Boardwalk Area Redevelopment Plan-1987

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BOARDWALK AREA
REDEVELOPMENT PLAN
Town of
Carolina Beach, North Carolina
Technical Assistance by:
Edward D. Stone, Jr. and Associates
Planners and Landscape. Architects
August 31, 1987

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Town of Carolina Beach
Town Council
Neil Pharr, Mayor
Robert Doetsch
Edward Chinnis
John Gonzalez
Pat Efird
Boardwalk Area Steering Committee
Mike Batts
Gerald Bigley
Fredrica Brewer
Joe Herring*
Jim Kick
Rev. Gerald Massey
Walter McDowell
Bobby Nivens
Yvonne Pharr
Richard Way
* Planning and Zoning Board Representative
Jeff Newsome, Town Planner
Technical Assistance
Edward D. Stone, Jr. and Associates
Planners and Landscape Architects
215 South Front Street
Wilmington, North Carolina 28401
The preparation of this document was financed, in part, through a grant
provided by the N.C. 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 Resources Management,
National Oceanic and Atmospheric Administration.

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EDSA
Edward D. Stone, Jr. and Associates 215 Sc,uth Front SVice;. �Ndnungux , Pd.C. 28 01 Phon ;: 919-343 1515
Planners and Landscape Architects
June 5, 1987
The Honorable Neil Pharr, Mayor
Town of Carolina Beach
Carolina Beach, North Carolina
Dear Mayor Pharr and Members of the Town Council:
On behalf of Edward D. Stone, Jr. and Associates, we are pleased to deliver to
you this written summary of the Carolina Beach Boardwalk Area
Redevelopment Plan. From our experience in working with other
communities, we are particularly enthused about the prospects for a truly
exciting revitalization of the Carolina Beach Boardwalk Area, and the impact
it can have on the entire community.
The level of commitment and support that we have received over these past
several months has been tremendous; we believe continued support can
ultimately lead to the successful implementation of the plan.
We wish to extend our sincere thanks to the ten members of the Carolina
Beach Boardwalk Area Steering Committee for their outstanding
commitment of time, energy, and ideas over the course of the plan's
development. Similarly, Town Planner Jeff Newsome and other members of
the Town staff were especially helpful in providing accurate base data and
constructive feedback on the plan's recommendations. Former Town
Manager Rick McLean should be recognized for his support in the early stages
of plan development. Local newspapers, including the Coastal Carolinian,
the Island Gazette, and the Wilmington Star -News provided extensive news
coverage and did much to publicize the effort.
As we have emphasized from the start, the successful revitalization of the
' Boardwalk Area will be the result of a public -private partnership between the
Town of Carolina Beach and the Boardwalk merchants and property owners.
We believe that the plan delivered to you today presents the proper balance
' between the public and private sectors, and maps out a progressive strategy
that could influence the future of Carolina Beach for decades to come.
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' We appreciate the opportunity to have been involved in the preparation of
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the plan, and would look forward to being of further assistance in the future.
' Very truly yours,
' EDWARD D. STONE, JR. AND ASSOCIATES
ow
Gl n . Harbeck, AICP
Project Plan r
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Ri and K. Dee, FASLA
Project Designer
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1. Introduction and Summary.................................1
Table of Contents
Need for the Redevelopment Plan ................2
Purpose..............................................................
3
Planning Process..............................................3
Summary of Recommendations ....................4
2. Existing Conditions...............................................6
Study Area Boundaries...................................7
LandUse...........................................................7
Circulation........................................................8
(A) Vehicular Circulation ........................8
(B) Pedestrian Circulation .......................8
Property Ownership........................................9
3. Review of Existing Plans, Policies,
andRegulations...................................................10
Town of Carolina Beach
Land Use Plan Update (1986) ...............11
Five Year Shorefront Access Plan
(9-11-84)....................................................12
Bikeway Plan: Town of Carolina
Beach, NC................................................12
Zoning Ordinance, Town of
Carolina Beach (current).......................13
4. Principles for Boardwalk Area
Revitalization........................................................14
Principles Outlined........................................15
Summary.........................................................19
5. Site Plan and Design Components ..................21
Conceptual Plan .............................................2-2
Redevelopment Master Plan
Overview.................................................23
New Construction..................................23
Parking.....................................................23
Streetscape Improvements ....................23
Banner/Announcement Pylon .............24
Facade and Building Improvements ...........24
Budget Estimates............................................25
Implementation......................................28
6. Comprehensive Revitalization Program .......29
Overview.........................................................30
Public Improvements....................................30
Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

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Design Guidelines/Building
Rehabilitation Standards .......................31
Ongoing Management..................................32
'
Financing.........................................................33
(A) General Obligation Bond ...............33
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(B) Municipal Service District..............34
(C) Private Financing ............................35
(D) Other Financing..............................35
' 7. Appendices............................................................
36
Public Participation.......................................37
Summary of Public Participation
Opportunities..............................................40
Redevelopment Plan Technical
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Statements...............................................41
Changes in Zoning.................................41
Changes in Street Layout or
'
Street Levels........................................41
Estimated Costs and Methods
of Financing........................................42
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Relocation of Displaced Families .........42
Population Density, Land Coverage,
and Building Intensity .......................42
'
Evaluation of Other Financing
Methods..................................................43
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' Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan

Section 11:
Introduction and
Summary
Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 1

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Need for the The Town of Carolina Beach and the whole of Pleasure
Redevelopment Plan Island have undergone tremendous change, particularly in
the past ten years. Permanent and seasonal population
levels have increased significantly and new construction
has occurred at a rapid pace. From a variety of vantage
points, Carolina Beach is re-emerging as a tourism develop-
ment center on the North Carolina coast. Recently, how-
ever, the Town has experienced a slowdown in overall
growth and new construction, and a. softening of the real
estate market in general. A number of unsold condomin-
ium units now compete with local hotels and motels for the
overnight lodging dollar. In addition, the rate of growth in
the tourism -driven local economy has not kept pace with
the rapid increases in new construction. It is becoming
apparent that some economic catalyst is needed to rejuve-
nate the local economy and shore up the sagging real estate
industry.
At the heart of Carolina Beach lies the Boardwalk Area. Just
as the development of the beach has evolved over many
decades, so too -has the Boardwalk. Its evolution in recent
years, however, has not been at a level commensurate with
new development in the Town. Once a bustling area of
prosperous tourism activity, the Boardwalk now has a
limited number of traditional Boardwalk businesses. The
family and middle/upper income tourist has become more
scarce at Carolina Beach as the Boardwalk and core area
have gradually declined.
Town residents and officials see the Boardwalk Area as a
pivotal feature for the economic health of the community.
A comprehensive planning approach and public/private
partnership for the revitalization of the Boardwalk is one
possible solution that has worked in other communities,
and could be successful in Carolina Beach as well. Rational
decisions need to be made regarding the most effective
means of effecting change for the better in the Boardwalk
Area. These decisions should be based upon a clear and
accurate evaluation of existing conditions, and the goals
and objectives of the citizens and property owners of the
Town. The Redevelopment Plan for the Boardwalk Area
provides the process and the product to accomplish this
task.
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Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 2

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' The purpose of this Boardwalk Area Redevelopment Plan Purpose
is twofold: (1) to provide a forum for public input and con-
sensus building for the future betterment of the Boardwalk
' Area, and (2) to provide a vision of the future and a specific
blueprint for action to achieve that future.
' Several groups benefit from having an adopted Redevelop-
ment Plan in place. City officials, for example, can better
1 plan for public improvements in the area, such as streets,
water and sewer services, storm drainage, parking, fire and
police protection, landscaping, etc. For merchants, prop-
erty owners, and developers, an official Redevelopment
Plan can restore confidence in the area and reduce the
uncertainty regarding future investments. For other Town
' residents, business people, and property owners, a Rede-
velopment Plan for the Strategic Boardwalk Area can
improve the overall image of the community, including
investments in homes and businesses.
The process of preparing the Redevelopment Plan in the
public arena allows the opportunity to produce a plan
which balances the interests of all parties involved.
' In general, the planning process used to prepare this Rede- Planning Process
velopment Plan involved a methodical, disciplined, fact-
finding approach. The following are key features of the
planning process:
• A local Steering Committee comprised of local mer-
chants and property owners was appointed by the
Mayor, as authorized by the Town Board. The Steering
Committee worked with the Planning Consultant
(EDSA) and the Town Planner throughout the study to
' offer local perspectives, provide input on the accuracy
of information gathered, and feedback on recom-
mended solutions. The Steering Committee members
' were also encouraged to network with other residents,
property owners, and merchants in the community who
have a vested interest in the Boardwalk.
• Existing conditions in the Boardwalk Area were evalu-
ated, including existing land use, vehicular and pedes-
trian circulation, property ownership, and a photo in-
ventory of building and streetscape conditions. EDSA
was aided in this evaluation by input received from the
Steering Committee regarding specific problems and
1 opportunities in the Boardwalk Area.
IPage 3 - Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

