.C. State Data Center, Office of State
Budget and Management
From 1960 to 1980, Burgaw's population declined in all
of the selected age groups listed in Table 4, except
in the 15-24 age group and the 65+ age group. Since
selected age group population data is not available
for 1985, it would be difficult to project age group
populations to the years 1990 and 1995. Attempting to
make such projections from 1960, 1970, and 1980 data
would not be reasonable because the population
declined during these years and the remarkable growth
experienced from 1980 to July 1985 would be excluded.
Refer to Table 1 on page 3.
b. Seasonal Population
As an inland community with no major tourist attrac-
tions, the Town of Burgaw's population does not fluc-
tuate seasonally.
c. Population Summary
The analysis of existing and projected population in
the Town of Burgaw suggests the following trends:
(1) Although Burgaw's population experienced slight
declines from 1960 to 1980, its population rapidly
from 1980 to July 1985 at a rate of 15.3%,
grew
and such growth is projected to continue to 1995.
The racial composition of the Town is projected to
continue in the range of 59%/41% proportion of
whites to non -whites. Also, females will continue
to outnumber males, as has been the trend since
1960.
5

2.
(2) Although this Land Use Plan does not statistically
illustrate the projected population of selected
age groups due to unavailable data, it can be
reasonably predicted that with the increased total
population projected through 1995, the school
system will need to expand its facilities and
staff to accommodate more students. The three
County schools attended by Burgaw residents are
already experiencing crowded conditions.
(3) As the population increases, it is very likely
that many of the households will choose to reside
within the extraterritorial limits of Burgaw due
to limited available residential property within
the Town limits. _
Economic Analysis
a. General
As the government seat of Pender County, the Town of
Burgaw is primarily a center of retail and wholesale
trade, manufacturing, health services, public admini-
stration, and professional services such as finance,
insurance, and real estate.
b. Commercial Activity
Burgaw's commercial activity is strong, with growth
having occurred over the past five years, particularly
along the U.S. 117 Bypass. Perhaps the biggest boost
to its commercial sector was the construction -of a
shopping center at the intersection of U.S. 117 Bypass
and N.C. 53. The Town of Burgaw worked with the
developer of this shopping center by annexing the site
and providing it with the Town's water and sewer
service. In addition to commercial activity along
U.S. 117 Bypass, the Town's Central Business District
continues to offer various sales and services.
c. Manufacturing
The following manufacturing companies are located
within the Town limits or its one -mile extra-
territorial boundaries.

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1
TABLE 5: Town of Burgaw: Current Manufacturers
Manufacturer
Approx. Number
of Employees
1.
Burgaw Milling Company
.26
2.
Carlisle Poultry & Egg Associates
53
3.
Caroline's Ruffled Curtains
20
4.
Lewis Sausage Company
22
5.
Murphy Brothers Milling Company
7
6.
Myers Craft Manufacturing Company
20
7.
Oxford Manufacturing
139
8.
Southern Best Incorporated
20
9.
Williams Lumber Company
20
TOTAL 327
In its attempt to attract more industries, the Town of
Burgaw rezoned a 56.3-acre tract of land in 1980 from
R-12 to I for an industrial park. Two companies,
Southern Best and Caroline's Ruffled Curtains, have
located in the park.
d-. Income
TABLE 6: Town of Burgaw: Families Below Poverty
Level, 1979 (in comparison to Pender County
and North Carolina)
1979
Number % of Population
Town of Burgaw 174 16.8%
Pender County 990 16.5%
North Carolina 183,146 11.6%
Source: Census on Population and Housing, 1980, N.C.
State Data Center
Office of State Budget and Management
As Table 6, above, illustrates, the percentage of
families in Burgaw with incomes below the poverty
level is significantly higher than North Carolina's
percentage. This is also true for persons with
incomes below the poverty level, as noted in Table 7,
below:
7

Table 7: Town of Burgaw: Persons
Below Poverty
Level, 1979 (In Comparison to Pender County
and North
Carolina)
Number
% of Population
Town of Burgaw
351
22.1
Pender County
4,633
20.8
North Carolina
839,950
14.8
Source: Census on Population and
Housing, 1980, N.C.
State Data
Management
Center; Office
of State Budget and
e. Economic Summary
The analysis of current economic conditions indicates
the following trends:
a. The Town of Burgaw will remain as Pender County's
center for goods and services. Additionally, the
Town's manufacturing sector may experience slight ,
growth over the next ten years with the Town's
continuing efforts to attract new industries.
b. With 16.8% of Burgaw's families being below the
poverty level, it is most important that Burgaw's
manufacturing and commercial activities increase
over the next ten years in an effort to lower this ,
high poverty level while meeting the increased
demands of its predicted growing population.
3. Housing
TABLE 8: 1980 Census - Town
of Burgaw Housing Summary
Item
Number
Total Units
646
Vacant, Seasonal Migratory
47
Year -Round Units
646
Vacant Year -Round Units
47
Occupied Year -Round Units
599
Persons in Occupied Units
1,576
Average Household Size
2.63
Source: N.C. State Data Center; Office of State Budget
and Management
As shown in Table 8, above,
47 of the total 646 housing
units in the Town of Burgaw
were vacant. Of the 47 vacant
units, representing 7.3% of
the total housing stock in
8

1980, eight were for sale, five were available for rent,
nine were held for occasional use, and 25 units were list-
ed by the Census as "other vacant." Based on a windshield
housing
survey conducted in October 1986, substandard
units do exist within the Town of Burgaw. This is further
documented by the 1980 Census showing that 31, or 4.8%, of
the 646 year-round housing units contain no bathroom or
only a half bath, and 20, or 3%, of the 646 year-round
housing units lack complete kitchen facilities. Of the
599 occupied housing units, two houses lack any type of
heating equipment, and seven houses were without water
heaters. In an effort to address the substandard housing,
the Town of Burgaw is currently administering an FY 1985
Community Development Block Grant program. Through this
program, 23 deteriorated housing units will be rehabil-
itated, and five dilapidated dwelling units will be demol-
ished. Additionally, the Town of Burgaw works closely
with the Pender County Housing Authority to help improve
housing conditions for its low -to -moderate income citi-
zens. Since 1981, three public housing complexes, pro-
viding a total of 110 dwelling units, have been con-
structed within Burgaw's town limits.
i
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C.
EXISTING LAND USE ANALYSIS
1. General Patterns
The general land use pattern of Burgaw has noticeably
changed since the 1981 Update. Undeveloped land in the
eastern portion of Town has changed to single-family
residential use. Also, forestland/farmland along the
U.S. 117 Bypass has changed to commercial since 1981.
Land use changes since 1981 are also evident in the extra-
territorial jurisdiction where forestland/farmland has
changed to residential use in several areas.
a. Residential Land Use
Residential land uses are concentrated within Burgaw's
town limits, with a significant amount of scattered
residential land uses in the extraterritorial juris-
diction. Burgaw's residential land use pattern has
noticeably changed since the 1981 Update. Land in the
eastern portion of Town (particularly between Cowan
Street and U.S. 117 Bypass),.which was wooded vacant
land in 1981, has since been developed into single-
family residential uses. Since 1983, 29 permits were
issued for the new construction of conventional
single-family homes, and 19 permits were issued for
the placement of mobile homes. (Records were unavail-
able for 1981 and 1982.)
b. Commercial Land Use
The Town,of Burgaw has two areas of commercial concen-
tration. One is the Central Business District and the
other area is located along U.S. 117 Bypass. The
Central Business District has changed very little
since 1981; however, substantial commercial growth has
occurred along U.S. 117 Bypass. For example, a fast
food restaurant and a shopping center, containing one
grocery store and several smaller stores, have located
at the intersection of U.S. 117 Bypass and N.C. a
Highway 53.
C. Industrial Land Use
Historically, Burgaw's industrial land uses have been
scattered throughout the Town and its extraterritorial
jurisdiction. However, since 1980, a 53.6-acre indus-
trial park has been developed within the town limits.
Presently, two of Burgaw's nine manufacturers are
located within this park.
d. Institutional Land Use
Burgaw's institutional land uses are comprised of the
County hospital, two County schools, two private
10

schools, one cemetery, two parks, government offices,
utilities, and numerous churches.
e. Recreation Lands
The of Town of Burgaw has very limited amounts of land
donated to recreational uses. Within the Town limits
there are two small parks, each less than one acre in
'
size. One contains a tennis court and playground
equipment. The other, which was recently donated to
the Town called the Vann Street playground, currently
contains a basketball court with plans to add
playground equipment as well. the Pender Memorial
Park, which is primarily a little league baseball
park, is partly within the Town limits and partly
within the extratertorial jurisdiction. Also, within
the extratertorial area is the private Burgaw county
club whcih currently has a nine -hole golf course, with
room for expansion to 18 holes. The Town does have a
need for additional public recreational land.
f . Land Use Summary
The Town of Burgaw has experienced substantial resi-
dential growth since the 1981 Land Use Plan Update.
Residential growth is most evident in the eastern
portion of Town and along State Roads 1343 and 1400 in
the extraterritorial jurisdiction. Although the
majority of residential growth has been the construc-
tion of private single-family dwellings, three public
housing complexes, consisting of 110 total units, have
also been constructed since 1981.
The Town of Burgaw does not allow the "scattered -site"
placement of mobile homes within the town limits.
However, in recognizing the need and desire of some of
its citizens to seek this less expensive type of
housing, Burgaw will consider mobile home subdivisions
on a case -by -case basis, as with any subdivision
request.
Burgaw has experienced moderate commercial growth
since 1981, most notably along the U.S. 117 Bypass.
However, the amount of farmland converted to this use
to date has not been substantial, although continued
commercial growth along this highway is predicted over
the next ten years. With the exception of the newly
developed industrial park, the industrial and institu-
tional land uses have changed very little over the
past five years.
2. Significant Land Compatibility Problems
'
A land compatibility problem is generally identified when
two or more land use types are adjacent to each other, and
11

