Land Use Plan Update-1985

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Division of Coastal Management
LAND USE PLAN UPDATE
PREPARED FOR:
THE TOWN OF HOLDEN BEACH, NC
BY:
PLANNERS O LANDSCAPE ARCHITECTS
Adopted November 259 1985
Certified By the Coastal Resources Commission
December 13, 1985

h
M
LAND USE PLAN UPDATE
Prepared for
THE TOWN OF HOLDEN BEACH, NORTH CAROLINA
By:
WOLU PURNORS
PLANNERS O LANDSCAPE ARCHITECTS
P.O. BOX 1110, ST. MARYS, GEORGIA 31558
Adopted by the Town of Holden Beach: November 25, 1985
CRC Certification: December 13, 1985
The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management
Program, through funds provided by the Coastal Zone
Management Act of 1972, as amended, which is administered by
the Office of Ocean and Coastal Resource Management, N.O.A.A.

CONTENTS
INTRODUCTION
Local Government Uses
Local Land Development Uses
Regional Uses
State and Federal Uses
EXISTING CONDITIONS
Existing Land Use
Vacant Land Ownership
Roadways and Transportation
Parking Conditions
Community Facilities
Land Use Regulations
GROWTH TRENDS AND PROJECTIONS
CONSTRAINTS TO DEVELOPMENT
Land Suitability
Fragile Areas
Community Facilities Capacity
POLICY STATEMENTS AND IMPLEMENTATION STRATEGIES
Resource Protection
Physical Constraints to Development
Resource Production and Management
Provision of Services to Development
Economic and Community Development
Growth Patterns
Storm Hazard Mitigation and Post Disaster Planning
Continuing Citizen Participation
LAND CLASSIFICATION
Background and Purpose
Relationship of the Land Classification Map
to Policy Statements
Land Classes and The Land Classification Map
L
1
1
1
2
3
3
7
9
10
10
12
15
17
17
19
23
25
33
33
35
37
38
39
42
44
44
44
45

LIST OF MAPS
Map No. Title Page
One
Existing Land Use
4
Two
Vacant Land Ownership
8
Three
Community Facilities
11
Four
Fragile Areas
21
Five
Flood Hazard Areas
22
Six
Land Classification
46
LIST OF TABLES
Table No.
Title
Page
One
Existing Land Use
5
Two
Developed Land
6
Three
Population Projections
15
Four
Existing Residential Limits 15
Five
Projected Dwelling Units
16
M

INTRODUCTION
The Coastal Area Management Act of 1974 establishes a
cooperative program of land planning and management
between local governments and the State. Land use planning
is intended to be the focus of local government's
involvement; it gives local leaders an opportunity to
establish and implement policies to guide the development of
their community.
The Holden Beach Land Use Plan is an expression of both
short and long range planning goals in which the local
government has set forth its major policies concerning how
and where future development should occur over the next
ten years. Coordination with Brunswick County during plan
development was accomplished through the County Planning
Department.
The Land Use Plan is an important policy document at
local, regional, state and federal levels. The users,
in addition to the Town of Holden Beach, are regional
councils of government, state and federal permitting
agencies, and public or private funding and development
groups.
Local Government Uses
The Plan provides policy guidance for decisions related
to overall community development, while serving as the basis
for land development regulations and capital facilities
programming. Planning for the provision and extension of
capital intensive services, such as central sewer and water,
is aided by the land use plan's identification of likely
growth trends and by plan policies which will direct growth.
Local Land Development Uses
Developers and investors (including prospective
residents) can use the land use plan as a primary source of
information about the community. The plan provides data and
analysis on present development patterns, capacity of
community facilities, growth patterns, and physical
limitations to development. The plan also provides
developers with information about the community's preferences
for development types, densities and locations.
Regional Uses
The Holden Beach Land Use Plan will be used by the Cape
Fear Council of Governments for regional planning purposes
1

and in their function as Regional Clearinghouse (A-95) for
State and Federal funding programs. Brunswick County will
use this and other municipal plans in the development of a
County -wide land use plan. The local plan indicates to these
agencies what types of development the community feels are
likely and where the development should take place.
State and Federal Uses
Coastal government's land use plans are used in
evaluating development proposals requiring approval by
various State and Federal agencies. These agencies must
ensure that permitting decisions consider and are consistent
with the policies and land classification system established
by the Land Use Plan. This requirement for consistency is
established by the North Carolina Coastal Area Management
Act. Similarly, the use of State and Federal funds, either as
grants or as direct agency expenditures, must be consistent
with the local plan.
2

EXISTING CONDITIONS
Existing Land Use
Existing land use in Holden Beach is displayed by Map One. It shows how
each parcel of land in the town is currently used (based on field
inventories conducted during September and October, 1984) and is subdivided
into seven categories:
o Single Family Residential
o Duplex
o Multi -family
o Mobile Home
o Commercial
o Public/Institutional
o Recreational
Single Family Residential includes all detached Single Family Homes on
individual lots.
All structures with two, attached units are included in the Duplex
category.
Residential structures with three or more dwelling units constitute the
Multi -Family category.
The Mobile Home category includes both single mobile homes on
individual lots and mobile homes in parks. Recreational vehicle/travel
trailer parks are also included here.
The Commercial use category consists of retail sales and service
establishments including tourist oriented, recreational businesses.
Public/Institutional uses include government offices with related areas,
and churches.
The Recreational category consists of private and public parks and
recreation areas.
The following table provides a quantitative breakdown of land uses
within the town. Both results of the 1984 survey and information from the
1980 Land use Plan update are provided.
3

The preparation of this map was financed in part tl
vided by the North Carolina Coastal Management
funds provided by the Coastal Zone Managernes
amended, which is administered by the Office of
Resource Manallev?ent, N.O.A.A.
SHALLOTTE INLET
U. S. WW LINE
EXISTING LAND USE
SINGLE FAMILY RESIDENTIAL
DUPLEX
MOBILE HOME
MULTI FAMILY
rl —m IL,a
N T I C 0 C E A IN
=11is lin in
gg IM7 gn am an jjr, rjrj-\�'�
A T L A IN T I C 0 C E A IN
COMMERCIAL
------ -- -- -
PUBLIC/INSTITUTIONAL
RECREATIONAL
VACANT
" 8- 16W LINE
11111111 Tim, \1 i
11
LOCKWOOD FOLLY INLET
MAP I
HOLDEN BEACH N.C.
Prepares By: SATILLA PLANNING
200 Osbome Street
St. Marys, Georgia WORTH
0' 25V 600' 1000, 1600, 2000'
MappkV Date: JUNE, 7985