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Relevant plans, policies, and regulations already in
place and pertaining to the Boardwalk Area in particu-
lar were reviewed. Included were the Land Use Plan,
the Shorefront Access Plan, the Bikeway Plan, and the
Zoning Ordinance. The intent of the review was to help
insure that the recommendations set forth in this report
are consistent with the overall plan of growth and
development for Carolina Beach.
Several "Principles for Boardwalk Area Revitaliza-
tion" were identified based upon the review of existing
conditions and plans, and on the specific input received
during the public meetings of the Steering Committee.
These principles provided the essential foundation and
direction necessary to prepare the revitalization plan
and program.
A Site Plan for the Boardwalk Area was prepared at
threelevels of detail: (1) conceptual, (2) master plan, and
(3) specific design components. Budget estimates were
prepared for the public improvement components of
the master plan.
Finally, a comprehensive revitalization program was
outlined, setting forth the specific actions that must be
taken regarding not only physical improvements, but
also regulatory, financial, and management activities.
Summary of From the outset of the planning process, the need for a
Recommendations public -private partnership for the redevelopment of the
Boardwalk Area has been emphasized. As demonstrated
by the experiences of cities and towns across the nation, any
successful commercial revitalization effort must be a part-
nership between local government and the merchants and
property owners. A redevelopment program placed solely
on the shoulders of local government is destined to fail. On
the other hand, individual merchants and property owners
seldom have the resources and organization to influence
the activities of an entire commercial area. The following
recommendations therefore seek to balance the responsi-
bilities of the revitalization effort between the Town and the
Boardwalk Area merchants and property owners.
It is recommended:
1. That the Town be responsible for malting public ini-
provements in the Boardwalk Area as more fully de-
scribed in Section 5 of this plan. Key components of
these public improvements include: a new elevated
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Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 4

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oceanfront boardwalk, streetscape improvements
along Lake Park Boulevard, Cape Fear Boulevard,
Harper Avenue, and Canal Drive to the marina, an
overhead announcement entry sign, a theme tower,
arrival shelter and drop-off area at the foot of Cape Fear
Boulevard, boardwalk pavement color topcoat, im-
proved lighting and seating, and the placement of exist-
ing overhead utilities underground. The total budget
estimate for all basic public improvements is $824,000
excluding the placement of overhead utilities under-
ground. The underground utilities installation option
would be an additional $841,000.
That the public improvements as described above be
financed through a general obligation bond of the
Town.
That a municipal service district be established for the
Boardwalk Area. In accordance with State enabling
legislation, this additional property tax would be levied
only against properties located inside the Boardwalk
Area municipal service district, and the revenues gener-
ated could only be used for activities directly related to
the Boardwalk Area. Examples of such activities in-
clude: special promotions, parking lot leases, market-
ing/management/technical assistance, announce-
ment/entry sign banners, special security, landscape/
stree tscape/ boardwalk maintenance, and other similar
purposes.
That mandatory design guidelines and building reha-
bilitation standards be established for Boardwalk
Area. These guidelines and standards would be pre-
pared based upon the preliminary recommendations
contained in this Boardwalk Redevelopment Plan,
through a joint effort of Town of Carolina Beach and
merchants and property owners. These regulations
would be administered by the Town Planning Board
through the zoning ordinance as a special overlay dis-
trict.
5. That a Boardwalk Merchants and Property Owners
Council be established. The purpose of the council
would be threefold:
(1) to continue the spirit of cooperation among mer-
chants and property owners toward common
goals and management objectives for the Board-
walk Area.
(2) to advise the Town Council on annual priorities
for spending municipal service district revenues.
Edward D. Stone, Jr. and Associates
' Page 5 - Carolina Beach Revitalization Plan

(3) to work with the Town in preparing the manda-
tory design guidelines and rehabilitation stan-
dards for the area.
6. That the placement of the general obligation bond refer-
endum on the Town ballot be contingent upon the
establishment of the mandatory design guidelines and
standards, the municipal service district, and the Board-
walk Merchants and. Property Owners Council.
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 5(a)

Section 2
Existing Cond
itions
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 6

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Study Area Boundaries The initial study area for the Redevelopment Plan was
originally limited to only that portion of the Town in the A-
1 Amusement District of the zoning ordinance. Early in the
planning process, however, it became apparent that this
relatively small area did not adequately encompass a
meaningful study area. As a result, two sub -areas were
created. The map on the following page illustrates these
two areas. Area 1, the Boardwalk Area, was designated to
be the primary focus of detailed study. Area 2, the so-called
surrounding "area of influence," was to receive generalized
study only.
Area 1 encompasses the primary commercial/retail Board-
walk Area. Generally, this area can be described as running
from the ocean on the east to Woody Hewett Avenue/
Canal Drive on the west, and from the present termination
of Boardwalk Area commercial properties on the south to a
point just north of Harper Avenue on the north.
Area 2, the surrounding area of influence, includes addi-
tional properties to the south reaching as far as Hamlet
Avenue, an additional area to the west reaching as far as the
west side of Lake Park Boulevard, and an additional area to
the north. This northern extension along Canal Drive also
includes the municipal marina.
Consistent with the intent of the two study areas, informa-
tion collected for Study Area 1 was more complete and
comprehensive, while information for Study Area 2 was
collected only to the degree necessary.
Land Use Existing land uses in the Boardwalk Area exhibit a mixture
of commercial/retail uses. As might be expected, the heart
of the old Boardwalk Area is dominated by food and
beverage, retail recreation, and retail sales. Farther to the
west toward Lake Park Boulevard, land uses become more
varied, including offices and lodging establishments.
Regarding surrounding land uses, residential uses pre-
dominate immediately south of Boardwalk Area as well as
west of Lake Park Boulevard. To the north of the Boardwalk
Area are municipal parking lots, the Town Hall Center, the
marina area, and various residential/lodging establish-
ments. The Atlantic Ocean defines the area to the east.
IEdward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 7

' The most significant areas of open space within the Board-
walk Area occur in the blocks immediately south of Cape
Fear Boulevard between Lake Park Boulevard and Carolina
Beach Avenue south. This location has been discussed at
various times in the past as a potential site for a hotel and/
or convention center complex.
' - For. planning purposes, transportation patterns in the
Boardwalk Area can be discussed in terms of vehicular and
' pedestrian circulation.
' Lake Park Boulevard (U.S. 421) is the main north -south
transportation corridor through the Town of Carolina
Beach. This four lane undivided highway has parking on
both sides of the street. It is signalized at its intersection
with the two primary local streets leading into the Board-
walk Area: - Cape Fear Boulevard and Harper Avenue. Of
' these two primary entry streets, Cape Fear Boulevard has
traditionally been the more dominant corridor.
' Canal Drive serves as an additional point of entry into the
Boardwalk Area, particularly carrying traffic from the
municipal marina. Myrtle Avenue and Raleigh Avenue are
entry ways of lesser significance, while Kure Avenue serves
as a through street for cars and for service to the Boardwalk.
' Kure Avenue is relatively narrow, but is a critical transpor-
tation corridor because it allows cars to pass close to the
Boardwalk.
Circulation
(A) Vehicular Circulation
Primary pedestrian routes into the Boardwalk Area are the (B) Pedestrian Circulation
sidewalks along Cape Fear Boulevard and Harper Avenue
east from Lake Park Boulevard. Another primary pedes-
trian corridor is along Canal Drive leading from the munici-
pal marina and the municipal parking lots.
Circulation within the Boardwalk core is limited to pedes-
trians. North -south pedestrian movements are carried on
Carolina Beach Avenue as well as the oceanfront Board-
walk. There are also six exclusive pedestrian corridors
leading from Carolina Beach Avenue to the oceanfront
Boardwalk. The Town has also provided three wooden
crossovers to carry pedestrians from the Boardwalk Area
over the protective sand dune system to the beach.
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Page 8 - Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

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Finally, there are three alleyways leading from Kure
Avenue east into the main Boardwalk (Carolina Beach
Avenue).
Property Ownership At the request of the Steering Committee, a property own-
ership map was prepared. (See map next page) The
purpose of preparing the map was to better understand
property ownership configurations in the vicinity of the
Boardwalk, as well as to help identify the ownership of
particular properties in the area.
Of the approximately 125 properties inventoried, 30 were
owned by corporations, four were owned by the Town of
Carolina Beach,18 were in condominium ownership, and
the remaining 74 were listed under the names of individu-
als.
The largest tracts were located in the block immediately
south of Cape Fear Boulevard between Lake Park Boule-
vard and Carolina Beach Avenue. The vast majority of the
other parcels in the study area were quite small, confirming
a predominantly fragmented ownership pattern.
Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 9

l BOARDWALK AREA REDEVELOPMENT PLAN
Town of Carolina Beach, North Carolina
Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North