3.
4.
one is somehow restricted from expansion because of
adverse conditions caused by the other, thus discouraging
additional investment. The completion of Interstate 40,
just beyond the one -mile extraterritorial limits of
Burgaw, has raised the concerns of incompatible land uses
among residents of N.C. 53 from Burgaw to I-40. Although
currently residential in character, N.C. 53, from U.S. 117
to I-40, provides a direct corridor, which may be attrac-
tive for commercial developments. Since the preparation
of the 1981 Plan Update, significant commercial activities
have developed at the intersection of N.C. 53 and
U.S. 117. Concern has been raised by some citizens that
the commercialization of this intersection will spread
eastward to I-40, potentially affecting the current resi-
dential character of the area. The incompatibility issue
centers around the possible encroachment of commercial
activities adjacent to older residential areas. The area
is currently zoned for low -density residential (RA-20).
However, increasing pressures for commercial activities
and rezonings could lead to an incompatible mix of commer-
cial and residential land uses.
Major Problems from Unplanned Development
In Burgaw, the major problems from unplanned development,
again, relate to the potential for significant land com-
patibility problems involving commercial and residential
uses along portions of U.S.'117 and the N.C. 53/I-40 cor-
ridor. In order to address this issue, it may be neces-
sary to review existing land use controls and perhaps make
them stricter. Other problems which could arise from
unplanned development include the water service and sewer
capacity to meet what appears to be growing industrial and
commercial developments within the one -mile extra-
territorial area of Burgaw (located in Pender County).
However, the Town has.taken active steps to upgrade its
sewer capacity and extend water service to certain areas.
Areas Experiencing or Likely to Experience Major Land Use
Changes
Since 1981, Bu'rgaw has experienced major land use changes
along the U.S. 117 Bypass. Although scattered commercial
and industrial sites existed along U.S. 117 Bypass prior
to 1981, commercial development of once vacant land has
increased significantly over the past five years. With
limited space available for commercial expansion within
the Central Business District, it is expected that commer-
cial development will continue along the U.S. 117 Bypass.
With the construction of I-40, which runs within two miles
of the Town of Burgaw, it is also likely that commercial
and industrial development will occur over the next ten
years along Highway 53, between Bypass 117 and Interstate
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40. This will create a major change from primarily resi-
dential use and forestland, assuming the current property
owners of this land would be willing to sell.
5. Identification of Areas of Environmental Concern (AECs)
Since the Town of Burgaw is an inland community, located
35 miles from the Atlantic Ocean, neither of the two broad
categories of Areas of Environmental Concern (AECs) for
Coastal North Carolina (i.e., Estuarine System AECs and
Ocean Hazards AECs) apply to Burgaw.
REVIEW OF CURRENT PLANS, POLICIES, AND REGULATIONS
1. Local Plans, Studies, and Regulations
The Town of Burgaw has adopted the following plans,
studies, and regulations:
a. Town of Burgaw Land Use Plan, 1976. Prepared by the
Town of Burgaw with assistance from the North Carolina
Department of Natural and Economic Resources under
CAMA, this initial plan describes the current popula-
tion and economy, existing land uses, land use con-
straints, and community facilities constraints. Based
on these existing conditions, it projects future needs
and demands, and sets policies and objectives for
meeting those needs.
b. Town of Burgaw Land Use Plan Update, 1981. This was
the first five-year update of the initial CAMA Plan
(1976) and provides a reassessment of existing condi-
tions and projections of population, land use, and
economic conditions. Additionally, policy statements
and implementation strategies were updated.
C. 201 Wastewater Facilities Study, 1977. A 11201"
Wastewater Facilities Study was prepared and adopted
for Burgaw in 1977. This study provides a 20-year
planning period management and improvement program for
Burgaw's sewer facilities. A major recommendation of
that plan was to correct the stormwater inflow problem
which caused occasional overload and to relocate the
effluent discharge to the Northeast Cape Fear River.
Burgaw quickly implemented this program, thus solving
the problems cited in the "201" study.
d. Zoning Ordinance, 1977. In September 1977, Burgaw
adopted its Zoning Ordinance, which was prepared by
the North Carolina Department of Natural Resources and
Community Development. Enforcement of this ordinance
is the responsibility of the Building Inspector. This
ordinance contains residential, office and institu-
tional, business, industrial, and flood plain zoning.
13

Numerous nonconforming -uses, particularly in the
extraterritorial jurisdiction where businesses and
industries were located in R-20 districts, were noted
upon review of this ordinance. Although the 1981 Land
Use Plan Update recommends Burgaw's updating its
zoning Ordinance every five years, no update has been
made.
e. Subdivision Regulations, 1977. In 1977, Burgaw
adopted its Subdivision Regulations, which were pre-
pared with assistance from the North Carolina Depart-
ment of Natural Resources and Community Development.
All subdivision plats are reviewed by the Planning
Board and Board of Commissioners.
f. North Carolina State Building Code. The Town of
Burgaw adopted the North Carolina State Building Code, ,
Plumbing Code, and Electrical Code in 1941, and
updated it in June 1975. It is the responsibility of
the Town Building Inspector to enforce all of these
codes.
g. Water and Sewer System Policies. With the exception
of the following specific policies, Burgaw generally
handles the decisions of water and sewer service on a
case -by -case basis, with the cost to the Town being
the'most decisive factor:
(1) At its own expense, Burgaw extends water and sewer
mains to subdivisions located within the town '
limits. However, the developer is responsible for
the service lines.
(2) Developments located within 300 feet of existing
water and/or sewer mains must hook onto those
mains.
(3) Under Burgaw's Subdivision Regulations, a develop-
er is required to install water and sewer services
in subdivisions with lot sizes less than 20,000
square feet.
h. Pender County Wastewater Disposal Ordinance. This
ordinance applies to Burgaw's jurisdiction when land
development requiring septic tanks is proposed. This
ordinance requires that the installations of septic
tanks be approved by the Pender County Health Depart-
ment.
i. Sewer Use Ordinance, 1978. On May 9, 1978, the Town
of Burgaw Board of Commissioners adopted Ordinance
#76-2 regulating the use of sewers. On January 14,
1986, the ordinance was amended by the Board of
Commissioners.
14 1

E. CONSTRAINTS: LAND SUITABILITY
' Under land suitability, possible serious constraints to devel-
opment are generally considered under the broad categories of
(1) physical limitations, i.e., hazardous (man-made or natu-
ral) areas, areas with soil limitations, hazardous slopes,
etc.; (2) fragile areas, i.e., AECs, complex natural areas, or
areas with cultural (architectural or archaeological) signifi-
cance; and (3) areas with resource potential, i.e., productive
or prime agricultural or forestlands, or potentially valuable
mineral sites.
1. Physical Limitations
a. Man -Made Hazards
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i
The most significant man-made hazards in Burgaw are
bulk fuel and chemical storage facilities, which are
located along major thoroughfares, and in some cases
are in close proximity to other structures. Continued
enforcement of and amendment to the Zoning Ordinance
will help facilitate compatible land uses and thus
minimize adverse impact to the surrounding areas.
b. Natural Hazard Areas
Flood Hazard Area: A detailed Flood Insurance
Study showing elevations and flood hazard areas has
not been prepared for the Town of Burgaw.
Areas with Soils Limitations: In 1985, the USDA
Soil Conservation Service, in cooperation with the
Pender County Board of Commissioners, prepared an
"Inventory and Evaluation of Soil and Water Resources
for Pender County. The report includes detailed
descriptions of the soil types and properties for the
Town of Burgaw with discussion of the suitability for
various uses, such as urban development, septic tank
placement, croplands, and recreation. The most
important feature or property of soils to consider in
nearly any location is the drainage capability, since
well -drained, stable soils can be used for a variety
of development purposes.
Generally, most of the soils within Burgaw's jurisdic-
tion have moderate to severe limitations for many uses
because of wetness. "Moderate" means the soil limita-
tions are moderately favorable for a specific use if
careful planning and design, or special maintenance,
are undertaken. "Severe" means that the soil proper-
ties are so unfavorable and so difficult to overcome
that major soil reclamation, special designs, and
intensive maintenance may be required. Of the 17
15