TABLE ONE
EXISTING LAND USE
HOLDEN BEACH, NORTH CAROLINA
1980
1984
Percent
Acreage
Acreage
Change
Single Family
Residential
116.5
155.3
+ 33.3%
Duplex
(1)
11.4
Multi -Family
14.1
3.6
+ 6.4%(2)
Mobile Home/RV
4.9
26.5
(3)
Commercial
6.6
9.9
+ 49.7%
Public/
Institutional
0.5
1.2
+130.0%
Recreational
21.7
0.4
(3)
Streets
201.8
200.0
- 0.1%
TOTAL
366.1
408.3
+ 11.5%
(1) Included with
multi -family.
(2) Net increase
in duplex and multi -family categories
combined.
(3) 1980 plan classified
Campgrounds/R.V.
areas as
recreation; these uses
are included in Mobile
Home/Recreational
Vehicle category
of the 1985
update; 1980-1981
comparisons not meaningful.
Source: 1980 Holden
Beach Land Use Plan
Update and
Satilla Planning,
Inc. from September, 1984 field
survey.
The existing land use table does not account for vacant land and water
areas. According to the 1980 plan, there were 1,400 acres of vacant land.
Since this time, 43 acres were converted to urban land uses and approximtely
150 acres of waterfront land was lost to erosion leaving an estimated 1,207
acres vacant at the present time. The majority of this 1,207 acres is
probably not developable as discussed in the vacant land ownership analysis.
The existing land use table indicates significant increases in all land
use development categories except multi -family and streets. Of the 452 acres
converted from vacant to developed land uses in the past five years, almost
39 acres or 93% resulted from single family development.
Another way to view and analyze Holden Beach's existing land use
pattern is to examine the net, developed area only, excluding water, marsh,
vacant lands and street rights -of -way. This analysis is presented by Table
Two:
5

TABLE TWO
DEVELOPED LAND
HOLDEN BEACH, N.C.
CHANGE
1980
1984
1980-1984
Acres
% Acres %
Acres
Single Family
116.5
70.9 155.3 -74.6
+38.8 +33.3%
Residential
Duplex
(1)
11.4 5.5
(1)
Multi -Family
14.1
8.6 3.6 1.7
+ 0.9 +6.4% (2)
Mobile Home/RV
4.9
3.0 26.5 12.7
(3)
Commercial
6.6
4.0 9.9 4.8
+ 3.3 +50%
Public/
.5
.3 1.2 .5
+ 0.7 +140%
Institutional
Recreational
21.7
13.2 0.4 .2
(3)
TOTAL
164.3
100.0 208.3 100.0
44.0 +26.8%
(1) Included with multi
-family.
(2) Net increase in
duplex
and multi -family categories combined.
(3) 1980 plan classified
Campgrounds/R.V.
areas
as recreation;
these uses are
included
in Mobile Home/Recreational Vehicle
category of the
1985 update;
1980-1984 comparisons not mean-
ingful.
Source: 1980 Holden
Beach
Land Use Plan Update
and.Satilla Planning,
Inc. from
September,
1984 field survey.
The developed land table demonstrates the single family character of
Holden Beach - accounting for nearly three -fourths of all developed land
uses with all residential uses comprising almost 95%. The small amount of
land devoted to commercial uses indicates that virtually all retail and
service sector needs are being met by facilities off the island. An
examination of the land use map shows that certain key features of Holden
Beach's land use pattern stand out as follows:
Residential Land Use. Most of the oceanfront lots are developed as single
family with occasional duplex and multi-famly uses. There are numerous
vacant residential building lots in the platted interior areas including
each of the finger canal subdivisions. There are very few mobile homes
outside of campground/mobile home park areas. Because there is no
central sewage disposal and due to current zoning regulations, there are
also very few multi -family developments on the island.
1.1

Commercial Land Use. As stated, most commercial services utilized by Holden
Beach visitors and residents are located off the island - primarily along
the causeway (St. Rt. 130). On the island, commercial activites are located
in three basic areas: 1) at the foot of the swing bridge - grocery store
and real estate offices; 2) on the ocean just east of Ferry Road - water
slide and pavilion; and 3) across from Holden Beach Harbor on the ocean -
the pier, campground and pavilion.
Public/Institutional. Most uses in this category are located on Rothschild
Street: the Town Hall, Police Station, Water Tower and the Holden Beach
Chapel. The only other public/institutional use on the island is the
Volunteer Fire. Department Building at the corner of Ocean Boulevard and
Starfish Drive.
Recreational. The only recreation areas identified by Map One are private
tennis courts associated with subdivision developments. Beach access points
that are officially designated by the Town are identified by Map
Three, Community Facilities (page 11). As a practical matter, the Town's
beaches serve as the principal recreational resource but these areas have
not been calculated.
Summary. Holden Beach can be characterized as a family vacation area
consisting primarily of single family homes and cottages. There are no
significant land use compatabilty problems or major problems resulting from
unplanned developments. Redevelopment is now occurring at the island foot of
the new bridge consisting primarily of commercial uses. This redevelopment
has caused some minor land use conflicts.
Vacant Land Ownership
Ownership patterns of available vacant, developable land can be
a principal factor affecting future growth and development. This section and
Map Two on the following page presents and analyzes these ownership patterns
as they relate to future development.
Ownership of each significant parcel was identified, compiled and
mapped from County tax records, according to the following two categories:
o Realty/Development Company or Partnership
o Individual, Family or Trust
For land use planning purposes, it is important to consider vacant land
ownership patterns in conjunction with the natural capacity of the land to
support development. Therefore, the Vacant Land Ownership Map should be
analyzed in conjunction with flood hazard, wetlands and other environmental
maps to determine the feasibility and desirability of developing these
vacant areas. For example, significant areas that are currently vacant may
not be developable at all under current State regulations governing wetlands
and marshes.
As indicated by Map Two, Vacant Land Ownership, most of Holden Beach's
vacant land is owned by realty companies, development concerns or
partnerships. Of the land in this category, the majority is owned by one
7

ape i Tv. eE V FLOPMENT COMPANY OR PARTNEH5HIF
31VIDUAL _ FAMILY OR TRUST vrw�na By; SATILLA PLANNING
20o Oaborna Street