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BOARDWALK AREA REDEVELOPMENT PLAN
5. I'mr v Town of Carolina Beach, North Carolina
�'�'•� Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North Carolina
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Traffic Patterns
LEGEND
PRIMARY VEHICULAR
TRAFFIC ROUTES
PRIMARY PEDESTRIAN
TRAFFIC ROUTES
SIGNALED INTERSECTION
BEACH ACCESS POINTS
(CROSSOVERS)
CENTRAL THEME AREA
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PUBLIC PARKING
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PRIVATE PARKING
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LAKE PARK BOULEVARD
WOODY HEWETT STREET
STATE ROUTE 421
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Boardwalk Area
Property Owners
LEGEND
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4 BNC Realty Co.. Inc.
10 Town of Carolina Beach
11 Town of Carolina &earn
1 Ocean View Coro
t2 Mary Economrdes
4 Ocean View Coro
13 Hover Hall, Inc.
5 Ocean View Cord -
14 Hover Had, Inc
6 H R. Stamp, Jr
Q9
Bratley B. 6 Hilda Inez Tart
21
2 Putt Putt Golf of Carolina Beam
3 Richard 0. Way, Jr.
10 Merchant O.K. Ron: P
4 Juanita H Dail
it Merchant O.K. Fame P -
5 Nina Budson
12 Merchant O.K. Rome P
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Boardwalk Dev. Co., Inc.
at
John Elwood. G. Lamer Zeko
2 Julius L d Patmta H. Cc -tie
11 Alex Messick
3 Juanita Rogers Da 'I
12 DA San M=rto Paui. Jr.
4 W.H. d Gussie Batson
13 Eli F. (Jr.) d Kay Coun
5 Juanita Rogers Dad.
14 E.F. (Sr.) d Rosa Hell Coun
6" Eli F: (Jr.) 3 Kay S. Coune
15 Pamlico Ltd.
7 Carolina Investments Limited
8 Garland Garrett
07
1 Robert A. Gray. Sr.
9 Carolina investments Limited
2 Herbert T. Fisher
10 R.L. & Lla B. Flynt
3 John R. Croop. Jr.
11 Odell B. Motsinger
4 John H. Burnett
12 Donald L Motsinger
5 John R. Croop. Jr.
13 R.L d Lula B. Flynt
6 John R. 3 Connie H. Croop
14 Euro Coastal. Inc.
7 Herbert T. Fisher
Conco- 9 owners
a1
Christine H. O'Suliv-an
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1 GRB, Inc.
2 Garland Garrett
2 GRB. Inc.
3 Garland B. Garrett. Sr.
3 GRB. Inc.
4 Herbert T. Fisher
5 Conn-9 owners
6 Garland. Sr. & Evelyn Garrett
- O
1 Sydney D. Abrams
7 Soutnem Excavation. Inc.
2 Herbert T. Fisher.
8 Garland B. Garrett Sr.
3 James A. & Frecenca C. Brewer
9 Gerard P. Bigley
4 Herbert T. Fisher
10
1 Leonard J. McDowell, Jr.
a
1 Waddell H. Pate
1.1 Carolina Investments. Ltd.
LIVE
1.1 Norman Phillics, Jr.
2 Clinton Hines
2 Robert W. Nivens
3 Mrs. Louise O. Wright
3 - Franklin H. d Norman Alen
4 Mrs. Louise O.-Wngnt
3.1 Cace Fear Music Co—inc.
5 Charles Allen
4 Excnande Prooemes
6 Gwenooyn COOK Parks
5 Franklin H. Allen
7 James C. Chastain, Jr.
6 John H. 6 Lou P- Olsen
8 Charles T. Allen
6.1 Pamlico Ltd.
9 Charles T. Allen
7 Town of Carona i5eam
10 Charles T. Allen
8 Game World. !x.
11 Graov C. S Ruth Wal:cn
9 LJ. (Jr.) & Mae McDowell
12 Run Koontz Walton
13 HB Real Froeeroes. Inc.
1 Ned J. d Yvonne C. Pharr
ao Estate of J.R! Bame
2 - James A. d Nancv L Lcmoaroe
14 Ray C. E 011ie W. Brewer
3 Astor V. 6 Ed:a M. Boioen
4 Roger N. 6 Beare A. McKee
a
10 Lewis Well Boring, Inc.
-II James C. Kelly
EE
8 A.S. Mary L Fierce
12 William E. Powed. Jr.
9 A.S. Mary L P erce
13 James C. Kelly
10 Tucker Brothers nealty Co.
14 Russell 8 Patnc:a Okreeo
15 Russell d Patnc:a O: recto
E t9
7 Michael and Kim Wrenn
8 Carolina Savings & Lcan Assoc.
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13 Gerald P Sicfey
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Ted. E. 6 Rarie-e 0. Tinsley
-
2 Hover Hail. Inc.
3 Robert F. Cameron
4 Virginia P Brewer
5 Hover Hall. Inc.
6 Joseon lne 0. Fti:aresJn
7 J.B. & Linaa 14 Avsom
8 John W d Bed/., Hi/Cson
Tcwn c! Cs: c::: a t a cc

Section 3:
Review of Existing Plans,
Policies, and Regulations
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 10

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This section presents a review of pertinent public plans,
ordinances and studies regarding the Town and the Board-
walk Area in particular. Special attention is given to the
recently adopted Land Use Plan, the Town's Zoning Ordi-
nance, the Five Year Shorefront Access Plan, and the Caro-
lina Beach Bikeway Plan. The intent of this review is to help
insure that the recommendations set forth in this report are
consistent with the overall plan of growth and develop-
ment for Carolina Beach.
Town of Carolina Beach Land The 1986 update to the Town's CAMA Land Use Plan
Use Plan Update (1986) contains several references to the Boardwalk Area and
recommendations for its future use. The plan, for example,
has several policies and implementation actions to help
preserve and provide incentives for the redevelopment of
the Boardwalk Area, as well as the Central Business District
(page 16). In the area of parking, the plan calls for the Town
to be alert regarding opportunities for additional centrally
located parking lots or decks serving the Boardwalk and
Central Business District (page 37). The plan also mentions
the need for and desirability of improved traffic move-
ments and circulation in the central area (page 39).
The Land Use Plan recognizes the Boardwalk Area as the
primary tourist and amusement district for the Town. The
Plan notes that the A-1 Amusement District and a new
zoning classification, the T-1 Tourist District, have been
created specifically to promote and encourage tourist
commercial development in this area of Town (page 78).
More will be said about these zoning districts under the
analysis of the Zoning Ordinance.
The need for parking to serve the central part of town is
further emphasized by the suggestion that an ordinance be
passed, creating a trust fund for the construction of new
parking facilities, the trust fund to be created by an assess-
ment district which would help generate revenues for
parking improvements in the central area (page 82).
A further comment regarding traffic circulation is that 65`h
of all respondents to the Town's questionnaire for the Land
Use Plan Update indicated that they favored one-way
streets in tourist areas in order to improve traffic move-
ment.
Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 11

' Regarding the Boardwalk Area, 57% of all respondents had
a strong sentiment for the preservation of the Boardwalk,
but only if it is made more attractive to family -oriented
clientele. Another 25% favored conversion of the Board-
walk to other uses, and 9% favored unconditional preserva-
tion (page 94).
' In discussing improvements needed at the municipal ma-
rina, the Plan mentions that the Town should consider
' providing a larger improved boardwalk at the marina site
during the design and construction of replacement bulk -
heading, even if this means sacrificing some boat docking
spaces. The close proximity of the municipal marina to the
northernmost end of the Boardwalk Area is an important
' linkage that should obviously be considered in the Board-
walk improvement plan.
' The Town's Five Year Shorefront Access Plan mentions that
there is a need for a centralized parking area (perhaps a
parking garage) near the Boardwalk to accommodate the
' increased demand for shorefront access parking in the
future (page 149). The Boardwalk Area Redevelopment
Plan may therefore wish to take a close look at opportunities
' for creating additional parking.
' The Shorefront Access Plan further mentions that the most
significant of all public beach access points in the Town is
the Boardwalk Area, "a 2,100 foot long public beach access
area that fronts the Town's main tourist commercial dis-
trict" (page 141). The Plan also points out that "the Town
owns and operates two municipal parking lots for the
purpose of providing public shorefront access to Myrtle
Grove Sound and the Boardwalk. Some 124 spaces are
provided in these two lots" (page 142).
' The Town's Bikeway Plan, in its analysis of bicycle acci-
dents, notes that most accidents occur in areas of major
' attraction for cyclists: "the beach, the Amusement District,
and the Central Business District. Provision of well -de-
signed bikeways in these areas would certainly make bi-
cycle accidents less likely" (page 153). In keeping with the
accident analysis, the Major Bicycle Trip Ends map shows
' that there is a concentration of bicycle trip ends at the
Boardwalk Area. Therefore, it would make sense to pro-
vide for bicycle movement and storage in the Boardwalk
' Redevelopment Area.
Page 12 - Carolina Beach Revitalization Plan
Five Year Shorefront Access
Plan (9-11-84)
Bikeway Plan: Town of
Carolina Beach, NC
Edward D. Stone, Jr. and Associates