c.
mapped soils classifications in the Burgaw territory, '
12 were characterized as being "poorly drained" with
limitations for urban development, i.e., building and '
septic tank placement; three were described as "moder-
ately well -drained"; and two were characterized as
"well drained." With the recently -established trend
in population growth, a very important consideration '
is the extent of soils suitable for urban development.
Much of Burgaw's extraterritorial area consists of
Grantham loam, which has a high percentage of clay and
perks slowly. Its wetness creates severe limitations
for septic tank absorption fields, building and road
construction, and lawns landscaping, and golf fair-
ways.
Sources and Estimated Quantity of Water Supply
'
Groundwater: Groundwater comprises the sole
source of water supply for both public and private
systems in Pender County, including Burgaw. Subsur-
face water of reasonable quality and quantity can be
found throughout the County, as the area is underlain
by a vast aquifer system from which -potable water can
be drawn at various depths. There are four geologic
strata occurring in the aquifer system underlying the
County.
Pleistocene and recent surficial sands cover most of
Pender County and constitute the principal water
source for individual wells and rural domestic sup-
plies in the County (Von Oesen and Associates, 1972).
'
In the surficial sands, water usually occurs under
watertable conditions within 15 feet of the land sur-
face. The productivity of this aquifer is limited
primarily only by its thickness; it is recharged
directly by rainfall and is easily subject to contami-
nation. The surficial sands are the only potable
water supply between the Cape Fear and Black Rivers,
where the underlying stata contain brackish water.
The Yorktown clays, shell beds, and marls occur on a
limited basis east of the Northeast Cape Fear River.
This formation is absent in the central and western
parts of the County, which includes the Burgaw area.
'
The Castle Hayne aquifer is not extensively used for
water supply in the County, but is potentially
valuable as a large, long-term supply, especially in
the east.
The Peedee Cretaceous sands, limestones, and marine
clays occur throughout Pender County. For the most
part, west of the Northeast Cape Fear River, the
Peedee immediately underlies the surficial sands.
16 1

Toward the east, it occurs beneath, and is in
hydraulic connection with the Castle Hayne. In both
' cases, the Peedee is recharged directly by rainfall.
The Peedee furnishes water to many wells drilled west
' of the Northeast Cape Fear River; wells in it vary
from 50-200 feet deep and yield up to 300 gpm
(Wiggins -Rimer & Associates, 1973).
Burgaw's water system consists of three wells with a
maximum capactiy of 1,000,000 gallons per day.
i Surface Water Quality: No surface water exists
within the jurisdiction of the Town of Burgaw or its
vicinity. The closest body of water, which is the
' Northeast Cape Fear River, is located approximately
five miles east of Burgaw.
' 2. Fragile Areas
These are areas which could be easily damaged or destroyed
by inappropriate or poorly planned development. More
' specifically, these are: coastal wetlands, sand dunes
along the outer banks, ocean beaches and shorelines,
estuarine waters and estuarine shorelines, public trust
waters, complex natural areas, areas that sustain remnant
species, areas containing unique geological formations,
registered natural landmarks, and others, such as wooded
swamps, prime wildlife habitats, scenic and prominent high
points, and archaeological and historic sites. Obviously,
very few of these areas are located within Burgaw's juris-
diction. For discussion purposes, these fragile areas
will be divided into two broad categories: "Natural
Resource Fragile Areas" and "Cultural Resource Fragile
Areas."
a. Natural Resource Fragile Areas
Natural resource fragile areas are generally recog-
nized to be of educational, scientific, or cultural
value because of the natural features of the particu-
lar site. These areas include: complex natural
areas, areas that sustain remnant species, unique
geological formations, wooded swamps, prime wildlife
habitats, or registered natural landmarks. Consulta-
tion with the North Carolina Natural Heritage Program,
revealed that none of these natural resource fragile
areas have been identified in the Town of Burgaw or
its extraterritorial jurisdiction. Also, it should be
1 noted that no 11404 neland areas have been identified
in the Burgaw jurisdiction. Such areas are regulated
by the U.S. Army Corps of Engineers.
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b. Cultural Resource Fragile Areas
Although no comprehensive inventory of architecturally
or historically important properties within Burgaw and
its extraterritorial jurisdiction has been completed
yet, based on consultation with the N.0 Division of
Archives and History - Department of Cultural
Resources, two properties have been entered into the
National Register:
The Burgaw Railroad Station, located at 102 East
Fremont Street, was entered into the National
Register in September 1986
The Pender County Courthouse, located on Wright
Street, was entered into the National Register in
May 1979
One historic archaeological site is recorded within an
archaeologically -sensitive area located within the
extraterritorial jurisdiction of Burgaw. No archaeo-
logical sites are presently recorded within the town
limits; however, there is a moderate -to -high probabil-
ity that such unrecorded sites exist in undisturbed
areas. A comprehensive archaeological survey of
Burgaw and its extraterritorial jurisdiction has not
been conducted.
3. Areas of Resource Potential
Areas with resource potential include: productive and
unique agricultural lands; potentially valuable mineral
sites; publicly -owned forests, parks, fish, and gamelarids,
and other non -intensive outdoor recreation lands; and
privately -owned wildlife sanctuaries. Agricultural lands
and forestlands are the only areas of resource potential
that apply to Burgaw. The majority of the land within
.Burgaw's extraterritorial jurisdiction is agricultural and
forestlands. However, agricultural and commercial forest-
ry are not substantial income producers for Burgaw. Due
to Burgaw's expanding growth in commercial and residential
land uses, it is not likely that its resource potential
will increase in these two areas.
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F. CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
' 1. Water
Burgaw's water system consists of three wells with a maxi-
mum daily capacity of 1,000,000 gallons, and two elevated
storage tanks with a combined storage capacity of 175,000
gallons. The entire Town is served by the water system
' with its water lines extending into some areas of the
extraterritorial jurisdiction. Refer to Map 3 which is
attached to this report. The water system adequately
serves all of its customers with the current maximum daily
usage being thirty percent of its capacity. At this time,
the Town has no plans to expand the water system. It is
anticipated that the current water system can sufficiently
serve the Town's projected population of 2,531 in the year
1995.
'
2. Sewer
With the exception of 6- 8 houses, the entire Town of
Burgaw is served by its centralized sewer system. As
'
physical growth of the Town occurs, the sewer lines are
extended to meet those demands.
The existing wastewater treatment plant has a capacity of
'
300,000 gpd, with an available surplus of 110,000 gpd.
In 1986, the Town received an EDA and EPA grant for the
redesign and construction of its present wastewater treat-
ment plant to upgrade it to 500,000 gpd. The construction
began in April 1987, with completion scheduled for April
1988.
'
According to the '1201" Wastewater Management Plan, the
existing plant, with a 300,000 gpd capacity, is capable of
serving a population of 2,250 persons. With the 1985
population of 1,829 persons and a projected 1995 popula-
tion of 2,531 persons, it is anticipated that the upgraded
plant of 500,000 gpd will adequately meet the demands of
the population throughout this planning period.
The existing sewer system is illustrated on Map 4.
'
3. Solid Waste
The Town of Burgaw has its own garbage collection service,
and uses the Pender County Landfill, which is located
approximately five miles west of Burgaw. This landfill
has a life expectancy of seven years. No definite
replacement site has been chosen; however, Pender County
is currently evaluating possible sites.
19

4. Schools
The residents of the Town of Burgaw attend three of Pender
County's twelve schools. These are: Burgaw Elementary
School and Burgaw Middle School, which are both located
within the Town limits, and Pender High School, which is
located approximately five miles west of Burgaw. Table 3
shows that Pender High School's 1985-1986 enrollment of
1,033 students exceeded its design capacity of 946. The
Board of Education anticipates this problem to continue,
and it sees a definite need for expansion.
TABLE 9: School Capacity and Utilization
Design ------- Enrollment --------
School Grades Capacity 1974-75 1981-82 1985-86
Burgaw Elem. K-5 572 586 633 510
Burgaw Middle 6-8
660
658
584
523
Pender High 9-12
946
775
852
1,033
TOTAL
2,178
2,019
2,069
2,066
As Table 9 further illustrates, Burgaw Elementary School
and Burgaw Middle School have not yet reached their design
capacity. However, the constraints are already being
experienced, and the need for expansion of these two
schools also exists. Although the Board of Education
hopes to expand these schools within the next five to ten
years, no definite plans are currently underway.
5. Transportation
As Table 10 illustrates, the Town of Burgaw has experi-
enced a significant increase in average daily traffic from
1983 to 1986. These increases and changes in the traffic
counts from year to year are due to two factors: (1) the
Town's estimated 15.3% population increase since 1980, and
(2) the construction of Interstate 40 approximately two
miles east of Burgaw.
Of the 16 coordinates given on Map 5, page 22, ten show
increased daily traffic with the percentages ranging from
6.7% to as high as 66.7%. It is interesting that the most
dramatic increases in daily traffic have occurred along
Highway 53 (Bridges Street) at coordinates 3, 5, and 6,
and on Walker Street near the in of Bridges
Street (coordinate 8). This increase in average daily
traffic along Highway 53 is largely due to the construc-
tion of Interstate 40. A comparison of the average daily
traffic for 1983-1986, with the completion dates of Inter-
state 40, supports this theory.
20