realty company. There are also significant areas owned by individuals,
particularly at the island's eastern end (east of Jordan Boulevard).
Most of the island's vacant unplatted land is either economically
undevelopable or prohibited from development under today's state and federal
environmental regulations. This is particularly true of the western two-
thirds of the Island.
At the eastern end of the island, however, much of the vacant land is
already platted and developable. At the extreme east end (the eastern 4,500
feet) there are about 100 acres of vacant - developable land, most of which
is unplatted.
In addition to the large vacant areas identified by Map Two, there are
hundreds of platted, vacant bulding lots, most of which are buildable. The
ownership of these areas is divided between individuals and realty
companies.
Roadways & Transportation
Street networks in and around a community are important aspects of
future development. Road access can be a key determinant of the
attractiveness of land for various types of land development. There are also
critical reciprocal relationships between roads and land use. On one hand,
the availability of good road capacity and traffic volume makes the
adjoining land attractive for commercial uses that depend on high visibility
and accessibility for economic success. On the other hand, the overloading
of these roads with ill -designed land uses, such as strip commercial
development with no control of curb cuts, can lead to problems of traffic
safety, road capacity and poor visual appearance that can ultimately detract
from the viability of the land uses and the road itself.
As a long and narrow island with one access point, Holden Beach's
transportation system had few deveopment alternatives. Nevertheless, some of
the customary relationships between roads and land use are evident on the
causeway (secondary rd.130) which connects the island with the mainland
transportation network.
A customary land use plan would identify the community's road system in
components such as Principal Arterials, Minor Arterials, Major Collectors,
etc. With one access point by way of a causeway and bridge over the
Intracoastal Waterway (SR 130) and one major east -west road serving the
island (SR 1116) this type of classification and analysis is unnecessary. It
should be sufficient to say that Ocean Boulevard (SR 1116) serves as a
Collector Street feeding into Jordan Boulevard (SR 130 - bridge and causeway -
which serves as a Minor Arterial in turn connecting with U.S. Route 17 - a
Principal Arterial.
One major transportation issue in Holden Beach has.been the one lane
swing bridge over the Intracoastal Waterway. With a new two-lane high rise
bridge under construction, this problem will soon be eliminated. The new
bridge will, however, bring new land use management issues to the forefront:
increased commercial develoment activity along the causeway; new building at
the island foot of the high rise bridge; and redevelopment as old -obsolete
structures are removed from the island across the new, wider bridge.
0

Completion of the new bridge may well be the most important single factor
affecting future island development.
Parking Conditions
Parking issues in most beach communities inevitably relate to beach
access. Most residential and commerical areas have adequate parking to serve
their direct uses or customers. However, the demand and capacity of the
Town's beaches make the provision of adequate parking a difficult task. A
directly related issue is the conflict between beachfront owner/renters and
day visitors.
Brunswick County prepared a Beach Access Study for the town in
conjuction with the Holden Beach Access Advisory Committee during 1980. This
study inventoried 68 public and private access points and presented a
development plan which categorized the 68 points as vehicular, neighborhood,
major, or undesirable. The Town recently raised beach access and related
parking as a major issue that must be addressed. Alternatives such as: a
few, relatively large beach access points vs. a greater number of small
scale beach access/parking areas are addressed by the policy section of this
plan (page 36). Funding and possible joint projects with Brunswick County
should also be considered. Additionally, the use of State R.O.W. under the
new bridge may provide a practical, inexpensive means of increasing parking
near the beach.
Community Facilities
Community facilities are an important land use planning factor not only
because they can constitute significant land uses in themselves, but also
because the type, location and capacity of these facilities bear an imporant
reciprocal relationship to the areas they serve and therefore to most other
land use categories.
The location of Holden Beach's existing and proposed Community
Facilities are identified by Map Three. As a small, family oriented
community with only 300 year round residents, the Town does not have
extensive public facilities. The existing and proposed facilities
identified'are:
o The water distribution system
— water tank
— source from Long Beach
— proposed new source from mainland (along S.R. 130)
o The Town Hall and Police Department
o Boat Ramp at the end of Ferry Road
o Holden Beach Pier
o The Holden Beach Chapel
o Public beach access points
10

The preparation of this map was financed in part thro4
provided by the North Carolina Coastal Management Progra
funds provided by the Coastal Zone Management Act a
amended, which is administered by the Office of Ocean a
Resource Management, N.O.A.A.
BNALLOTTE INLET
COMMUNITY FACILITIES
- - WATER DISTRIBUTION SYSTEM
1- WATER SUPPLY SOURCE
FROM LONG BEACH
2- PROPOSED WATER SUPPLY SOURCE
FROM BRUNSWICK COUNTY SYSTEM
3- BOAT RAMP
A T L A N T I C O C E A N
4- TRI BEACH VOL FIRE DEPT.
5- TOWN HALL -POLICE DEPT.
6- WATER TOWER
7- CHURCH
8- HOLDEN BEACH PIER
Q PUBLIC BEACH ACCESS
E
1
'OD FOLLY INLET
MAP 3
HOLDEN BEACH, N.C.
Prepared By: SATILLA PLANNING
200 Osbome Street
St. Marys, Georgia NORTH
0' 250' 600' low 1500, 2000'
Mapping Date: JUNE, 1985

o Tri-Beach volunteer fire department (mainland and
island buildings)
Water System. The Town's water system was connected to the Brunswick County
system in 1979. It is currently supplied by a 12 inch line from Long Beach
that crosses under Lockwood Folley Inlet. The actual supply originates at
the county's Highway 211 water plant. The town maintains pressure in its
system through a 300,000 gallon elevated storage tank. The Town plans an
additional connection to the County's system along SR 130. The 12 inch
supply main from Long Beach has come unanchored in the past and has floated
to the surface in Lockwood Folley Inlet. Once the additional connection to
the County system is complete, the Town's water supply needs should be
adequately taken care of for at least the next 20 years.
Sewage Treatment. Sewage disposal is now handled through individual
treatment and disposal systems. The original 1975 land use plan and the
subsequent 1980 update each state construction of a sewage collection and
treatment system as an objective. Since the preparation of these plans,
the construction of sewage treatment facilities in accordance with the
Southwest 201 Facilities Plan has been abandoned. The Town continues,
however, to support the construction of waste water collection and treatment
facilities.
Beach Access. The Community Facilities Map identifies eleven public beach
access points. These are located primarily at the end of street rights -of -
way. The future development of beach access facilities in Holden Beach is
addressed by the policy section of this plan (page 36).
Solid Waste. Holden Beach uses solid waste disposal facilities provided by
Brunswick County on the mainland. This practice is expected to continue. An
area company is used by contract for collection and hauling services.
Land Use Regulations
Zoning. The Holden Beach zoning ordinance regulates the use of land with
the Town's corporate limits. The Town does not exercise one mile extra-
territorial zoning jurisdiction. The land use districts provided for in the
ordinance are as follows:
o R-1 One and Two Family Residential District
o R-2 Multi -family Residential District
o C-1 Commercial District
Virtually all of the island is zoned R-1. Exceptions are:
o C-1 Commercial zoning in the area where Jordan Boulevard
enters the island (realty offices, Town Hall, grocery store)
o C-1 Commercial zoning at the ocean and intracoastal waterway
east of Ferry Road (seafood dock and oceanfront pavilion)
o C-1 Commercial zoning across from Holden Beach Harbor on the
ocean side of Ocean Boulevard (pier, mini golf, pavilion,
12