' Zoning Ordinance, Town of The Boardwalk Redevelopment Area falls entirely within
Carolina Beach (current) two districts of theTown's Zoning Ordinance. Themajority
of the Boardwalk redevelopment study area falls within the
' A-1 Amusement District, which encompasses primarily the
very core of the Boardwalk. The overall description of the
A-1 District is as follows: 'This district is intended to
' provide commercial entertainment and amusement pri-
marily to the seasonal population." The permitted uses
within the A-1 district are typical of the current Boardwalk
Area and include, for example, arcades, rides, games of
amusement (shooting galleries, golf, bingo, billiards),
' dance halls public parks, playgrounds, recreation build-
ings including public restrooms, bathhouses, restaurants,
bars, fishing piers (and retail sales establishments engaged
' in the sale of primarily tourist or seasonal visitor items such
as gifts, sportswear, sporting goods, and other notions). In
addition, however, the district also allows types of uses that
' one might not associate with the Boardwalk Area, includ-
ing agriculture, home occupations, and offices.
' Within the A-1 District, there is no minimum lot area
required, no minimum front, rear, or side yard require-
ment, provided that any structure or building in excess of
' 50' in height must have a setback from the front lot line equal
to P for every 2' in height above 50'. Sign regulations, off
' street parking and fence regulations are controlled by Stan-
dard Articles 500, 400, and 700 of the Zoning Ordinance,
respectively.
IThe T-1 Tourist District encompasses the balance of the
Boardwalk study area westwardly from the A-1 District to
'
Lake Park Boulevard. The general description of the district
is as follows: "This district is established for the principal
use of land for the Town's tourist industry, and as a compli-
mentary district to the A-1 Amusement District and the B-
1 Central Business District. The primary land uses intended
for this zoning district are hotels, motels, and restaurants."
The permitted uses within the district are as stated in the
general description above, but also include art galleries,
'
libraries, and museums. It is worth noting that the district
can also accept parking lots serving uses in a different
zoning district under a conditional use, provided that such
lots contain a minimum of 10 parking spaces. The mini-
'
mum standards for the district are summarized in Article
200 of the Zoning Ordinance.
1
' Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 13

� Section 4:
� Principles for
� Boardwalk Area
� Revitalization
I
Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 14

' Principles Outlined
As seen in Sections 1, 2 and 3 of this report, the development
of this plan is based upon a careful analysis of Boardwalk
Area conditions and potentials. Studies regarding property
'
ownership, land use, transportation, and existing architec-
tural character were conducted as an integral part of plan
preparation. Perhaps most importantly, ideas and perspec-
tives were gathered from residents of Carolina Beach who
know the Boardwalk Area best: the small business
'
operator, the property owner, the real estate agent and
others. These people comprised the Carolina Beach Board-
walk Area Redevelopment Steering Committee. Issues,
'
problems, prospects and opportunities were identified
through careful study and confirmed by a broad spectrum
of local people.
While not every issue identified had a clear best direction
for resolution, several general principles for the betterment
'
of the Boardwalk Area gradually emerged. These univer-
sally held principles provide common ground and set forth
'
the highest general policies to guide public and private
actions for the Boardwalk Area. They may be outlined as
follows:
'
(1) Re-establish the Boardwalk Area as a family
attraction.
'
Nearly everyone recognizes that Carolina Beach was more
family -oriented in past years. Businesses at the Boardwalk
'
generally also catered to the needs of the middle income
America and, for several decades, Carolina Beach was
'
known to provide good recreational value.
The past two decades, however, have witnessed a marked
'
decline in family -oriented businesses at Carolina Beach.
Such businesses have gradually disappeared to be replaced
by more adult -oriented establishments, such as nightclubs
'
and bars. Instead of projecting a clear image to the family
market, the Boardwalk Area now presents a split image,
part adult and part family. Many feel this split image is
'
keeping the beach from regaining its economic potential.
Members of the Steering Committee, as well as residents
attending the public meetings for the Boardwalk Area Plan,
texpressed
a uniform opinion that the Boardwalk Area
should be returned to a family -oriented marketing empha-
sis.
' Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 15

P
(2) Provide affordable financing for public and private
sector improvements.
Many Boardwalk Area property owners and businessmen
stated that they know what needs to be done with their
businesses if they could just find the financial backing.
Under the Boardwalk's current economic conditions, some
establishments are only marginally profitable, and are
taking in only a fraction of the potential profits that could be
achieved following a successful revitalization program.
On the public sector side, funding is needed to put in place
the public improvements necessary to upgrade the overall
image of the Boardwalk Area. While State and Federal
grant sources for redevelopment have all but dried up in
recent years, every effort must be made to identify other
avenues for funding. In the absence of significant financial
resources from outside the community, any locally gener-
ated revenues mustbe within the ability of the Town to pay,
and must reflect a fair distribution of costs and benefits.
(3) Increase promotion and visibility in emerging
market areas and employment groups.
During its earlier heyday, Carolina Beach catered very
strongly to the recreational needs of the employees and
families of traditional industries in the Carolinas. Middle-
class workers from the textile and tobacco industries
' brought their families to Carolina Beach on a regular basis.
As these industries declined, however, much of the tradi-
tional tourist support for Carolina Beach has softened. It is
' apparent that new industry groups and market segments
must be identified for targeting.
' Today, the urbanizing areas of the Piedmont possess some
of the fastest growing communities of their size in the U.S.
' In addition, high-tech industries, such as those associated
with the Research Triangle Park, are creating a new genera-
tion of workers in the Carolinas, with relatively high levels
' of disposable income and increasing leisure time opportu-
nities. As part of an overall redevelopment strategy, the
Carolina Beach Boardwalk Area must be prepared to tout
' its successful revitalization to these emerging areas and
industry groups.
' Page 16 - Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

P
'
(4) Reestablish the view to the ocean.
Many local residents recall fond memories of the old
'
wooden Boardwalk. Visitors could stroll up and down the
beach with unobstructed views to the Atlantic Ocean while
at the same time enjoying the carnival atmosphere of the
'
Boardwalk. Today, however, an artificially created dune
sits between the Boardwalk and the ocean, effectively elimi-
nating any views to the water from the amusement area.
'
Recognizing the need for this protective dune system, it is
unlikely that it will ever be deliberately moved by mankind.
It is also unlikely that the current elevation of the structures
'
at the Boardwalk will ever be raised. Therefore, some other
means must be found to restore the view to the ocean.
'
(5) Create a unified theme for redevelopment, and a
means to insure its implementation.
'
The need for a common architectural theme was identified
early on as a means of tying the whole Boardwalk Area
'
together. More than one local resident cited Gatlinburg,
Tennessee as an example of how a unified design theme can
help bring considerable financial success to a commercial
area.
The character of development at the Carolina Beach Board-
walk has evolved over many decades. In several significant
ways, the Boardwalk Area has retained much of its original
' character. The scale of various buildings are compatible, as
are setbacks and building heights. Building materials are
generally brick or painted wood and stucco, and an over-
head plane is established clearly throughout most of the
Boardwalk Area by the canopies over each storefront.
'
In general, the Boardwalk Area has not succumbed to more
modern, "artificial' materials such as fiberglass, plastic,
and aluminum. The types of fast food franchise businesses
'
that have traditionally made use of such materials have not
yet moved into the Boardwalk Area itself. Thus, there
remains a great opportunity to capitalize upon the tradi-
tional character of the Boardwalk Area and re-emphasize
its natural strengths.
'
Some means must be found to insure that everyone partici-
pates in fixing up their property, as needed, in accordance
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 17

' with agreed upon standards. Therefore, the plan should
provide for such a requirement.
' (6) Improve parking, lighting and security.
Most Boardwalk Area property owners and business
' people agreed that there could never be too much parking
in the vicinity of the Boardwalk. Parking opportunities for
the Boardwalk Area today include free on -street parking as
' well as parking in the municipal lots near the Town Hall. A
limited amount of pay parking is also available on private
' lots located on the perimeter of the Boardwalk Area. There
are, perhaps, two to three other significant vacant lots in the
vicinity of the Boardwalk that are not developed and are not
' used for parking. The plan should reflect these opportuni-
ties.
' Lighting and police protection both relate to the level of
perceived and actual security in the Boardwalk Area. While
most of the Boardwalk Area meets accepted standards for
' public lighting, there are certain areas of the Boardwalk that
are in need of additional lighting fixtures. Police protection
in heavily used areas such as the Boardwalk can always be
' improved, and should be included as part of the Town's
commitment to the Boardwalk Area. Boardwalk Area
property owners and merchants may also wish to share a
' greater proportion of the financial burden of providing
increased security.
' (7) Emphasize short-term actions toward long-term
goals.
While a year-round vitality in the Boardwalk Area and the
possible location of a convention center facility are consid-
ered long-range goals, it is felt to be essential in the short-
range, to revitalize the area for the summer season and
establish that as a sound foundation upon which to build.
' For several years, there has been discussion about the
possibility of a major convention center facility locating on
' property just to the southwest of the Boardwalk Area. The
project moved along through various planning stages, but
was ultimately withdrawn. While the creation of such a
' facility would no doubt be a major boost to the economic
vitality of the Boardwalk Area, the Town and local busi-
nessmen should not forego near -term opportunities while
' waiting for this "ship to come in." Rather, several smaller,
IPage 18 - Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