Table 10: Town of
Burgaw -
Average
Daily Traffic
Years 1983, 1984,
1985,
1986
% Change
'
*Coordinate
1983
1984
1985
1986
1983-1986
'
1
1,100
1,300
1,100
1,300
+
18.2
2
3,900
3,700
3,300
2,200
43.6
3
3,000
3,400
3,200
4,700
+
56.7
4
4,700
4,100
4,100
3,900
-
17.0
5
2,200
2,200
2,400
3,300
+
50.0
6
2,600
3,000
3,300
3,700
+
42.3
7
1,100
1,300
1,200
1,4.00
+
27.3
8
2,400
3,400
3,000
4,000
+
66.7
9
2,600
--
2,400
--
-
7.7
'
10
1,000
==
2,100
=_
+
1.1
11
1,600
1,200
25.0
12
4,500
3,000
4,500
6,000
5,600
+
+
33.3
27.3
13
4,400
5,000
5,000
14
6,100
--
--
4,900
-
19.7
15
5,000
4,000
3,500
3,000
-
40.0
16
1,500
1,600
1,700
1,600
+
6.7
TOTAL
+
176.6
'
* Coordinates correspond
with Map
5
-- Data not
available
'
Source:
North Carolina Department of
Transportation
21

a
AFN F W p�L o
A�
Sr
'
\ w�L�,p1NGSGN
5g \ ii
AVERAGE DAILY TRAFFIC COORDINATES MAP
BURGHW , NORTH CAROLINA
LEGEND
INCREASED ADT (1983-1986)
DECREASED ADT (1983- 1986)
' 22
MAP 5

I
The Town of Burgaw has direct access to Interstate 40 via
Highway 53. To date, three sections of Interstate 40 have
been completed. On December 4, 1984, the first section
from Highway 210 near Rocky Point, North Carolina, to
Highway 117 near Wallace, North Carolina, was opened for
public use. This allowed motorists to travel I-40 rather
than Highway 117 between Rocky Point, North Carolina, and
Wallace, North Carolina, thus bypassing Burgaw. As Table
10 illustrates, this section of Interstate 40 had little
effect on Burgaw's average daily traffic along Highway
53.
On December 20, 1985, the second section of Interstate 40
from Highway 210 to Wilmington, North Carolina, was opened
to the public. Following the opening of this section, the
average daily traffic increased drastically at coordinates
3, 5, and 6 along Highway 53, as is illustrated on Table
10.
rThe
third section of Interstate 40 between Highway 117
near Wallace, North Carolina, to Highway 41 opened on
November 26, 1986. This five -mile section is not likely
'
to. cause any dramatic changes in Burgaw's average daily
traffic count.
Along with the substantial increases in average daily
traffic at particular coordinates, Table 10 also illus-
trates significant decreases. The most drastic decreases
in traffic have occurred along Bypass 117, at coordinates
'
2 and 15. Refer to Map 5 on page 22. The traffic
remained relatively unchanged at these two coordinates
from the years 1983 to 1985. However, following the open-
ing of the second section of Interstate 40 on December 20,
North
1985, which linked Highway 117 near Wallace,
Carolina, to Wilmington, North Carolina, a substantial
drop in the average daily traffic occurred along Bypass
117, as is illustrated by the 1985 and 1986 figures for
coordinates 2 and 15. It is assumed that this decrease in
traffic along Bypass 117 is a result of motorists travel-
ing on Interstate 40 between Wilmington and Wallace rather
than Highway 117.
' In addition to the notable changes which have occurred
along Highways 117 and 53, many streets within the town
limits have also experienced an increase in traffic since
1983, as is illustrated on Map 5, page 22. This is a
result of Burgaw's population growth. Refer to Table 10,
page 21, for actual numerical and percentage changes for
each coordinate.
6. Medical Services
The Pender County Health Department and Pender Memorial
Hospital are both located within the Town limits of
23

'
Burgaw. Pender Memorial
Hospital, which is
an 80-bed
facility, is currently capable of meeting the
needs of the
Town and the surrounding
County. There are
six physicians
in private practice in the Town of Burgaw.
Additional
'
specialized services are
available in Wilmington
(25 miles
away) and Greenville (95
miles away). One
rest home is
also located in Burgaw.
This facility has
72 beds and a
'
rather extensive waiting
list.
7. Emergency and Protective Services
'
The Town of Burgaw is served by a volunteer fire depart-
ment with forty members. This department sufficiently
meets the needs of the Town. It is not anticipated that
additional personnel will be needed within this planning
period.
d '
Emergency medical rescue is provided.by the Pender County
Rescue Squad, which serves, in addition to Burgaw, the
communities of Atkinson, Currie, and Rocky Point. The
squad, which is based in Burgaw, is comprised of 47 volun-
teers, with 44 of those being Certified Emergency Medical
Technicians. It has three operating ambulances. A heli-
copter pad is currently under. construction at Pender
County Memorial Park near Burgaw. This pad was donated by
the Jaycees for emergency uses.
'
The Pender County Rescue squad is financed, in part, by
the County. However, it is extremely dependent upon dona-
tions. The squad is presently repairing one ambulance at
approximately one-half the cost of purchasing a new
vehicle. Additionally, one transport van is needed.
It is projected that these needs of financial assistance
'
will continue throughout the planning process.
8. Other Facilities
The existing Town Hall was constructed in 1965. Due to a
severe need for additional space, the Town recently pur-
chased a building on the lot adjoining the Town Hall. The
Town will house its administrative offices in both of
these buildings, with the Town Clerk's office remaining ,
in the present Town Hall, and the Police Department,
Building Inspector's office, and the meeting room being
housed in the newly purchased building. Also, as noted '
under the discussion of existing land uses, Burgaw could
benefit from additional public recreational facilities.
IJ
24

G. ESTIMATED DEMAND
' 1. Population and Economy
Between the years of 1960 and 1980, the Town of Burgaw
' experienced a slight decline in its population. However,
from 1980 to July 1985, Burgaw showed a substantial growth
rate of 15.3%. This computes to an average annual growth
' rate of 3.09%. Assuming this constant growth rate con-
tinues over the next five years, by 1990 the population
could increase 19%, to 2,176 persons. If the population
does increase to 2,176 in 1990, it could be further pro-
jected that the population could increase an additional
16.31% by 1995, having a population of 2,531 persons.
According to the 1960 Census, Burgaw's average household
size equaled 2.63 persons. Assuming this remains the
average in 1995, Burgaw's increased population could
result in 962 households, which is an increase of 363
households since 1980. With the predicted growth of
Burgaw's population and households, demand for goods and
services will also increase. The construction of Inter-
state 40 will be one factor generating the predicted
growth rate of Burgaw. Being just two miles from Inter-
state 40, Burgaw can attract many businesses and indus-
tries, thereby creating more employment and increasing
commercial activity.
2. Future Land Need
' The majority of land within the Town limits has already
been developed for various uses, i.e., commercial, resi-
dential, and institutional. A significant amount of resi-
dential growth has occurred in the eastern portion of Town
(between Cowan Street and U.S. 117 Bypass) since 1981.
There remain some undeveloped residential lots scattered
throughout Burgaw, with limited land available for addi-
tional subdivisions. If the population does continue to
increase at a rate of 3.09% per year, the present Town
limits will not be able to accommodate such growth.
Burgaw's commercial activities have increased since 1981,
with the majority of that growth being along U.S. 117
Bypass. It is anticipated that commercial activities will
continue to increase strongly; however•, Burgaw currently
lacks an adequate amount of land for such growth.
Approximately 35 acres remain undeveloped in the Indus-
trial Park, which is located within the Town limits. With
no commitments at this time from industries to locate
within the park, it is anticipated that the existing
25

3.
amount of industrial use land will meet the demands over
the next five years.
Community Facility Need
'
The projected population increase by 1995 of 702 persons,
or 267 households, will certainly impact the residential
,
land uses of Burgaw. As discussed under "Community Facil-
ities Constraints," the present water system can adequate-
ly serve the projected 1995 population of 2,531 persons.
Although the existing wastewater treatment plant, with a
300,000 gpd capacity, can only serve a maximum of 2,250
persons, the current upgrading of the plant to 500,000 gpd
(which is expected to be completed by April 1988) will be
,
capable of serving the projected 1995 population of 2,531
persons. With diminishing residential land available
within the Town limits, more and more persons are going to
wish to live in the one -mile extraterritorial jurisdic-
tion. However, moderate to severe soil limitations exist,
thereby possibly preventing the use of septic tanks in
some areas of the extraterritorial jurisdiction. The Town
currently extends sewer service beyond the Town limits on
a case -by -case basis. With the projected need for resi-
dential development beyond the Town limits, the Town needs
to consider expanding its sewer system to meet the
projected increased population.
The existing Pender County landfill, which is used by the
Town, has a life expectancy of seven years. Therefore, a
new landfill will be required by the year 1995.
,
Additionally, the three Pender County schools, which are
attended by residents of Burgaw, are currently at or
beyond their design capacity. The Pender County Board of
Education needs to expand their facilities in order to
meet the growing school enrollment which is predicted to
occur within the next ten years.
'
The Town could also benefit from additional public
recreational facilities as well, during the planning
period.
other facilities and services, such as medical, and pro-
tective and emergency services are projected to be ade-
,
quate throughout the planning period.
26 1

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SECTION II
Policy Statements