49 space campground)
o C-1 Commercial zoning on the oceanside of Ocean Boulevard
just west of Heritage Harbor (26 trailers)
o R-2 Multi -family residential zoning on the ocean side of
Ocean Boulevard across from Jordan Boulevard (one 4-unit
and one 8-unit)
o R-2 Multi -family residential on the ocean side of Ocean
Boulevard, just east of the pier (3 structures: 8 units,
4 units and 4 units)
o R-2 Multi -family residential on the north (waterway)
side of Ocean Boulevard, 100 feet east of Seaside Drive
(25 units)
A comparison of the Town's zoning map with the existing land use map
shows that the zoning districts correlate very well with existing land use.
The ordinance does not contain planned development section or similar
means of dealing with the re -platting of land for master planned
developments.
While simple, the town's zoning ordinance does a good job of specifying
land use and development standards. Strict enforcement of the ordinance is
evident as there are generally no non -conforming situations that were not in
existence when the ordinance was first adopted in 1978. The Town's efforts
to keep the ordinance current and relevant to its needs and policy
objectives is obvious also by the amendments which have been made since
1978.
Subdivision Regulations. Adopted on September 1, 1975, the Town's
subdivision regulations establish design and construction standards that
apply when land is subdivided or re -subdivided for immediate or future sale.
Specific objectives and areas regulated include:
o No Town services provided until final plat is approved.
o No dedication of streets or other improvements accepted
until final plat approval.
o New street alignments must comply with any adopted
thoroughfare plan.
o Subdivisions must comply with the Town's zoning ordinance
or any other officially adopted plan.
o Subdivision platting requirements established including
design standards for lots, streets, etc.
o Construction standards for street grading and paving,
drainage, water, sewer (as available), and underground
utilities established.
13

Flood Damage Prevention Ordinance. Adopted to comply with the National
Flood Insurance Program, this ordinance requires the following:
o All new residential construction or improvements greater than 50% of
structure's market value must be elevated to or above 100-year
base flood elevations.
o Commercial buildings must be elevated above base flood
elevations or flood proofed.
o Anchorings and piling designs must be certified by a
registered engineer or architect, or must be in full
compliance with the N.C. State Building Code.
o No alternations of frontal dunes with fill for structural
support is allowed in 'Y' or velocity zones except as may
specifically be allowed under C.A.M.A. regulations.
14

GROWTH TRENDS AND PROJECTIONS
Table Three presents population projections from the 1980 Land
Use Plan Update.
TABLE THREE
HOLDEN BEACH POPULATION PROJECTIONS
Year Average Seasonal Permanent
1980 6,800 250
1985 8,600 300
1990 10,400 350
2000 12,647 445
Source: 1980 Holden Beach Land Use Plan Update.
Growth trends over the past five years can be analyzed by
comparing residential unit counts from 1980 and 1985.
TABLE FOUR
RESIDENTIAL UNITS
1980 - 1985
1980 1985 Net Change % Change
Single
Family 728 1,004 276 + 37.9%
Duplex and
Multi -Family 176 213 37 + 21.0%
Mobile Homes,
RV's, & Travel
Trailers 61 177 (1) 116 +190.0% (1)
TOTAL 965 1,394 429 + 44.5%
(1) Includes all spaces in parks and campgrounds; the 1980 plan apparently
did not include these spaces in its totals.
Source: 1980 Holden Beach Land Use Plan and Satilla Planning, Inc.
from September, 1984 field surveys.
Estimates as to seasonal population can be made once an average number
of persons per dwelling unit is established. Based on discussions with real
estate rental representatives and planning board members, the Town has
estimated that the average dwelling unit is occupied by 6.5 persons during
vacation periods. This means that the Town's average seasonal population is
9060 persons based on the Fall, 1984 housing count. The following table
presents projection of average seasonal population (using 6.5 persons
15

/dwelling unit) and dwelling units for the years 1990 and 2000 based on
growth trends experienced over the past ten years.
TABLE FIVE
PROJECTED SEASONAL POPULATION AND DWELLING UNITS
Dwelling Units Average Seasonal Population
1985 1,394 9,061
1990 1,730 11,245
2000 2,350 15,275
Source: Satilla Planning, Inc., 1985.
16

CONSTRAINTS TO DEVELOPMENT
Land Suitability
The 1980 Land Use Plan presented a Land Suitability Analysis based on:
o Soil Suitability Analysis
o Septic Tank Suitability Analysis
o Fragile Area Identification
This section will serve to update the 1980 Plan. Information provided
by Part II, Pages 41-47 of the 1980 plan remains valid. Readers requiring
further detail, including maps, are referred to the previous plan. An
overview of the 1980 Plan's methodology and findings is presented below.
Soil and Septic Tank Suitability Analysis. The 1980 plan analyzed soil
properties as identified by the Outer Banks Soil Conservation Service Soil
Survey. Once mapped, each soil group or "series" was rated for bearing
capacity and septic tank filter capacity. The rating system consisted of
four cateogories:
o Slight: Few limitations, best available areas.
o Moderate: Generally favorable with only moderate
limitations that can be corrected by appropriate
design and construction techniques.
o Severe: Soil properties unfavorable with limitations
very difficult or expensive to correct.
o Very Severe: Generally the development of these areas
is either unpractical due to cost or restricted by
State and Federal regulations (e.g. wetlands).
The following identifies the various soils comprising the above
categories in Holden Beach:
o Slight.
Newhan fine sand. The soils are sandy and range from well -drained
to excessively drained, often experiencing drought conditions.
Water percolation is very rapid through the stratified sandy
deposits that range from fine to coarse sands with varying
amounts of shells. Typically found in long ridges on dunes
parallel to the ocean, these soil areas are subject to salt
spray and blowing sand.
A substantial amount of the developed and/or platted areas
in Holden Beach are located on this soil type. These areas are
located along either side of Ocean Boulevard from west of
Sailfish Drive to Conch Street near the Island's east end.
Near the Jordan Boulevard Bridge (approximately 3200 feet
either side of the bridge), this soil group widens out
17