' practical, near -term actions for improving the Boardwalk
Area might create the kind of economic environment neces-
sary to provide the catalyst for a major convention facility,
' hotel, or other major investment.
(8) Establish a means for continued cooperation and
' management of the Boardwalk Area.
Several area residents noted that one of the biggest stum-
'
bling blocks to the revitalization to the Boardwalk Area was
the lack of cooperation between local businesses and prop-
erty owners, and between Boardwalk Area merchants and
the Town. While some property owners have taken great
strides to improve the condition and appearance of their
'
properties, others have done very little. These fragmented,
uncoordinated efforts over the years have proven to be
ineffective, and have in fact created a level of cynicism on
'
the parts of many property owners about the future of the
Boardwalk Area in general.
'
Recently, however, many property owners and merchants
have been very well pleased and enthused about the spirit
of cooperation that has emerged over the course of prepar-
'
ing the Boardwalk Area Redevelopment Plan. Various
interests associated with the Boardwalk have begun to
'
realize that when people begin working together, change
can be accomplished very successfully. It is important that
this current level of cooperation be continued beyond the
'
preparation of the Redevelopment Plan. Some ongoing
management structure should be created to continue build-
ing upon the momentum that has been established.
'
Surnsnary
The success of the Boardwalk Area Redevelopment Plan
will be measured in large part by public and private sector
'
adherence to guiding principles outlined above. These
eight principles can be restated and summarized as fol-
lows:
I. Reestablish the Boardwalk Area as a family attrac-
tion.
2. Provide affordable financing for public and private
sector improvements.
3. Increase promotion and visibility in emerging market
areas and employment groups.
4. Reestablish the view to the ocean.
' Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 19

5. Create a unified theme for redevelopment, and a
means to insure its implementation.
6. Improve parking, lighting and security.
' 7. Emphasize short-term actions toward long-term
goals.
8. Establish a means for continued cooperation and
management of the Boardwalk Area.
Together, these principles provide a significant direction
' for the preparation of the Redevelopment Plan and Pro-
gram for the Boardwalk Area.
Page 20 - Carolina Beach Revitalization Plan Edward D. Stone, Jr. and Associates

Section 5:
Site Plan and
Design Components
Carolina Beach Revitalization Plan - Page 21
Edward D. Stone, Jr. and Associates

11
C
This section presents the proposed physical plan of im-
provements within the Boardwalk Area. The plan is pre-
sented at an ever-increasing level of detail, beginning with
the General Conceptual Plan, moving to the Redevelop-
ment Master Plan, articulating specific design components,
and finally, outlining budget estimates for the proposed
public improvements.
Conceptual Plan The Conceptual Plan for the Carolina Beach Boardwalk
Area represents a pulling together of various information
sources regarding existing conditions in the area. It is also
an initial response to the eight general "Principles For
Boardwalk Area Revitalization" as outlined in Section 4 of
this report. It should be emphasized that the Conceptual
Plan focuses only on the physical aspects of the redevelop-
ment program, and does not address the regulatory, finan-
cial, and managerial aspects of a full comprehensive plan.
The full plan, including other non-physical aspects, is pre-
sented in Section 6 of this study.
For the purposes of discussion, the Conceptual Plan is best
described according to seven key elements:
1. Commercial Area Fix Up - At a minimum, all building
facades within view of the public should be subject to a
paint up/fix up as necessary.
2. Restore View to Beach and Ocean -Anew Boardwalk
structure or series of structures is needed to reestablish
the visual linkage between the Boardwalk Area and the
Atlantic Ocean.
3. Increase and Upgrade Parking -Certain underutilized
and vacant areas within the vicinity of the Boardwalk
present an opportunity to provide additional parking,
at least on an interim basis. Other existing parking lots
need to be upgraded, both aesthetically and function-
ally
4. Create Welcome Spaces - At the foot of Cape Fear
Boulevard and Harper Avenue, there are two strategic
locations that serve as the immediate entry way into the
core of the Boardwalk. These two locations are deserv-
ing of special treatment and attention as the gateway to
the Boardwalk.
5. Attractive Announcement Corridors - Lake Park
Boulevard (U.S. 421), Cape Fear Boulevard, and Harper
Avenue serve as the primary announcement corridors
into the general vicinity of the Boardwalk. The street -
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 22

' scape of these corridors should be improved to formally
announce to the motoring public that they have arrived
in a special area.
' 6. Pedestrian Link to Marina - The Carolina Beach
Municipal Marina is a major drawing card to the area of
Town north of the Boardwalk Area. A strong pedestrian
' linkage is needed to tie the marina with the Boardwalk
Area and encourage pedestrian movement between
1 these two points.
7. Increased Lighting - Certain areas of the Boardwalk are
in need of additional lighting. The two areas most in
' need are Woody Hewett Avenue south of Cape Fear
Boulevard and the oceanfront Boardwalk Area.
' The above elements of the Conceptual Plan were presented
to the Carolina Beach Boardwalk Steering Committee on
March 4, 1987 and endorsed with a recommendation to
' proceed with the development of a Master Site Plan.
The Redevelopment Master Plan for the Carolina Beach
' Boardwalk Area represents the execution of the various
design components recommended at the Conceptual Plan
' level.
In addition to paint up and fix up of existing buildings, the
' Master Plan also shows the location of potential infill devel-
opment to complete the streetscape, particularly along
Cape Fear Boulevard. The Master Plan also shows in plan
view the location and approximate configuration of the
proposed new elevated Boardwalk along the oceanfront.
Also suggested is the painting of the existing concrete
' Boardwalk in the heart of the retail area with a color topcoat
similar to that used on tennis courts.
Underutilized vacant parcels of land have been illustrated
to show how they could be designed for improved parking.
Existing parking lots have also been upgraded with plant-
ing islands and landscaping. Pedestrian connections have
been recommended from these parking areas to existing
' sidewalks leading to the Boardwalk.
The streetscapes of Lake Park Boulevard, Cape Fear Boule-
vard, and Harper Avenue have been illustrated to show
how planting islands can be used to introduce new street
trees to these areas and effect a sense of announcement and
' arrival to the general Boardwalk Area. The foot of Cape
Redevelopment Master Plan
Overview
New Construction
Parking
Streetscape Improvements
IPage 23 - Carolina Beach Revitalization Plan
Edward D. Stone, Jr. and Associates

LLJ LILJ [ I I I
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......................................................................................... . . .
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2 9 BOARDWALK AREA REDEVELOPMENT PLAN
Town of Carolina Beach, North Carolina
v-P Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North Carolina

Rot��
BOARDWALK AREA REDEVELOPMENT ;PLAN
v Town of Carolina Beach, North Carolina
Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North Carolina

Gp,ROI./
r2/ ? BOARDWALK AREA REDEVELOPMENT PLAN
3-=-:Dl Town of Carolina Beach, North`Carolina
Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North Carolina

BOARDWALK AREA REDEVELOPMENT PLAN
Town of Carolina Beach, North Carolina
Edward D. Stone, Jr. and Associates, Planners and Landscape Architects, Wilmington, North Carolina

' Fear Boulevard has been proposed for the location of a new
theme tower and arrival area including an information
' shelter. The foot of Harper Avenue has also been upgraded
with increased landscaping and an additional smaller in-
formation shelter.
' Banner/Announcement A noteworthy feature proposed for the entrance to Cape
Pylon Fear Boulevard from Lake Park Boulevard is the proposed
' banner/announcement pylon. This permanent structure
would have the capability of accepting interchangeable
community banners in conjunction with specific festivals or
' other activities going on at the Boardwalk.
' Facade and Building At the Steering Committee meetings related to the prepara-
Improvements tion of the Redevelopment Plan, several Boardwalk Area
property owners voiced an interest in knowing what they
could do to improve their building facades in concert with
an overall theme. The illustrations on the following page
depict some simple improvements that can be made to
'
achieve a more unified design theme without destroying
the traditional character of the Boardwalk Area. The intent
is to insure that the recommended improvements are prac-
tical, do -able, and relatively inexpensive to achieve.
As shown in the accompanying diagrams, there are ten
'
specific areas of potential improvements. While most of the
suggested improvements are intended to be the responsi-
bility of the individual property owner or merchant, a few
are clearly better handled in the public realm and would
therefore be included as part of the overall package of
' public improvements carried out by the Town. Public and
private responsibilities are specifically noted below.
' 1. Overhead Wires and Poles - The plan recommends
that the existing maze of overhead wires and poles be re-
located underground to eliminate visual clutter. (pub-
lic)
2. Lighting - New lighting fixtures should be installed
which relate better to the pedestrian scale. (public)
' 3. Second Floors - The second stories of some buildings
appear neglected, and could be improved by the addi-
tion of Bahama shutters as well as the painting and
' repair of existing windows. (private)
4. Signage - Signs on individual businesses should be
I
upgraded and simplified according to specific material
IEdward D. Stone, Jr. and Associates Carolina 13cach Revitalization Plan - Page 24