1
L�
The formulation of specific policies regarding growth and manage-
ment objectives is perhaps the most important part of this updated
land use plan. These policies must, in some cases, strike a deli-
cate balance between objectives of the Coastal Resources Commis-
sion and the desires and objectives of the citizens of the Town of
Burgaw. Burgaw has experienced a remarkable amount of growth
since the 1981 Plan Update. Specifically, this growth has
occurred in the residential and commercial sectors. With the
strong population growth since the 1981 Plan Update, it is now
even more important that the policy issues of that plan be
addressed in this 1987 Plan Update.
The Coastal Resources Commission, recognizing the diversities
which exist among the coastal communities, required the Town to
' specify particular development policies under four rather broad
topics in 1981.
These topics include:
° Resource Protection
° Resource Production and Management
1 ° Economic and Community Development
° Continuing Public Participation
' For the 1987 Update, the Coastal Resources Commission has added a
fifth issue, that being "Storm Hazard Mitigation."
After an analysis of the existing conditions and trends, and input
' from the Town's citizens, the foregoing policies were developed to
provide an overall framework for guiding growth and development in
Burgaw throughout the current planning period, i.e., through
1995.
A. RESOURCE PROTECTION
1. Areas of Environmental Concern
Being an inland community, located approximately 35 miles
from North Carolina's coastline, neither the Estuarine
System AECs nor the Ocean Hazard AECs apply to Burgaw's
Land Use. Plan Update.
' 2. Protection of Archaeological Sites
' The North Carolina Department of Cultural Resources has
identified one historic archaeological site within the
extraterritorial jurisdiction of Burgaw. No archaeo-
logical sites have been recorded within the Town limits;
however, the N.C. Department of Cultural Resources does
expect a moderate to high probability of archaeological
sites in the undisturbed areas of Burgaw.
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a. Policy Alternatives
(1) The Town of Burgaw can amend its Subdivision
Ordinance to regulate or prohibit all development
in areas which are recorded historic archaeo-
logical sites.
(2) Burgaw can maintain an up-to-date inventory of all
archaeological sites within the Town limits and
its extraterritorial jurisdiction by periodically
contacting the North Carolina Department of
Cultural Resources.
b. Policy Choice
In its desire to preserve all historic archaeological
sites, the Town of Burgaw will regulate the develop-
ment of recorded archaeologically -sensitive areas.
C. Implementation Schedule
(1) The Town of Burgaw will encourage a survey of
archaeologically -sensitive areas within the Town
limits and the extraterritorial jurisdiction.
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3. Protection of Architecturally or Historically Important
Properties I
The North Carolina Department of Cultural Resources has
identified the following properties as historically
significant:
The Burgaw Railroad Station, located at 102 East
Fremont Street, was entered into the National Register
in September 1986.
° The Pender County Courthouse, located on Wright
Street, was entered into the National Register in May
1979.
Although additional properties of architectural or
historical interest exist within the planning juris-
diction of Burgaw, a comprehensive inventory has not
been compiled.
a. Policy Alternatives
(1) The Town of Burgaw could seek assistance in con-
ducting a complete inventory of all architectural-
ly and historically significant properties.
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(2) Burgaw could encourage the preservation of its
architecturally and historically important proper-
ties.
b. Policy Choice
rThe Town will seek to protect these cultural resources
through its existing zoning ordinance. Burgaw will
also seek assistance in having a survey conducted of
all architecturally and historically important pro-
perties.
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C. Implementation
The Town will utilize this foundational survey and
other regulatory means to ensure the preservation of
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all properties.
4. Development in Areas with Constraints
The constraints to development within the planning area of
Burgaw include man-made hazards, such as storage facili-
ties, and natural hazards, such as soil limitations.
Cultural resource fragile areas, as were discussed in
Part 3 of this section, are also constraints to develop-
ment.
Burgaw's man-made hazards consist of bulk fuel and chem-
ical storage facilities. These facilities are located
along major thoroughfares and are adjacent to other land
uses, such as residential and commercial. No safeguards
currently exist to protect the surrounding properties
against potential accidents such as fires or spills.
Burgaw's only natural hazards are those of soil limita-
tions within its extraterritorial jurisdiction. Develop-
ment within this area requires, in most cases, individual
wells and septic tanks. Grantham soil, which has a high
clay consistency of 30% or more, is found in many parts of
the extraterritorial jurisdiction. Septic tank failures
can occur in this soil if adequate drainage is not
provided.
Alternatives
a. Policy
(1) Burgaw can amend its subdivision regulations to
provide stricter design standards.
(2) Burgaw can develop and adopt additional regula-
tions and amend the Zoning Ordinance to prohibit
or regulate development in areas with physical
constraints.
(3) Burgaw can permit development in those areas
utilizing current regulatory processes, i.e.,
29

zoning and subdivision ordinances, and where
adequate protective measures have been taken.
b. Policy Choices
(1) In areas with possible septic tank limitations,
the Town of Burgaw will remain supportive of the
decisions made by Pender County's Health Depart-
ment.
(2) Burgaw will update its existing Subdivision
Ordinance and Zoning Ordinance. Amendments to
these ordinances will include regulations on
hazardous storage facilities, i.e., locations and
increased setback requirements.
C. Implementation
The Town of Burgaw will continue to support enforce-
ment of existing regulatory controls.
5. Hurricane and Flood Evacuation Needs and Plans
As an inland community, located approximately 35 miles
from the Atlantic coast, Burgaw is not as vunerable to the
dangers of hurricanes and floods as are other coastal
communities. However, a hurricane hitting the North
Carolina coast could -create substantially high winds and
rain for Burgaw. These issues are discussed in detail
within the Policy Statement Section of this Plan, under
the subheading "Storm Hazard Mitigation, Post -Disaster
Recovery, and Evacuation Plans."
6. Other Resource Protection Policy Areas
There are some additional resource protection issues which
are required to be addressed by the CAMA planning guide-
lines and which have lesser definition in the Town of
Burgaw than in some other coastal areas. These areas,
along with relevant policy discussion and statements, are
included below:
a. Protection of Potable Water Supply:
As discussed in Section 1, page 19, the Town of
Burgaw's water distribution system is based on the
groundwater drawn through a total of three wells as
the supply source. Land uses near groundwater sources
are regulated by the North Carolina Division of
Environmental Management through N.C.A.C. Subchapter
2L and Subchapter 2C. Burgaw recognizes the impor-
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tance of protecting potable water supplies and, there-
fore, supports the enforcement of these regulations.
b. Use of Package Treatment Plants
As discussed in Section 1, page 19, of this update,
the entire Town of Burgaw (with the exception of 6-8
houses) is served by the Town's centralized sewer
system. However, if presented with proposals for
package treatment plants, the Town would review each
such proposal on a case -by -case basis, in compliance
with existing state and/or federal regulations,
c. Stormwater Runoff Associated with Agriculture, Resi-
dential Development, Phosphate or Peat Mining, and Its
Impact on Coastal Wetlands, Surface Waters, or Other
Fragile Areas
Phosphate and peat mining are not issues in Burgaw.
However, stormwater runoff is relevant to Burgaw's
agriculture and residential development, although it
does not have an impact on coastal wetlands, surface
waters, or other fragile areas.
(1) Policy Alternatives
(a) Do not impose any additional land use controls
or restrictions on agricultural practices and
residential development
(b) Amend the existing Zoning Ordinance to include
use restrictions and limitations on resi-
dential development and agricultural lands.
(c) Continue to support and encourage use of the
U.S. Soil Conservation Service and the Pender
County Agricultural Extension Service.
(2) Policy Choice
The Town of Burgaw realizes the importance of
protecting its soils against stormwater runoff.
In doing so, it will continue to encourage and
support the use of the U.S. Soil Conservation
Service and the Pender County Agricultural Exten-
sion Service. Additionally, it will continue to
enforce its Zoning Ordinance.
(3) Implementation Schedule
(a) Continue to encourage and support the use of
the U.S. Soil Conservation Service and the
Pender County Agricultural Extension Service.
31

(b) Continue to enforce its Zoning Ordinance in an
effort to control soil erosion.
d. Marina and Floating Home Development
This issue does not apply to the Town of Burgaw.
e. Industrial Impacts on Fragile Areas
Part C.l of this section, "Types and Locations of
Desired Industry," contains specific policy statements
on industry. See page 36.
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B. RESOURCE PRODUCTION AND MANAGEMENT POLICIES
The Town of Burgaw's major resources include agriculture,
forestry, industry, and residential and commercial land devel-
opment. As the commercial center for the surroundings county,
the Town's economy is particularly dependent upon commercial
production.
1. Agriculture
The Town of Burgaw's agricultural production is limited to
its extraterritorial jurisdiction. Although other sectors
of Burgaw's economy have grown over the past five years,
the farmland surrounding the Town limits have basically
remained undisturbed. However, agriculture is not one of
the -prime resource productions of Burgaw. Therefore, in
the future development of the Town, the impact of agri-
culture will not be very significant.
a. Policy Alternatives
(1) Burgaw can continue to encourage growth without
adversely affecting agricultural production.
(2) Burgaw can maintain its zoning classifications for
agriculture.
b. Policy Choice
By continuing to enforce the zoning ordinance, the
Town will control the type of development within the
agriculturally -zoned areas.
C. Implementation
Burgaw will use existing regulations to encourage
continued agricultural production.
2. Commercial Forestry
The one -mile extraterritorial jurisdiction of Burgaw con-
sists largely of forestland. However, there is little
commercial timbering of these forests. Therefore,
forestry management is not a major concern of the Town.
a. Policy Alternatives
(1) The Town can continue to control development of
the forestland through its existing regulations.
1 33