and encompasses nearly the entire width of the Island.
o Moderate
Newhan-Corolla complex. This complex consists of two dominant
soil types, Newhan and Corolla, which occur in an interrelated
pattern on the landscape. Often this complex type occupies
the traditional zone between the higher lying dunes to the
south and the broad flats to the north, consisting of low
dunes and intervening basins that separate the dunes.
Newhan soils are well to excessively drained, dry and
have a low natural fertility. There is a thin surface
layer low in organic matter and plant fiber. Sand is
coarse and contains varying amounts of shell fragments.
The water table is more than seven feet below the surface.
Corolla soils are moderately well drained and sandy through-
out, containing a high percent of coarse sand with varying
amounts of shell fragments. Typically, the water table is
within 15 to 20 inches of the surface.
This soil group is found in three well defined areas of the
Island: 1) at the west end encompassing development either
side of Ocean Boulevard including the platted areas between
Seaside Drive and Shell Drive; 2) an area approximately 1,000
feet either side of Sand Spur Lane; and 3) almost the entire
Island east of Conch Street.
o Severe.
Madeland. This soil is primarily sandy, but some areas
contain up to 10 percent shells. Permeability is rapid
and most areas are quite dry. Flooding by sea water is rare.
The water table fluctuates with changes in tide level;
however, most areas have a depth to the water table of about
two to four feet during high tide. Found on the sound side
of the island adjacent to the water, the soil has been
dredged during the construction of canals and has been de-
posited between canals for use as building sites.
Essentially, all of the material has been deposited over
marsh and its average thickness ranges from three to six
feet.
Corolla fine sand. These soils are moderately well -drained and
sandy throughout, with a thin surface layer that is very
low in organic matter. The coarseness of the sand and the
amount of shell fragments varies throughout. Percolation is
rapid. Depth to the high water table fluctuates with seasonal
changes between one and one-half to three feet. These soils are
located on the flats that lie behind the foredunes. Only
two small packets of this soil type exist in Holden Beach:
one at the west end south of Ocean Boulevard, and a second
around Delanne Street.
IN

Dredge Spoil. The soils are composed primarily of sand and
shells. They are generally dry with rapid permeability.
Located along the Intracoastal Waterway, the spoils are
a result of dredging maintenance of the waterway. Most of the
areas are less than ten feet in height, and have been
deposited on marsh.
o Very Severe.
Carteret. These soils are sandy and permeability is rapid.
Saltwater flooding may occur daily. The depth to the
seasonal high water table ranges from zero to three feet.
Found on the sound side of the Island, these soils
contain varying amounts of shell fragments.
Beach-Foredune Association. This soil area includes both the
beach and the "frontal dune.". The beaches are flooded daily
by tidal action and contain sand ranging from fine to very
coarse with varying amounts of shell fragments. The foredune
portion consists of a dune.just landward and parallel to the
beach. It is subject to severe erosion by wind and wave
action in the absence of vegetation. Permeability is rapid for
both areas and the high water table ranges from zero to three
feet on the beach and up to six feet at the foredunes.
While soil suitability analysis can be an important land use planning
tool, there are related factors which should be considered. First, coastal
area soils generally rank very poorly in a suitability analysis when
compared to.inland soil groups. For example, this is why it is so difficult
to locate solid waste landfills in coastal counties under today's
environmental standards. Therefore, a soil group ranked as "severe" in
comparison to the region's other soils may well be the best that is
available within a limited geographic area such as a barrier island.
The second consideration is land value. Many soil related development
constraints can be overcome through good design and construction techniques.
If the location and resulting value of the real estate justifies the added
site preparation and construction expense, soil limitations can generally be
overcome. In such a case, it is usually more important to ensure appropriate
design and construction methods than to consider development infeasible
based only on soil considerations. In other words, land values in Holden
Beach can be expected to justify engineering solutions to poor soil
conditions that would not be economically feasible in other areas.
Fragile Areas
These areas in Holden Beach correspond to the specific resource systems
identified by the C.A.M.A. as Areas of Environmental Concern (AECs). The
1980 Land Use Plan Update identified AEC's within Holden Beach. The Town's
Storm Hazard Mitigation Plan dated June 18, 1984, identifies AECs relative
to Hazard Area Management.
19

AEC's applicable to the Holden Beach Land Use Plan are:
The Estaurine System
o Coastal Wetlands
o Estuarine Waters
o Public Trust Areas
o Estuarine Shorelines
Ocean Hazard Areas
o Ocean Erodible Area
o High Hazard Flood Area
o Inlet Hazard Area
The approximate location of these AEC's are identified by maps Four and
Five. Map Four delineates Coastal Wetlands, Ocean Erodible Areas, Inlet
Hazard Areas, and the Estuarine Shoreline (estuarine waters are not mapped).
It should be noted, however, that the Finger Canal areas on Holden Beach are
Public Trust Areas and therefore subject to AEC regulations. Map Five
depicts the High Hazard Flood Area AEC (Federal flood insurance 'Y' zones)
as well as the balance of the 100-year flood plain (not an AEC, but
identified by the Federal Flood Insurance Program as "A" zones).
Descriptions of the AEC's and management policies are provided in the
following chapter (page 25).
In addition to the AEC's identified above the 1980 Land Use Plan Update
discussed the following categories:
Public Water Supplies
o Small Surface Water Supply Water Sheds
o Public Water Supply Well Fields
Fragile Coastal Natural Resource Areas
o Coastal Areas that Sustain Remnant Species
o Coastal Complex Natural Areas
o Unique Coastal Geologic Formations
o Significant Coastal Archeological Resources
o Significant Coastal Historic Architectural Resources
The 1980 Plan determined that these AEC categories were not applicable
to the Holden Beach Plan because none were identified within the Town.
Nothing has changed since 1980 to affect this finding. Therefore, these
AEC's are not addressed by this plan. The Town will consider nominating
specific resource areas for management and protection under the terms
the Resource Protection Policies (l.c. page 30).
20

RAGILE AREAS
OCEAN ERODIBLE AREAS OF ENVIRC
=ulna ESTUARINE SHORELINE AREAS OF EN
INLET HAZARD AREAS OF ENVIRON
COASTAL WETLANDS OF ENVIRON
)TE: THIS MAP IS FOR GENERAL PLANNING PURPOSES d
MENTAL GUNULF
30NMENTAL Ca
:NTAL CONCER?
VITAL CONCERN
:_
Cno
:1 7!
.1 1,W.