' and color guidelines and illumination standards. (pri-
vate)
5. Building Canopies - Where existing buildings lack
' canopies, new canopies should be added to provide for
shade and a pedestrian scale. Existing canopies should
be better maintained in some instances. (private)
' 6. Unsightly HV/AC Units - Where existing heating and
air conditioning units are exposed to public view, either
at the roof line, canopy, or ground floor level, such units
' should be either relocated or effectively screened. (pri-
vate)
7. Building Materials and Paints - The plan recommends
that stucco building facades painted with fresh summer
pastel tones be emphasized in lieu of dark brick or dark
' wood materials. (private)
8. Flowers and Seating - New seating opportunities
should be provided within the Boardwalk Area itself, as
' part of the overall plan of public improvements for the
area. In addition, individual property owners and
merchants should be encouraged to provide additional
' opportunities for flower plantings in the form of either
window boxes or ground containers. Such containers
would be subject to design standards agreed upon by
' the Town and Boardwalk Area merchants. Integrated
flower containers atop specially designed trash recep-
tacles have also worked effectively in other communi-
ties. The initial installation of these containers would
likely be the responsibility of the Town, but with main-
tenance of the flower containers assumed by the Board-
walk merchants. (public/private)
9. Window Displays - As a general rule, window displays
' should use fewer elements and be changed more fre-
quently to avoid window sign clutter. (private)
' Most of the above mentioned typical facade and building
improvements could be incorporated into a set of design
guidelines and building rehabilitation standards for the
' Boardwalk Area. The need for these design guidelines is
more fully discussed under Section 6 of this report.
' Budget estimates have been prepared for the public im-
provement components of the Redevelopment Plan. No
' attempt has been made to estimate the cost of improve-
ments to individual buildings as such improvements will
vary considerably from structure to structure and, to some
Budget Estimates
Page 25 - Carolina Beach Revitalization Plan
1 '
Edward D. Stone, Jr. and Associates

F
H
extent, with the financial constraints that each owner or
merchant may be under.
The following budget estimates are presented in a manner
which allows the reader to assess the relative cost of each
component of the plan. This format also allows decision -
makers to remove or postpone certain elements of the plan
as may be necessary for budgetary reasons. However,
removal of major design components from the basic plan
(Section A) is not recommended as this would tend to
weaken the intended impact of the total plan of improve-
ments.
Town of Carolina Beach
Order of Magnitude Budget
June 1,1987
A. BASIC PUBLIC IMPROVEMENTS
1. Boardwalk
Elevated boardwalk
287,300.00
Ramp access
38,500.00
Stairs
28,750.00
Shelter trellis over
boardwalk
14,000.00
Dune crossover
39,336.00
Benches
7,750.00
Lighting at shelters, ramps
and stairs
1,500.00
Lightpoles at 20' on center
19,800.00
Concrete at base of ramps
1,020.00
TOTAL $437,956.00
2. Walk
Topcoat - existing walk
18,830.00
Construct new walks
10,520.00
Topcoat - new walk
1,460.00
New pedestrian connections
3,000.00
TOTAL $33,810.00
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 26

3. Miscellaneous Infrastructure
Information Shelter
Raised-brick_planters_
Steam tower
Program sign
Electric for tower
Banner pylon
Street planting of islands,
excavation
Street markings
Street lighting on Woody
Hewett Avenue
Trash receptacles
TOTAL
4. Planting
Wax myrtle street trees
Evergreen shrubs
Boardwalk planting
Myrtles
Topsoil for trees and
shrubs
Evergreen shrub beds
Irrigation
Topsoil for planting and
planting islands
Irrigation
TOTAL
Subtotal
Contingency (15%)
TOTAL BASIC PUBLIC
IMPROVEMENTS
Page 27 - Carolina Beach Revitalization Plan
8,000.00
2/000.00
12,000.00
8,000.00
2,000.00
20,000.00
16,500.00
4,000.00
9,000.00
10,000.00
$91,500.00
19,560.00
27,600.00
2,040.00
16,400.00
11,200.00
5,000.00
46,500.00
15,000.00
$143,300.00
706,566.00
105,985.00
$812,551.00
Edward D. Stone, Jr. and Associates

fl
n
n
B. UNDERGROUND UTILITIES OPTION
Underground Utilities
Electric
256,275.00
Telephone
113,900.00
Cable TV
30,000.00
Reconnect to all buildings
200,000.00
Paving removal and
replacement
28,460.00
Pole removal
9,000.00
Transformers
40,000.00
Excavation and backfill
17,080.00
Repair to broken sewer,
water and other
underground
10,000.00
Repave
26572.00
Subtotal $731,287.00
Contingency (15%) 109,693.00
TOTAL UNDERGROUND
UTILITIES OPTION $840,980.00
GRAND TOTAL WITH
UNDERGROUND UTILITIES
OPTION $1,665,031.00
Implementation This section has outlined a number of physical improve-
ments recommended for the Boardwalk Area. The costs
associated with these improvements have also been sum-
marized. As noted in the introduction to this report, how-
ever, any successful commercial revitalization strategy
must include financial, regulatory and organizational
components as well; these components must be equally
shared in a partnership between the public and private
sectors. The following Comprehensive Revitalization Pro-
gram sets forth a specific plan of action to accomplish these
objectives.
' Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 28

Section 6:
Comprehensive
Revitalization Program
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 29

Overview When local merchants and property owners look at the
problems of their own commercial area, there is a tendency
I to think that their problems are unique and therefore per-
haps more difficult to overcome. Studies nationally, how-
ever, have indicated that the root causes of economic prob-
lems in older commercial areas are very similar. Absentee
ownership, declining physical appearances, and a low level
of formal organization and management, unorganized
' parking and traffic movements, usually contribute to a
gradual cycle of decline. Once these similarities have been
recognized, finding the most appropriate solution becomes
more straightforward.
For Carolina Beach, a comprehensive four point revitaliza-
tion program is proposed which has proven successful in
similar situations around the nation. At the heart of the
program, is a public/private partnership made up of four
fundamental and equally critical elements:
1. Public improvements
2. Design guidelines/building rehabilitation standards
3. Financing
4. Ongoing management.
This strategy responds to each of the eight principles for
Boardwalk Area Revitalization identified in Section 4.
At the various Steering Committee meetings for the Board-
walk Area Plan, property owners expressed enthusiasm at
the prospect of improving the area, but also voiced frustra-
tion at the inability to get people to act. For this reason, the
public improvements proposed for the Boardwalk Area do
not stand alone, but are contingent upon the establishment
of all four aspects of the program. The specifics of this
leveraging of public and private interests are more fully
explained in the paragraphs that follow.
Public Improvements
The Master Redevelopment Site Plan for the Boardwalk
Area outlines several specific physical improvements that
can be taken to 1) improve the sense of arrival to the
Boardwalk Area, 2) improve the visual image of the street-
scape corridors leading to the area, 3) re-establish the visual
linkage between the Boardwalk Area and the ocean, 4)
establish a unified pedestrian pavement surface, and 5)
enhance lighting and landscaping where needed. The
improvements in Master Site
specific public proposed the
Edward D. Stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 30

' Plan are as follows: landscaping along Lake Park Boule-
vard, Cape Fear Boulevard, Harper Avenue, and Canal
Drive, improved arrival areas at the foot of Cape Fear
' Boulevard and Harper Avenue, an overhead entry arch
leading into the Boardwalk Area, improved signage, an
elevated wooden boardwalk along the ocean side of the
Boardwalk Area, and increased lighting particularly south
of the Boardwalk Area and along the oceanfront. A more
detailed description of these improvements was presented
' in Section 5 of this plan.
' These various public improvements are very important to
the success of the redevelopment effort. First, they demon-
strate a clear commitment on the part of Town government
and the community at large to the restoration of the Board-
walk Area. Such improvements send a signal to current
property owners, merchants, and prospective investors
' that the Town cares about its central core area and that this
area is upward bound.
Second, the recommended public improvements create the
sudden visual impact as necessary to get people to take
notice. The public improvements are, in essence, the cata-
lyst that sets off a chain reaction of private sector invest-
ment. The public improvements represent the largest
single part of the public sector side of the partnership
iequation.
The Town of Carolina Beach, in cooperation with Board-
walk Area property owners and merchants, should prepare
and adopt design guidelines and building rehabilitation
' standards for any future improvements in the Boardwalk
Area. Such design guidelines should pick up on the existing
architectural character of the area, and should be practical,
' do -able, and affordable. Emphasis should be placed on
improving building facades, covering up exposed me-
chanical units, and painting/fixing up existing structural
' elements. The appropriate use of color in paints can be used
to unify the area, while at the same time accenting specific
1 architectural details of each structure.
Any future rehabilitation or new development should
' adhere to a specifically tailored set of design guidelines
which will be given the force of law through the Town's
zoning ordinance. A special Zoning Overlay District will be
' created as part of the zoning ordinance and will be admini-
Design Guidelines/Building
Rehabilitation Standards
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stered through a normal site plan review process by the
Planning and Zoning Board. The authority to create such a
Zoning Overlay District has been given to cities in North
Carolina through General Statute 16A-382 as amended.
Similar Zoning Overlay Districts have been used success-
fully in other communities in the State, and are currently
receiving widespread attention and use due to the potential
results they can achieve.
There are several very good reasons for recommending
mandatory design guidelines and building rehabilitation
standards. First, aesthetic improvements to private build-
ings is a necessary complement to physical improvements
in the public right-of-way. Together, the public and private
improvements can create a new image for the area, which
will attract new businesses and an increased volume of
visitors to the area.
Second, mandatory building rehabilitation standards help
prevent disinterested absentee property owners from not
participating in the redevelopment process. Too often,
"arms length" owners of properties or businesses in the
area will take a free ride during the revitalization process,
gaining unearned increases in the value of their property
while adjacent property owners invest considerable time,
effort, and money to upgrade their properties. There is also
a hesitancy on the part of some owners to invest in their
property when uncertainty exists as to whether their neigh-
bors will participate.
Finally, mandatory building rehabilitation standards will
overcome the current apathy or cynicism on the part of
some owners as to whether this plan really means business.
The establishment of building design and rehabilitation
standards and a special zoning overlay district represent a
significant commitment by Town officials and Boardwalk
Area property owners to the future redevelopment of the
area.
Ongoing Management Despite the efforts of many Boardwalk Area property
owners and merchants to upgrade their business
operations, there is a significant amount of fragmentation
within the merchants of the Boardwalk Area. Clean-up
programs, promotions, and other activities requiring con-
siderable coordination among merchants, oftentimes suffer
from a lack of overall direction. The Boardwalk Area does
I
Edward D. stone, Jr. and Associates Carolina Beach Revitalization Plan - Page 32