3.
4.
5.
6.
(2) To protect the forestland from potential future
timbering, Burgaw could adopt and enforce local
ordinances which would impose restrictions on
timbering practices and require logging companies
to replant and reclaim timbered areas.
b. Policy Choice
Due to the fact that very little commercial timbering
exists within the extraterritorial jurisdiction, the
Town of Burgaw does not believe that the imposition of
restrictions of timbering is necessary.
C. Implementation
The Town will continue to enforce its Zoning
Ordinance.
Mining Resource Areas
The Town of Burgaw does not possess mineable resources
such as peat or phosphate. Therefore, it is not necessary
to address this issue. However, should mining resources
be developed in the future, the Town will review develop-
ment proposals on a case -by -case basis, considering
potential adverse impacts.
Commercial and Recreational Fisheries
Since Burgaw is an inland community with no surface waters
within its jurisdiction, commercial and recreational
fisheries do not apply to this Land Use Plan.
Off -Road Vehicles
The use of off -road vehicles is not an issue for Burgaw.
Since the property within the extraterritorial jurisdic-
tion is private and not available to the public, the use
of off -road vehicles by private property owners is accept-
able.
Residential and Commercial Land Development
As discussed in other sections of this Land Use Plan,
Burgaw has experienced substantial residential and commer-
cial growth over the past five years. Based on population
projections, it is anticipated that growth in these two
sectors will continue.
a. Policy Alternatives I
(1) The Town can update and amend its existing Zoning
Ordinance and Subdivision Ordinance. I
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(2) Burgaw can consider possible annexations.
(3) Burgaw can amend its existing Sewer Use Ordinance
and water service policy.
b. Policy Choices
The Town of Burgaw is considering possible annexation
of the primarily residential sections along State Road
1332 (Penderlea Road) and State Road 1343. By this
annexation, the Town will be able to increase its tax
base, as well as to extend water and sewer services to
these residents, thereby solving the septic tank prob-
lems which are caused by poor soil types in these
areas.
The Town will continue -to encourage residential and
commercial growth within the confines of all existing
ordinances.
C. Implementation
(1) Burgaw will amend its Zoning and Subdivision
Ordinances.
(2) All land development must be in conformance with
all regulatory controls.
35