•IS] IN:/_r'A_1:i li1,lii3:
Ole] of:EWA*I0XIMa:
R.
M.)
A 1976
F. 1.
ZONES)
10 YEAR
FLOOD
PLAIN ("A" Za
•]oo]a►w:17'
.\ _

Community Facilities Capacity
Specific community facilities
and their capacities discussed in
Land Use Plan Update (page 10).
within Holden Beach are identified
the Existing Conditions Section of this
23

POLICY STATEMENTS AND IMPLEMENTATION STRATEGIES
The Holden Beach Board of Commissioners has adopted the
following policies for dealing with land use planning issues which
will affect the community within the next ten years. These
policies establish a systematic basis by which proposed
developments will be judged. If a proposed project or development
would violate the intent of these policies, action to prevent its
construction will be taken by local, state and federal government
agencies.
These policies will be used by local officials in their
decision making process to increase the consistency and quality of
their decisions.
Outline
1. RESOURCE PROTECTION
a. Estuarine system
b. Ocean Hazard Areas
c. Natural and Cultural Resources
d. Storm Water Runoff
e. Marina Development
f. Floating Home Development
g. Potable Water Supply
h. Development of Sound & Estuarine Islands
2. PHYSICAL CONSTRAINTS TO DEVELOPMENT
a. Septic Tank Suitability
b. Package Sewage Treatment Plants
c. Storm Drainage
d. Bearing Capacity
3. RESOURCE PRODUCTION AND MANAGEMENT
a. Commercial and Recreational Fisheries
b. Off -Road Vehicles
4. PROVISION OF SERVICES TO DEVELOPMENT
a. Public Water Supply
b. Public Sewage System
c. Solid Waste Disposal
d. Rescue Squad and Fire Protection
e. Public School System
f. Transportation
g. Street Lights
h. Beach and Water Access
i. Beach Access Structures
j. Recreation
5. ECONOMIC AND COMMUNITY DEVELOPMENT
a. Industry
b. Airports
24

6. GROWTH PATTERNS
a. Contiguous Growth
b. Provision.of Services
c. Population Growth
d. Segregation of Existing Land Uses
e. Housing
f. Aesthetics
g. Planned Unit Developments
7. STORM HAZARD MITIGATION & POST DISASTER PLANNING
a. Storm Hazard Mitigation
b. Post Disaster Reconstruction
8. CONTINUING PUBLIC PARTICIPATION
1. RESOURCE PROTECTION
Holden Beach will support and enforce through its CAMA
permitting capacity the State Policies and permitted uses in the
Areas of Environmental Concern (AECs). The State Policy
Statements for AECs offer protection for Holden Beach's fragile
and significant environmental resources through CAMA permitting
procedures. In Accordance with those policies set forth in
subchapter 7H of the State CAMA regulations, Holden Beach adopts
the following policies concerning AECs in its jurisdiction.
a. The Estuarine System. In recognition of the enormous
economic, social, and biological values the estuarine system
has for North Carolina, Holden Beach will promote
conservation and management of the estuarine system as a
whole, which includes the individual AECs: coastal wetlands,
estuarine waters, public trust areas, and estuarine
shorelines. The significance of the system and its
components is described in this plan under Fragile Areas.
The management objective for the system shall be to give
highest priority to the protection and coordinated management
of all the elements as an interrelated group of AECs, so as
to safeguard and perpetuate their biological, social,
economic, and aesthetic values, and to minimize the
likelihood of significant loss of private property and
public resources.
In general, permitted land uses in the coastal wetlands,
estuarine waters, and public trust areas shall be those which
are water dependent. Examples of such uses may include:
utility easements, docks, boat ramps, dredging, bridges and
bridge approaches, revetments, bulkheads, culverts, groins,
navigational aids, mooring pilings, navigational channels,
simple access channels, and drainage ditches.
25

Land uses that are not water dependent shall not be permitted
in coastal wetlands and public trust areas. Examples of uses
that are not water dependent may include: restaurants,
residences, apartments, motels, hotels, trailer parks,
private roads, factories, and parking lots.
Specific policies regarding the individual AECs of the
estuarine system are stated below. In every instance the
particular location, use, and design characteristics shall be
in accord with the general use standards for coastal
wetlands, estuarine waters, and public trust areas as stated
in subchapter 7H of the State CAMA regulations.
(1) Coastal Wetlands. Activities in the coastal wetland
areas shall be restricted to those which do not
significantly affect the unique and delicate balance of
this resource. Suitable land uses include those giving
highest priority to the protection and management of
coastal wetlands, so as to safeguard and perpetuate
their biological, social, economic, and aesthetic
values to establish a coordinated management system
capable of conserving and utilizing coastal wetlands as
a natural resource essential to the functioning of the
entire estuarine system. Highest priority of use shall
be allocated to the conservation of existing coastal
wetlands. Second priority shall be given to those uses
that require water access and cannot function
elsewhere.
Acceptable land uses may include utility easements,
fishing piers, and docks. Unacceptable uses may
include, but would not be limited to, restaurants,
businesses, residences, apartments, motels, hotels,
parking lots, private roads, and highways.
(2) Estuarine Waters. In recognition of the importance of
estuarine waters for the fisheries and related
industries as well as aesthetics, recreation, and
education, Holden Beach shall promote the conservation
and quality of this resource. Activities in the
estuarine water areas shall be restricted to those
which do not permanently or significantly affect the
function, cleanliness, salinity, and circulation of
estuarine waters. Suitable land/water uses include
those giving highest.priority to the conservation and
management of these areas so as to safeguard and
perpetuate their biological, social, economic, and
aesthetic values and to establish a coordinated
management system capable of conserving and utilizing
estuarine waters in order to maximize their benefits to
man and the estuarine system. Highest priority of use
shall be allocated to the conservation of estuarine
waters and its vital components. Second priority shall
be given to uses that require water access and cannot
function elsewhere.
26