not operate under a unified management structure such as
one might find in a shopping mall, but rather according to
an informal and, for the most part, uncoordinated series of
' individual actions. There is no Merchants Association
specifically oriented to the needs of the Boardwalk Area.
P
n
To carry out the purposes of this plan, and to provide for a
higher level of ongoing management for the future of the
Boardwalk Area, a Boardwalk Area Merchants and Prop-
erty Owners Council should be established. The Council
would be responsible for coordinating promotions in the
Boardwalk Area, for assisting in the development of design
and building standards in the Boardwalk Area, to coordi-
nate special events, to serve as liaison to the Town Board, to
encourage merchant and property owner participation in
decisions affecting the Boardwalk Area, and to advise on
the distribution of any municipal service district revenues
generated for expenditure in the Boardwalk Area. The
near -term and continuing execution of these types of re-
sponsibilities are important for the future success of the
Boardwalk Area.
The Boardwalk Area Merchants and Property Owners
Council should be comprised of no fewer than five mem-
bers and no more than ten members. The majority of the
membership on the Council should be property owners
with minority representation by business operators/les-
sees. Membership on the Council could be determined by
an annual meeting of all property owners and merchants, or
could be determined through appointment by the Town
Board.
For the purpose of this plan, "financing" refers to both
financing for the public improvements to be made in the
Boardwalk Area as well as any individually financed im-
provements to private structures in the area. The financing
of major public improvements by the Town of Carolina
Beach is hinged entirely on the commitment of private
property owners to the establishment of the municipal
service district, the mandatory building rehabilitation stan-
dards, and the Property Owners and Merchants Council.
For the financing of the various public improvements, this
plan suggests the passage of a general obligation bond by
the voters of the Town of Carolina Beach.
Financing
(A) General Obligation Bond
Edward D. Stone, Jr. and Associates
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Because of the Boardwalk's importance to all of Carolina
Beach, all residents, property owners, and businessmen
should have an interest in seeing the Boardwalk revitalized.
The Boardwalk Area is at the very heart of Carolina Beach
and represents the overall image the Town wishes to con-
vey to the visiting public. It is the focal point of many Town
activities, and represents the potential to positively impact
the real estate investments of all homeowners, business
owners, and other property owners within the corporate
limits. Close to Carolina Beach, for example, the revitaliza-
tion of Wilmington's Downtown Riverfront has had posi-
tive shock waves throughout much of the City. Revitaliza-
tion of homes, businesses, and offices received a major
boost when Wilmington's Riverfront Park was first created
and has developed a momentum that continues to influ-
ence new investments in the area.
(B) Municipal Service The successful passage of a general obligation bond will
District provide the necessary funding to have a major and imme-
diate impact on the redevelopment of the Boardwalk Area.
Beyond this initial injection of funding, there is a need for a
lesser amount of ongoing funding to maintain both physi-
cal and managerial improvements within the Boardwalk
Area. Many small towns with readily definable commer-
cial districts such as the Carolina Beach Boardwalk Area
have established special municipal service districts, in ac-
cordance with State Enabling Legislation. These special tax
districts provide limited yet reliable sources of funding for
ongoing maintenance and management of specialized
commercial areas. In Clinton, North Carolina, for example,
a municipal service district provides funding on an annual
basis which can be used for arranging parking leases, for
parking lot maintenance and for organized promotions. In
New Bern, North Carolina, a downtown area municipal
service district has provided a small but steady source of
funding to help sustain and improve upon the quality of
conditions in that downtown area.
It should also be noted that, while the bond referendum
places a financial burden on all property owners in the
Town, the municipal service district applies only to those
property owners who will benefit most directly from the
funding generated by the taxing district. For the sake of
discussion, the tax rate within such a district could vary, for
example, from 25 cents to 50 cents per $100 valuation,
though the actual tax rate must be established by the Town
Carolina Beach Re,.italization Plan - Page 34
' Edward D. Stone, Jr. and Associates ,

' Board. The passage of a general obligation bond would
distribute the upfront costs of public improvements overall
' owners of property in the Town, while the municipal serv-
ice district would place the tax burden solely on those
property owners who stand to benefit most directly from
the use of the funds.
Support for the establishment of the municipal service
district by the Boardwalk Area property owners should be
viewed by other property owners in the Town as a good
faith effort on the part of Boardwalk Area owners to "carry
their own weight," and place the passage of the general
obligation bond in the most favorable light.
With regard to financing private building rehabilitations, it
is recommended that each lending institution in the
Wilmington area be approached on a unified front, perhaps
by representatives of the Boardwalk Area Merchants and
Property Owners Council. These discussions with lenders
should begin occurring soon after the adoption of this plan
by the Town Board, and should be intensified immediately
following passage of the proposed general obligation bond.
The purpose of these discussions should be to outline the
full comprehensive revitalization program with the intent
of securing the lowest possible loan rates for area merchants
and property owners. With the passage of general obliga-
tion bond referendum and the establishment of mandatory
design guidelines and building rehabilitation standards,
the security of the lending institution will be stronger.
Other financing methods for public and private improve-
ments were investigated as a part of this study. Unfortu-
nately, most did not apply to the Carolina Beach Boardwalk
Area situation. A summary of these various methods and
the reasons they are not applicable in Carolina Beach are
included in the Appendices of this plan.
(C) Private Financing
(D) Other Financing
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Appendix: Public At the outset of the planning process for the Boardwalk
Participation Area, public participation was noted as being critical to the
development of the plan, and ultimately its implementa-
tion. For this reason, the first action requested by EDSA of
the Carolina Beach Town Council was to establish a Steer-
ing Committee of Boardwalk Area property owners and
interested citizens. The Steering Committee was appointed
in January of 1987 and was formally organized at its first
meeting on February 4th. A complete list of meeting dates,
activities, and actions is presented at the end of this section.
At the first meeting of the Steering Committee, the impor-
tance of each member's active participation in plan devel-
opment was emphasized. Three reasons were given as to
why each Steering Committee member's active participa-
tion was so critical. They are repeated here in full as they
were provided in a handout given to each Steering Commit-
tee member:
Why Have A Steering Committee?
Your effectiveness as a Steering Committee member is
absolutely critical to the success (or failure) of the Caro-
lina Beach Boardwalk Area Redevelopment Plan:
1. LOCAL PERSPECTIVE: You represent a unique
local viewpoint from within the community, you know
the area well, its strengths and weaknesses. You have a
feeling for what may work and what may not.
2. FEEDBACK: You should provide input on the accu-
racy of information gathered and feedback on recom-
mended solutions. (You should not, however, take the
roles of planner, designer, or government official. You
role is as an advisor.)
3. NETWORKING: You know others in the commu-
nity who have a vested interest in the Boardwalk and
who should be involved in the area's redevelopment.
These others may include friends neighbors, business
associates, or others in a position of interest and influ-
ence.
The series of Steering Committee meetings that followed
typically involved EDSA, the Town Planner, the committee
members, and a number of interested citizens. The plan-
ning and design process that was used led the group toward
an ever-increasing level of plan refinement and detail.
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 37