C. ECONOMIC AND COMMUNITY DEVELOPMENT POLICIES
1. Types and Locations of Desired Industry
As discussed previously in this plan, the Town of Burgaw
is quite strong in the manufacturing sector with nine
companies employing approximately 327 people. In an
effort to encourage further industrial growth within
Burgaw, an industrial park has been developed. The Town
would like to see new industry locate in this park. As an
incentive, the Town provides water and sewer service to
the park.
a. Policy Alternatives
(1) The Town could develop an active industrial
recruiting program conducted jointly by the Town
and Pender County.
(2) The Town could conduct studies to see which
industry types may want to locate to Burgaw, and
assess possible environmental impact.
b. Policy Choices
(1) With the construction of Interstate 40, the Town
anticipates future industrial growth. It is
believed that the existing industrial park is
adequate in size to accommodate any industries
which may wish to locate there over the next five
years. It will be the Town's policy to encourage
industries to locate within the park.
(2) The Town of Burgaw will continue to support and
work with the Economic Development Department of
Pender County in recruiting new industry to
Burgaw. Therefore, Burgaw does not believe that
it needs its own industrial recruiting program.
(3) The Town believes that all prospective industries
should be given a fair case -by -case evaluation in
order to compare possible economic benefits with
possible negative environmental effects.
C. Implementation
The Town will continue to encourage industrial devel-
opment by working with the Pender County Economic
Development staff.
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2. Local Commitment to Service Provisions
The Town of Burgaw is committed to providing basic ser-
vices, such as water and sewer, to all of its residents
within the town limits. At present, the Town's water and
sewer facilities are capable of adequately meeting the
demands of the population. However, if the population
continues to grow at as rapid a rate as projected (see
Table 1, page 3), the Town will need to expand its water
and sewer facilities within the next five to ten years.
Other support facilities and services provided by or with-
in the Town of Burgaw, such as police and fire protection,
health services, social services, solid waste collection,
and library services, appear to be adequate throughout the
planning period.
a.. Policy Alternatives
(1) Do not encourage the provision of services for new
development in an attempt to keep things as they
are.
(2) Encourage extension and expansion of needed ser-
vices as much as feasible, to accommodate new
residential, commercial, or industrial develop-
ment.
b. Policy Choice
(1) The Town of Burgaw will remain committed to pro-
viding needed services, as is economically feasi-
ble, to accommodate new residential, commercial,
and industrial development within the town limits
and its one -mile extraterritorial jurisdiction.
C. Implementation Schedule
(1) Throughout the planning period, the Town will
encourage the provision of services for new
developments if it is economically feasible.
3. Desired Urban Growth Patterns
The Town of Burgaw recognizes the need of controlled urban
growth. In efforts to achieve desired urban growth
patterns, Burgaw establishes the following policies.
a. Policy Alternatives
(1) The Town of Burgaw could encourage the continua-
tion of commercial development along U.S.. 117
Bypass.
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4.
(2) Burgaw could continue its enforcement of design
standards for mobile home parks and mobile home
placement through its Zoning Ordinance.
(3) Burgaw could encourage the development of its
industrial park, thereby concentrating the indus-
tries in one area rather than scattered throughout
the community.
b. Policy Choices
(1) It is the Town's desire to encourage commercial
development along U.S. 117 Bypass, as long as that
development does not adversely affect the Central
Business District.
(2) In its efforts to control the development of the
Town, but at the same time allow its residents to
choose a feasible alternative to conventional
housing, the Town of Burgaw chooses to allow
mobile home parks on a case -by -case basis. How-
ever, the scattered -site placement of mobile homes
will not be allowed.
,
C. Implementation
(1) The Town will continue to enforce its overall
Zoning Ordinance and the Mobile Home Park Ordi-
nance, as established under Section 6 of its
Zoning Ordinance.
(2) The Town will continue to enforce its Zoning and
Subdivision Ordinances for the purpose of regu-
lating all growth patterns of the Town.
Redevelopment -of Developed Areas
"Redevelopment" usually implies the refurbishing or reha-
bilitation of deteriorating areas already concentrated
with development. There are several concentrated areas
within Burgaw that are in need of redevelopment, particu-
larly'on the west side of Town. Although the Town has
addressed this problem with two Community Development
Block Grant programs, additional work is needed in other
areas of Town.
a. Policy Alternatives
(1) Seek funding through the State -administered Com-
munity Development Block Grant program to estab-
lish a housing improvements program in areas of
need.
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b. Policy Choice
(1) The Town would like to continue its efforts of
redeveloping areas of concentrated substandard
housing condition.
5.
Commitment to State and Federal Programs
The Town of Burgaw is receptive to state and federal pro-
grams, particularly those which provide improvements to
the Town.
6.
Assistance to Channel Maintenance
Since Burgaw is an inland community, this issue does not
.
apply.
7.
Energy Facilities Siting
In some coastal communities, the siting or location of
energy facilities relates to either peat mining or phos-
phate mining, or off -shore oil exploration. However, in
the absence of peat, phosphate, or oil resources within
the Town of Burgaw's jurdisdiction, these issues do not
apply to this land use plan update.
8.
Tourism and Beach and Waterfront Access
This policy issue does not apply to the Town of Burgaw
since no surface water exists within Burgaw's jurisdic-
tion. However, the Town is supportive of the efforts by
the County or other municipalities within the County to
provide estuarine and beach access in the County.
9.
Density of Development
Overly -dense development is not a problem in the Town of
Burgaw. Although Burgaw's population increased an esti-
mated 15.3% from 1980 to 1985, and it is proj.ected to
increase substantially through the year 1995, it is not
anticipated that a density problem will develop. The
majority of the Town's residential land has been developed
to date for single-family residences; however, there is
sufficient amount of rural land within its one -mile extra-
territorial jurisdiction, which could be developed for
residential use, if the soils are suitable for septic
tanks. If unsuitable soils do prohibit some residential
development, the Town may, at that time, consider annexa-
tion.
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10. Land Use Trends I
The overall land use trends, as have been discussed in
other sections of this report, include: (1) strong com-
mercial development along U.S. 117 Bypass; and
(2) residential development in the eastern section of Town ,
and also throughout the one -mile extraterritorial juris-
diction. These trends are projected to continue over the
next five to ten years. Continued enforcement and coordi-
nation of existing local, state, and federal land use
regulations will help ensure orderly growth and develop-
ment throughout Burgaw's jurisdiction.
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D. CONTINUING PUBLIC PARTICIPATION POLICIES
The Town of Burgaw recognizes that an important element in
developing and implementing any local policies or plans
regarding the use of land in Burgaw is involvement of the
Town's citizenry. From the initial stages of development
of this 1987 Update of the Town's CAMA Land Use Plan,
Burgaw has sought to provide open opportunities for citi-
zen input. A "Public Participation Plan," shown as Appen-
dix I, was developed for the land use plan updating pro-
cess, outlining the methodology for citizen involvement.
The plan stated that public involvement was to be gen-
erated primarily through the Burgaw Planning Board and
through "public information meetings" advertised in local
newspapers and open to the general public. The Planning
Board meetings also were open to the general public.
Specifically, three such "Public Information" meetings
were duly advertised and conducted during the planning
process -- at the beginning, (in order to help identify
planning issues), near the midpoint (in order to review
proposed policies), and near the completion, (to review a
complete plan draft). These meetings were all advertized
in two local newspapers serving the Town, i.e., the Pender
Post, and the Pender Chronicle, and posted notices were
placed on the door of the Town Hall. The meeting and ad-
vertising dates were as follows: November 17, 1986.,
(advertised November 11, 1986); March 19, 1987, (advertis-
ed March 10, 1987); and May 28, 1987 (advertised May 26,
1987).
As a general policy, the Town will continue to use such
published notices and public forums such as hearings and
information meetings to better inform and involve its cit-
izens in the ongoing planning process.
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E.
STORM HAZARD MITIGATION, POST -DISASTER RECOVERY, AND
EVACUATION PLANS
The entire North Carolina Coastal region, including Pender
County, faces strong threats of damage each year from hurri-
canes, northeasters, or other major storms. For nearly 20
years, there was a marked "slowdown," or "lull," in hurricane
,
activity along the State's coast. Predictions were that a
major storm could strike the State at any time during the
hurricane season, since such a storm was "long overdue." And
then, in September 1984, the "waiting" ended. Hurricane
Diana, with some of the strongest sustained winds ever record-
ed, rammed into the Southeast coast near Wilmington. Again,
in 1985, Hurricane Gloria flirted threateningly off the South-
east coast of the state before swerving to strike at the
northeast seaboard states. Although damage was not extensive
to North Carolina from either storm, the potential destruction
was much greater and the damage would -have been greatly
escalated had these storms hit land at slightly different
locations. This time the State and the Southeast coastal area
were relatively fortunate. Next time the coastal area may not
be as fortunate.
Notice the excerpt below from, Before the Storm: Managing
Development to Reduce Hurricane Damages, McElyea, Brower, &
Godschalk, 1982, concerning development in coastal communi-
ties:
"At the same time, development along the coast has grown by
leaps and bounds. Unless this development is wisely located
and built to withstand hurricane forces, North Carolina's
coastal communities will face massive destruction. Local
governments, as the primary protectors of the public health,
safety, and general welfare, have a responsibility to reduce
the risk of property damages and loss of life attending coast-
al development. They also have a responsibility to ensure
that reconstruction following a major storm can occur quickly
and leave the community safer from disaster in the future.
These are the goals of a hazard mitigation and reconstruction
planning."
The ususal purpose of this section of the 1987 CAMA Land Use
Plan Update is to assist communities like Burgaw in managing
development in potentially hazardous areas, in cooperation
with Pender County, by establishing hazard mitigation policies
to reduce the risks associated with future hurricanes. The
intent is that by developing post -disaster reconstruc-
tion/recovery policies and reviewing the adequacy of current
evacuation plans, the Town and the County will hopefully
reduce the risks associated with future hurricanes.
However, it should be noted that although Burgaw is in Pender
County and because of its coastline, e.g., the Surf City-
.
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Topsail Beach area, the County is "coastal." Burgaw, located
in western Pender, is beyond any immediate storm threats. The
potential casualties and damage to property that could result
from hurricanes generally come from four main causes: high
winds, flooding, wave action, and erosion. None of these,
except possibly relatively high winds, pose any particular
threat to Burgaw, which has no ocean coastline, hence no wave
action or beach erosion. Also, -within the Town of Burgaw,
there are no documented 100-year floodplain areas. Because of
its location, Burgaw could be a relatively safe inland place
for dwellers along Pender's coast in the event of a storm.
Burgaw does coordinate, however, with the Pender County Office
of Emergency Management, which does have a storm hazard miti-
gation/post-disaster recovery/hurricane evacuation plan. If
it ever becomes necessary, the Town will utilize and abide by
these County policies, as contained in the 1986 Pender County
Land Use Plan.
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SECTION III
# Land Classification System
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D.
E.
F.
"transitional" or "conservation", will be classified as
"rural".
CONSERVATION
The "conservation" class provides for effective long-term
management of significant limited or irreplaceable areas.
This management may be needed because of its natural, cultur-
al, recreational, productive, or scenic values. This class
should be limited to lands that contain: major wetlands;
essentially undeveloped shorelands that are unique, fragile,
or hazardous for development; necessary wildlife habitat or
areas that have a high probability for providing necessary
habitat conditions; publicly -owned water supply watersheds and
aquifers; and forestlands that _are undeveloped and will remain
undeveloped for commercial purposes. Also, by definition, all
Areas of Environmental Concern must be classified "conserva-
tion". In Burgaw, however, there are no statutorily defined
areas of Environmental Concern. However, according to the
N.C. Division of Archives and History, there are two architec-
tural and/or historic properties in Burgaw, i.e., the Pender
County Courthouse and the Burgaw Railroad Station on Fremont
Street. Both are listed in the National Register of Historic
Properties. Because of their cultural significance, these two
properties will be classified "conservation" and the existing
Zoning Ordinance will be used to help prevent encroachment
from inappropriate development. Also, one historic
archeological resource has been noted by the Division of
Archives and History in the vicinity of the Burgaw Country
Club. However, this general area will be classified as
"rural".
OTHER CLASSIFICATIONS
1. Community
The "community" classification provides for clustered land
uses to meet housing, shopping, employment, and public
service needs within the rural areas of a county. It is
usually characterized by a small grouping of mixed land
uses which are suitable and appropriate for small clusters
of rural development not requiring municipal sewer ser-
vice. There are no areas which will be classified "com-
munity" within Burgaw's jurisdiction.
LAND CLASSIFICATION SUMMARY
The proposed classification of land for varying levels of
intensity and provision of public services in the Town of
Burgaw were represented in parts A through E, above. These
classifications related directly to the "policy statements"
contained in Section II of this plan. Additional information
on the relationship between the land classification system and
policies will be presented in the following Section IV.
47 1

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taken place as well as some vacant lands which have resi-
dential or commercial potential.
The relationship between the "developed and transition" clas-
sification is usually an important one. The first class is
meant to define the already intensively developed areas and/or
those areas where intensive urban -type development is likely
to occur. Transitional lands are those areas where public
investment decisions will be required to provide the necessary
urban services. With long-range planned improvements in both
water and sewer services, the areas classified "transition"
should have accessibility to these services.
Again, the relationship between "developed" and "transition"
make those lands important areas to closely monitor.. The
Coastal Resources Commission has further clarified this
relationship as described below.
The Developed and Transition classes should be the only lands
under active consideration by a county or municipality for
intensive urban development requiring urban services. The
area within these classes is where detailed local land use and
public investment planning will occur. State and federal
expenditures on projects associated with urban development
(water, sewer, urban street systems, etc.) will be guided to
these areas. As stated previously, most of the "transitional"
lands in the Town of Burgaw already have or will have access
to the Town's water and sewer systems and could possibly be
included within the municipal service area.
C. RURAL
The third CAMA classification considered relevant to Burgaw is
the "rural" category. The "rural" class provides for
agriculture, forest management, mineral extraction, and other
low -intensity uses on large sites, including residences where
urban services are not required and where natural resources
will not be unduly impaired. These are lands identified as
appropriate locations for resources management and allied
uses: land with high potential for agriculture, forestry, or
mineral extraction; lands with one or more limitations that
would make development costly and hazardous; and lands
containing irreplaceable, limited, or significant natural,
recreational, or scenic resources not otherwise classified.
There are substantial amounts of lands which fall into this
category located within Burgaw's one -mile extra -territorial
jurisdiction. Both agricultural and some limited forestry
activities take place in this area. Also, there are
residences within this low -density setting which do not
require centralized water or sewer services, but utilize
private wells and septic systems. All of the lands within the
extra- territorial jurisdiction not classified as either
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B.
the Town limits some
Within Burgaw, all of the area within and
areas in the adjacent extraterritorial jurisdiction, complies
with the above definition. Although there is a considerable
amount of vacant lands within the Town limit boundaries, most
of the area has access to water and/or sewer. Therefore, much
of this undeveloped acreage could be developed during the
period covered by this plan (1986-1996).
TRANSITION
Transition land is classified as those,lands providing for
future intensive urban development within the ensuing ten
years on lands that are most suitable and that will be
scheduled for provision of necessary public utilities and
services. They may also provide for additional growth when
additional lands in the developed class are not available or
when they are severely limited for development.
Lands classified "transition" may include:
1. lands currently having urban services, and
2. other lands necessary to accommodate the urban population
and economic growth anticipated within the planning
jurisdiction over the next ten years.
Lands classified for the latter reason must: l�
a. be served or be readily served by water, sewer, and ■
other urban services, including streets, and
b. be generally free of severe physical limitations for
urban development.
The "transition" class should not include:
a. lands of high potential for agriculture, forestry, or
mineral extraction, or land falling within extensive
rural areas being managed commercially for these uses,
when other lands are available;
b. lands where urban development might result in major or
irreversible damage to important environmental,
cultural, scientific, or scenic values; or
C. land where urban development might result in damage to
natural systems or processes of more than local
concern; and
d. lands where development will result in undue risk to
life or property from natural hazards or existing land
uses, e.g., frequently flooded areas.
The lands in Burgaw that will be classified "transitional" are
basically those areas adjacent to the Town limits, along prin-
cipal roadways within the extraterritorial area. This
includes some areas where commercial activity has recently
45 1