Appropriate uses may include simple access channels,
structures which prevent erosion, navigation channels,
boat docks, marinas, piers, and mooring pilings.
Holden Beach, in recognition of the shellfish areas
pollution problem which closes these areas to
harvesting, acknowledges that the construction of
waste water collection and treatment facilities may
become necessary.
Holden Beach will also support projects in estuarine
water areas which aim to increase the productivity of
these waters. Such projects include oyster reseeding
programs and inlet channeling and dredging operations
for the purpose of increasing the flushing action of
tidal movement.
(3) Public Trust•Areas. In recognition of certain land and
water areas in which the public has certain established
rights and which also support valuable commercial and
sports fisheries, have aesthetic value, and are
resources for economic development, Holden Beach shall
protect these rights and promote the conservation and
management of public trust areas. Suitable land/water
uses include those which protect public rights for
navigation and recreation and those which preserve and
manage the public trust areas in order to safeguard and
perpetuate their biological, economic, social, and
aesthetic value, e.g, dredging, bulkheading, jettying.
In the absence of overriding public benefit, any use
which significantly interferes with the public right of
navigation or other public trust rights which apply in
the area shall not be allowed. Projects which would
directly or indirectly block or impair existing
navigation channels, increase shoreline erosion,
deposit spoils below mean high tide, cause adverse
water circulation patterns, violate water quality
standards, or cause degredation of shellfish waters
shall, in general, not be allowed.
Uses that may be allowed in public trust areas shall
not be detrimental to the public trust rights and the
biological and physical functions of the estuary.
Examples of such uses include the development of
navigational channels or drainage ditches, the use of
bulkheads to prevent erosion, the building of piers,
docks, or marinas.
(4) Estuarine Shoreline. CAMA defines the estuarine
shoreline at Holden Beach as the areas 75 feet landward
of the estuarine waters. Holden Beach recognizes: (1)
the close association between estuarine shorelines and
adjacent estuarine waters, (2) the influence shoreline
27

development has on the quality of estuarine life, and
(3) the damaging processes of shorefront erosion and
flooding to which the estuarine shoreline is subject.
Shoreline development has profound effect on adjacent
estuarine waters. Effluent from poorly placed or
functioning septic systems can pollute shellfish areas.
Holden Beach discourages the use of estuarine shore-
line areas for residential purposes where there is a
substantial chance of pollution occurring.
Holden Beach supports the Army Corps of Engineers in
their efforts to preserve the Estuarine Shoreline AEC,
their dredging operations, and their efforts to find
suitable locations for spoil material.
Suitable land uses are those compatible with both the
dynamic nature of estuarine shorelines and the values
of the estuarine system.
Residential, recreational, and commercial land uses are
all appropriate types of use along the estuarine
shoreline provided that:
(a) a substantial chance of pollution occurring from
the development does not exist,
(b) natural barriers to erosion are preserved and not
substantially weakened or eliminated,
(c) the construction of impervious surfaces and areas
not allowing natural drainage is limited to only
that necessary to adequately service the
development,
(d) standards of the North Carolina Sedimentation
Pollution Control Act 1973, as amended, are met,
(e) development does not have a significant adverse
impact on estuarine resources,
(f) development does not significantly interfere with
existing public rights of access to, or use of,
navigable waters public resources.
b. Ocean Hazard Areas. In recognition of the critical nature of
Ocean Hazard Areas due to their special vulnerability to
erosion and dynamic processes and their possible danger to
life and property because of natural forces, Holden Beach
supports the State Policies for ocean hazard areas in
Subchapter 7H of the State CAMA Regulations. The ocean
hazard area designation for Holden Beach includes the AECs
of ocean erodible areas, high hazard flood areas, and inlet
hazard areas.
28

Ocean erodible areas are where a substantial possibility
of excessive erosion and significant shoreline fluctuations
exist. The ocean erodible AEC is based on a
setback from the first line of stable natural vege-
tation plus an additional area where erosion can be
expected from storm surges and wave action.
An inlet hazard area is a natural hazard area that is
especially vulnerable to erosion, flooding and other
adverse effects of sand, wind, and water because of its
proximity to dynamic ocean inlets. Areas adjacent to both
the Shallotte Inlet and the Lockwood Folley Inlet are de-
signated hazard areas. Erosion at Lockwood Folley Inlet has
damaged State Route 116 (Ocean Boulevard) and continues
to threaten homes. Erosion during recent winter storms
has been particularly pronounced and is expected to
continue. Lands adjacent to Shallotte Inlet are rela-
tively undeveloped and therefore damage to structures
is not an immediate problem. However, there have been
recent proposals to develop this area which is also
subject to frequent flooding.
The high hazard flood AEC corresponds to the National
Flood Insurance Program V-zones, which refer to flood
prone areas that are also susceptible to high velocity
wave surges.
Suitable land uses in ocean hazard areas generally are those
which eliminate unreasonable danger at life and property and
which achieve a balance between the financial, safety, and
social factors involved in hazard area development. Ocean
shoreline erosion control activities and dune
establishment/stablization are acceptable types of land uses.
Residential, commercial, and recreational land uses and
parking lots for beach access are also acceptable types of
use in ocean hazard areas provided that:
(1) Setback measurements begin at the first line of stable
vegetation and continue inland to a depth 60 times the
average annual rate of erosion. Provided there has
been no long term erosion or the rate of erosion is
less than two feet per year, this distance is set at
120 feet. In areas where the erosion rate is more
than 3.5 feet per year, the setback line is based on a
distance of 30 times the long-term annual erosion rate
plus 105 feet. Erosion near each inlet has averaged 4
feet per year and setback is therefore 225 feet deep in
these areas.
(2) Development does not involve the removal or relocation
of frontal dune sand or vegetation thereon.
(3) Mobile homes are not located within high hazard
flood areas.
29

(4) Development is consistent with minimum lot size and set
back requirements established by local regulations.
(5) Development implements means and methods to mitigate or
minimize adverse impacts of the project.
(6) Development of growth -inducing public facilities such
as sewers, waterlines, roads, bridges, and erosion
control measures occurs only in cases where:
(a) national or state interest and public benefits are
clearly overriding factors,
(b) facilities would not exacerbate existing hazards
or damage natural buffers,
(c) facilities would be reasonably safe from flood and
erosion related damage,
(d) facilities do not promote growth and development
in ocean hazard areas.
(7) Prior to the issuance of any permit for development in
the ocean hazard AECs, there shall be a written
acknowledgment from the -applicant that he is aware of
the risks associated with development in this area.
(8) Holden Beach, recognizing that erosion along the beach
has caused many problems, supports beach renourishment
projects that would allow approved -suitable soils to be
taken from the Intracoastal Waterway and inlet dredging
operations and placed on designated island beaches.
(9) Holden Beach, recognizing that inlet migration is a
natural ongoing process, encourages permanent
stabilization of Inlet Hazard Areas by either jettying
or bulkheading.
C. Natural and Cultural Resource Areas. Uncontrolled or
incompatible development may result in major or irreversible
damage to fragile coastal resource areas which contain
environmental, natural, or cultural resources of more than
local significance. In recognition of this Holden Beach will
seek to protect such natural systems or cultural resources;
scientific, educational, or associative values; and aesthetic:
qualities.
Individual AEC's included in this general category are:
coastal complex natural areas, coastal areas that sustain
remnant species, unique coastal geologic formations,
significant coastal architectural resources, and significant
coastal historic architectural resources.
In general; these resources are noted to be valuable
educational, scientific, and aesthetic resources that cannot
30