Initially, a list of strengths and weaknesses (What's Good
and What's Not So Good) was compiled through a nominal
' group technique of which the Steering Committee was the
focus. The full list was then distributed to all property
owners in the Boardwalk Area, and was also published in
the local newspaper.
At the second Steering Committee meeting held on Febru-
ary 18,1987, the Committee was expanded to ten members
by the Town Council through additional appointments.
The list of strengths and weaknesses was reviewed, as well
as a summary of Boardwalk Area conditions as compiled by
EDSA through aerial photos, land use surveys, traffic
analyses, photo inventories, etc. From the review of
strengths and weaknesses, a number of major concerns
evolved which eventually became the major criteria for the
' development of the master site plan and revitalization
strategy. Those major concerns have been summarized as
the eight "Principles For Boardwalk Area Revitalization"
presented in Section 4 of this report.
At the third meeting of the Steering Committee held on
' March 4 1987, a conceptual plan was presented outlining
many of the ideas put forth by the Steering Committee, as
well as some suggestions by EDSA that were felt to be
' responsive to the concerns of the committee. The begin-
nings of an overall comprehensive strategy involving regu-
lations, financing and management were also presented at
this meeting.
I At the fourth meeting of the Steering Committee held on
April 8th, a more specific site plan was presented for the
Boardwalk Area showing the potential locations of street
trees, a new elevated boardwalk, parking areas, planting
medians, signage, etc. Preliminary budget estimates were
presented for the public improvement components of the
' plan. At the same meeting, the overall revitalization strat-
egy for the area was more fully discussed, including the
mandatory building rehabilitation standards and associ-
ated zoning overlay district, the need for a municipal serv-
ice district, the necessity of commitments by private prop-
erty owners to upgrade their property, and the need for a
general obligation bond referendum to finance the public
improvements.
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Edward D. Stone, Jr. and Associates

On May 13, the Steering Committee met for a fifth time, the
purpose of which was to review suggested "Typical Facade
and Building Improvements" as illustrated in a "Before and
After" drawing. Other discussion centered on the need to
keep the Steering Committee together after the plan was
completed so that the momentum for area revitalization
would be sustained.
Edward D. Stone, Jr. and Associates
Carolina Beach Revitalization Plan - Page 39

Boardwalk Area Redevelopment Plan
Town of Carolina Beach
1/13/87 Town Board - Introduction to Study
- Request to Appt. Steering
Committee
2/4/87 Steering - Steering Committee Ap-
Committee pointed
(1st Meeting) - Introduction to Study
- Purpose
- Schedule
- Role of Steering Committee
- What's Good and What's
Not So Good
2/10/87 Town Planner - Preparation and Mailing of
and EDSA Information Sheet to all
Boardwalk Area Property
Owners
2/18/87 Steering - More Steering Committee
Committee Appointments
(2nd Meeting) - Review of What's Good
and What's Not So Good
- Review of Boardwalk Area
Conditions
3/4/87 Steering - Presentation of Conceptual
Committee Plan
Ord Meeting) - Overall Strategy
- Discussion and Action
(Endorsement)
5/13/87 Steering
Committee
- Presentation of Typical
Facade and Building Im
provements Illustration
- Commitment to Maintain
Steering Committee Be
yond Completion of the
Plan.
7/29/87 Town Board - Presentation of Plan to
Town Board. Discussion of
Strategy for Implementa-
tion.
Summary of Public
Participation Opportunities
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' Appendix: Redevelopment
Plan Technical Statements
In mapping out a strategy for the preparation of this docu-
ment, CAMA officials suggested that the plan adhere to
certain general requirements for redevelopment plans as
specified in the General Statutes of North Carolina.
For this reason, the following technical statements are
provided:
Changes in Zoning As noted in Section 6 of this report, this Redevelopment
Plan calls for the establishment of a special overlay district
to the Town's existing zoning ordinance. The establish-
ment of this overlay district would have no effect on the
underlying zoning districts already in place for the Board-
walk Area. Therefore, any uses that would be allowed in
the existing A-1 Amusement District and T-1 Tourist Dis-
trict would continue to be allowed in their respective dis-
tricts subject to the additional mandatory design guidelines
and building rehabilitation standards associated with the
overlay district. The method by which this overlay district
would be implemented and administered is more fully
described in Section 6.
Changes in Street Layout The existing street pattern in the vicinity of the Boardwalk
or Street Levels Area is fundamentally set and serves the needs of the
central area of Carolina Beach adequately. This Redevelop-
ment Plan plan for the Boardwalk Area calls for the reten-
tion of the existing street layout and capitalizes on its
configuration to draw additional visitors into the area from
Lake Park Boulevard (U.S. 421). Major changes in street
layout or level would also be costly and counterproductive
in light of budgetary considerations and the plan's empha-
sis on practical, realistic, do -able solutions.
For the sake of completeness, however, it should be noted
that the plan calls for the addition of new planting islands
along the edge of the primary transportation corridors in
the study area. Streets included for improved landscape
treatment include Lake Park Boulevard, Cape Fear Boule-
vard, Harper Avenue, and Canal Drive. These improve-
ments will have no impact on existing traffic flows, and are
designed solely to enhance the aesthetics of the streetscape.
In addition, Cape Fear Boulevard is proposed in this plan
for a turn -around and drop-off area. This turn -around is
likely to improve traffic movements at this dead end section
of the Boulevard.
Edward D. stone, Jr. and Associates
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Estimated costs for all public improvements recommended
in the Redevelopment Plan have been set forth in Section 5
of this report. Methods of financing the necessary improve-
ments are fully discussed in Section 6 of the plan. In
addition, the Appendices include an evaluation of a num-
ber of other potential financing methods that proved to be
unapplicable to the Carolina Beach Boardwalk Area.
Estimated Costs and
Methods of Financing
There are no existing residential structures within the study Relocation of Displaced
area that have been recommended for removal as part of Families
this plan. Therefore, no relocation method is desired or
needed.
The Redevelopment Plan recommends that no additional
residential development be programmed for the Board-
walk Area. Therefore, population density should remain
unchanged from its current level. Land coverage and
building intensity may increase modestly in the near -term
as property owners seek to create new development on
isolated lots. In the long-term, it is possible that building
intensity could increase more dramatically with the advent
of a hotel/convention center, associated parking deck, or
other equally significant new commercial development.
In preparing the Redevelopment Plan, several State and
' Federal agencies were contacted to discuss and coordinate
certain critical elements of plan:
U.S. Army Corps of Engineers - regarding design of new
elevated boardwalk on landward side of frontal protective
dune. Items of discussion included the recommended
maximum width of the boardwalk (10% the recommended
minimum elevation of the boardwalk above the dune W),
' and the design of the boardwalk and gazebos to allow
penetration of rainwater through to the ground under-
neath.
N.C. Division of Coastal Management - also regarding new
boardwalk construction.
' N.C. Department of Transportation - regarding design of
planting islands, lighting, signage, and other features
' within the right of way of State maintained roadways.
In each case, the resulting plan contained in this document
is responsive to the items discussed.
Population Density, Land
Coverage, and Building
Intensity
Coordination With Other
Agencies
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Appendix: Evaluation of In preparing this plan, a variety of potential funding meth -
Other Financing Methods ods were investigated for their possible application in the
Carolina Beach Boardwalk Area. Unfortunately, for a vari-
ety of reasons, most current Federal and State grant and
loan programs were found to be unapplicable to the Board-
walk Area Plan. Specific evaluations follow:
1. UDAG - Urban Development Action Grants are avail-
able from the U.S. Department of Housing and Urban
Development for employment generating projects in
"distressed" areas. According to the criteria estab-
lished by the program, Carolina Beach does not qual-
ify as a distressed area, and is therefore ineligible to
participate in the program.
2 . Small Cities Community Development Block
Grant Program - This Federally funded program, ad-
ministered at the State level, is also available only to
disadvantaged areas. Carolina Beach does not qualify
as a distressed area under the program.
3. Community Development Block Grant Economic
Development Program - This State operated pro-
gram functions similarly to the Federal Urban Devel-
opment Action Grant program, except that the State
does not require that the funds be expended in dis-
tressed areas. Up to $750,000 can be awarded to a
municipality as a grant to help encourage the develop-
ment of new industry where new jobs will be created
or existing jobs will be retained. The intent of this
competitive program is better suited to application in
support of manufacturing type companies.
4. SBA 503 - The Small Business Administration's 503
loan program provides fixed asset financing for proj-
ects where a high number of jobs will be created in
relation to the financing provided. Due to the paper-
work and fees involved, it is normally not worthwhile
to pursue this financing for projects totalling less than
$200,000. The rehabilitation of properties at the Board-
walk is not likely to generate the numbers of jobs that
this program would be looking for, and it is also
unlikely that the costs of rehabilitation would be sig-
nificant enough to warrant participation in the pro-
gram.
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5. SBA 7(a) Program - The Small Business
Administration's 7(a) loan program is essentially
designed to guarantee loans that a bank may other-
wise be reluctant to approve. The loans can be used for
working capital, machinery and equipment, leasehold
improvements, renovations and rehabilitation, and
land acquisition and construction. The term of the
loan for working capital is generally under seven
years, and machinery and equipment under ten years,
and for property up to twenty years. While it is
conceivable that this program could be applied to
individual businesses at Carolina Beach, use of such
financing would be dependent upon the specific situ-
ation of each borrower.
6. Economic Development Administration (EDA) -
Loans and grants provided through the Federal Eco-
nomic Development Administration are generally
geared toward more traditional forms of economic
development, such as fostering the development for
expansion of a manufacturing plant or industrial park.
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