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The purpose of the land classification system is to provide a
uniform way of looking at how the use of land interacts with envi-
ronmentally sensitive areas and with the development needs of a
particular locality. It is not a strict regulatory device in the
sense of a zoning ordinance or zoning map. It represents more of
a tool to aid in understanding the relationships between various
land use categories and how these relationships help shape local
policy. Particular attention is focused on the intensity at which
land is used and the level of services needed to support that
intensity. The regulations for the Coastal Area Management Act
state:
"The land classification system provides a framework to be
used by local government to identify the future use of all
lands in each county. The designation of land classes allows
the local government to illustrate their policy statements as
to where and to what density they want growth to occur, and
where they want to conserve natural and cultural resources by
guiding growth." (7B.0204) (a)
The five land classifications, along with a land classification
map, are therefore intended to serve as a visual representation of
the policies stated in Section II of this plan. The map depicting
these classifications must be as flexible as.the policies that
guide them. (See the attached Land Classification Map, Map 6.)
Only four of the Coastal Resources Commissions' five land classi-
fications will be relevant to the land development policies of the
Town of Burgaw. Burgaw, unlike many other municipalities within
coastal counties, has no direct water access, nor wetlands,
neither any significant flood hazard areas. The presence of any
"environmentally sensitive" areas in Burgaw is severely limited.
Therefore, the four land classification categories presented here
relate to a small, but developing inland municipality. They are
identified and described below.
A. DEVELOPED
The developed class of land use provides for continued inten-
sive development and redevelopment of existing cities. Areas
to be classified as "developed" include lands currently devel-
oped.for urban purposes or approaching a density of 500 dwell-
ings per square mile that are provided with usual municipal or
public services, including at least public water, sewer,
recreational facilities, police and fire protection. Areas
which exceed the minimum density but which do not have public
sewer service may best be divided into a separate class to
indicate that although they have a developed character, they
will need sewers in the future.
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j SECTION IV
� Relationship of Policies
t and
Land Classification System
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SECTION IV: RELATIONSHIP OF POLICIES AND LAND CLASSIFICATIONS
As required by the Coastal Area Management Act, the land use plan
must relate the policies section to the land classification map
and provide some indication as to which land uses are appropriate
in each class.
A. DEVELOPED AND TRANSITION CLASSES
As mentioned in the discussion of existing conditions, most of
the Town's growth will occur within the Town limits and along
rural roads within the one -mile extraterritorial jurisdiction.
These are areas where basic services such as water and sewer
are available or might be feasible within the planning period.
The developed and transition classes were specifically desig-
nated to accommodate these intensively developed -areas and
land uses, including residential, commercial, industrial,
community facilities, and transportation.
B. RURAL CLASS
The rural class is the broadest of the land classes and is
designated to provide for agriculture, forest management,
mineral extraction and other low intensity uses. Residences
may be located within the rural class where urban services are
not required and where natural resources will not be perma-
nently impaired. Some large developments may be encouraged in
the rural class when there is an absence of otherwise suitable
land within the development and transition classes and/or when
there is a possible threat to the urban populace. Such large
developments or uses include airports, land application sewer
systems, and power plants. The Town also reserves the privi-
lege of allowing specific types of industrial development in
the rural areas if in the opinion of the government there will
be no harmful or adverse effects from such a location.
C. CONSERVATION CLASS
The conservation class is designated to provide for effective
long-term management of significant limited or irreplaceable
areas which include Areas of Environmental Concern, and
publicly owned gamelands and parks and cultural and historical
sites. Cultural and historical sites are the only two issues
that apply to this land use plan update. Policy Statements
under Resource Protection, and Resource Production and Manage-
ment in Section II of this plan address the Town's intentions
under this class. Also, a more detailed discussion of the
Conservation classification, along with permissible uses, is
included in the preceding Section III.
u
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D. COMMUNITY CLASS
Community class
does not apply to Burgaw's Land
Use Plan
Update because
these are areas usually found at
crossroads
within the "rural
classification." The general
range of
acceptable uses
are limited to residences, isolated general
and convenience
stores, and churches and other
public facil-
ities. Such areas
do not exist within Burgaw's
jurisdiction.
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SECTION V
I Intergovernmental Coordination
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SECTION V: INTERGOVERNMENTAL
COORDINATION
Throughout the development of
this Plan, effort was made
to make
the policies consistent and compatible
with other local,
state,
and federal requirements. At
various stages during the
Plan's
development process, contact
was made with Pender County
in order
to coordinate certain policy
issues. Implementation of
the plan
will likewise follow the same
intergovernmental concern.
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APPENDIX I
TOWN OF BURGAW PUBLIC PARTICIPATION PLAN
FOR THE 1986-87 CAMA LAND USE PLAN UPDATE
I. Introduction
The Town of Burgaw, in compliance with requirements of the
North Carolina Coastal Area Management Act, is preparing an update
to its Land Development Plan. The purpose of this updated plan is
to generally re -assess growth and development trends of the Town
in relation to the capacity of community facilities and
development constraints. Issues affecting the Town's policies on
growth and development will also be closely reviewed during this
plan updating process.
A significant aspect of the plan updating process is the
involvement of the Town's citizenry. This Public Participation
Plan will outline the means by which the Town will foster and
encourage such participation throughout the planning process.
II. Public Participation Plan
Public involvement in the 1986-87 Land Use'Plan Update will
be generated primarily through meetings with the Town of Burgaw
Planning Board. This.Board is composed of five (5) local
residents. Also, general "public information" meetings will be
held to present and discuss issues before the general public. All
such meetings will be publicized through advertisements in local
newspapers and posting of public notices. Presentations will also
be made before the Burgaw Town Commissioners. Note that all
Planning Board and Board of Commissioners' meetings are open to
the public.
III. Preliminary Meeting Schedule
The initial preliminary schedule of meetings is as follows:
A. Meeting with Planning Board to review preliminary
development issues, September 25, 1986.
B. Meeting with the Town Board of Commissioners to review
preliminary issues, November 3, 1986.
C. Public information meeting with citizens, November 17,
1986.
Other meetings and work sessions will be scheduled and appro-
priately publicized throughout the land use plan update process.
The above schedule is presented as being preliminary.
I

NOTICE OF PUBLIC INFORMATION MEETING
TOWN OF BURGAW
1986 CAMA LAND USE PLAN UPDATE
THE TOWN OF BURGAW PLANNING BOARD WILL CONDUCT A PUBLIC INFORMA-
TION MEETING ON THURSDAY, MARCH 19, 1987, AT 7:30 P.M. AT THE
BURGAW TOWN HALL, WALKER STREET, BURGAW, NORTH CAROLINA, TO DIS-
CUSS THE UPDATE OF THE TOWN OF BURGAW'S 1986 CAMA LAND USE PLAN.
THE TOWN PLANNING BOARD AND PLANNING CONSULTANT WILL DISCUSS THE
TOWN'S DEVELOPMENT ISSUES AND POLICIES CONCERNING THIS UPDATE.
ALL INTERESTED CITIZENS ARE URGED TO ATTEND THIS MEETING. FOR
FURTHER INFORMATION, CONTACT THE TOWN CLERK'S OFFICE AT THE BURGAW
TOWN HALL.
TOWN OF BURGAW
PLANNING BOARD

C
NOTICE OF PUBLIC INFORMATION MEETING
TOWN OF BURGAW
1986 CFMA LAND USE PLAN UPDATE
THE TOWN OF BURGAW PLANNING BOARD WILL CONDUCT A PUBLIC INFORMA-
TION MEETING ON THURSDAY, MAY 28, 1987, AT 7:30 P.M. AT THE BURGAW
TOWN HALL, WALKER STREET, BURGAW, NORTH CAROLINA, TO DISCUSS THE
UPDATE OF THE TOWN OF BURGAW'S 1986 CAMA LAND USE PLAN. THE TOWN
PLANNING BOARD AND PLANNING CONSULTANT WILL BE IN ATTENDANCE, AND
DEVELOPMENT ISSUES AND POLICIES CONCERNING THIS UPDATE WILL BE
DISCUSSED.
ALL INTERESTED CITIZENS ARE URGED TO ATTEND THIS MEETING. FOR
FURTHER INFORMATION, CONTACT THE TOWN CLERK'S OFFICE AT THE BURGAW
TOWN HALL.
TOWN OF BURGAW
PLANNING BOARD
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