be duplicated. They may be important components in a natural
system or in the broad patterns of history. Their importance
serves to distinguish the designated areas as significant in
relation to the coastal landscape and historical
architectural and archaeological remains in the coastal zone.
In accordance with policies stated in subchapter 7H of the
State CAMA regulations, Holden Beach will support the
following actions regarding these irreplaceable resources:
(1) Protection of unique habitat conditions that are
necessary to the continued survival of threatened and
endangered native plants and animals and to minimize
land use impacts that might jeopardize these
conditions.
(2) Protection of the features of a designated coastal
complex natural area in order to safeguard its
biological relationships, educational and scientific
values, and aesthetic qualities. Specific objectives
for each of these functions shall be related to the
following policy statements either singly or in
combination:
Development may be permitted in designated fragile
coastal natural or cultural resource areas provided
that:
(1) The proposed design and location will cause no major or
irreversible damage to the stated values of a
particular resource. One or more of the following
values must be considered depending upon the stated
significance of the resource:
(a) Development shall preserve the values of the
individual resource as it functions as a critical
component of a natural system.
(b) Development shall not adversely affect the values
of the resource as a unique scientific,
associative, or educational resource.
(c) Development shall be consistent with the aesthetic
values of a resource as identified by the local
government and citizenry.
(2) No reasonable alternative sites are available outside
the designated AEC.
(3) Reasonable mitigation measures have been considered and
incorporated into the project plan. These measures
shall include consultation with recognized authorities
and with the Coastal Resources Commission.
(4) The project will be of equal or greater public benefit
31

than those benefits lost or damaged through
development.
d. Storm Water Runoff Uncontrolled development adjacent to
coastal waters can pose a serious threat to the estuarine
system through the rapid discharge pollutants washed off
of impervious surfaces via storm water. Impervious surfaces
include streets, parking lots, and rooftops.
Holden Beach's zoning ordinance limits lot coverage by
buildings to 30% in Residential Zones. Further, the Town
will encourage the use of "best management practices" to
minimize the rapid release of pollutants to coastal waters
through storm water runoff. Examles of these practices
include using pervious or semi -pervious materials, such
as turfstone or gravel for driveways and walks, retaining
natural vegetation along marsh and waterfront areas to
retain its natural filtering properties, and allowing
storm water to percolate into the ground, rather than
discharging it directly to coastal waters.
e. Marina Development There are no marinas located in Holden
Beach; however, potential sites exist on both sides of the
Intracoastal Waterway at Holden Beach. The Town will review
any proposed marina development for consistency with Land Use
Plan policies and.determine the desirability of any marina
proposal after such review. All proposed marinas must be
consistent with zoning regulations as well as C.A.M.A. and
other State and Federal regulations.
f. Floating Home Development The Town of Holden Beach does not
support floating home development of any type.
g. Potable Water Supply. Holden Beach's water distribution
system is supplied by the Brunswick County water systems.
Brunswick County's water source is from deep wells which
,draw from the Castle Hayne Aquifer. This aquifer is re-
charged on the mainland and its protection cannot be aided
by Town policy. Further, Holden Beach requires all new
development to tie into its system for supply and prohibits
individual wells for domestic supply or use.
h. Development of Sound and Estuarine Islands It is the policy
of Holden Beach to allow residential development of these
islands at densities consistent with the Town's zoning
ordinance provided that such development is consistent with
policies of the Land Use Plan. Additionally, State and
Federal agency regulations may govern development in these
areas..
2. PHYSICAL CONSTRAINTS TO DEVELOPMENT
Holden Beach adopts the following policies regarding physical
32

constraints to development.
a. Septic Tank Suitability
In conformity with State Health regulations, growth and
development will be discouraged in areas where septic tanks
will not function properly and sewer services are not
available.
Some areas of Holden Beach contain soils which do not permit
adequate percolation necessary for septic system functioning.
Also, some areas have high water table which similarily
inhibit septic system functioning. These areas, (as they are
delineated on the soil suitability maps contained in the 1980
Plan Update, page 44) will not be allowed to be developed
unless: l) the site is adapted by filling or drainage im-
provements to lower the water table sufficiently; or, 2)
sewer service is available.
b. Package Sewage Treatment Plants
Holden Beach may permit the use of private sewage collection
and treatment systems if associated development is consistent
with the Town's development plans and policies; the system
meets state and federal permitting requirements; the project
will have no adverse impacts beyond its boundaries; and
perpetual operation and maintenance of the system can be
guaranteed without obligation to the Town in any way.
Further, the Town prefers ground infiltration and dispersal
as the method of handling effluent from such systems.
C. Storm Drainage
Because Holden Beach lies in the low coastal plain of the
East Coast, flooding can occasionally result. Growth and
development will not be allowed where poor drainage exists
unless appropriate corrective improvements are to be com-
pleted as part of the -project. If residential or other
low density "urban" uses are to be developed in an area of
seasonal highwater, special requirements such as subsurface
drainage will be necessary.
d. Bearing Capacity
Growth and development will be discouraged in areas where
soils will not adequately support buildings.
Where suitable alternative locations exist for a particular
development project, Holden Beach will discourage its
location in an area where soils will not adequately support
the buildings. If no alternative sites exist, the project
may be constructed if corrective measures to stabilize the
building foundation are incorporated into the project design.
33

3. RESOURCE PRODUCTION AND MANAGEMENT
Holden Beach's natural resources play a vital role in its economy.
It's waters and beaches are utilized for recreational uses as well
as for fishing. Protection of these resources is a prime concern
of Holden Beach. To deal with issues that involve resource
production and management, Holden Beach adopts the following
policies:
a. Commercial and Recreational Fisheries
Holden Beach will encourage the preservation and expansion of
its fisheries industry, both sport and commercial.
Protection of our Coastal and Estuarine Waters is a prime
prerequisite of this policy objective. Habitats for
shellfish and finfish in all stages of their life cycle must
be preserved in order to maintain fishing as a viable
economic and recreational activity.
Therefore, any development which will profoundly and
adversely affect Coastal and Estuarine Waters will be
discouraged. Only those developments which are water
dependent, such as docking facilities, seafood processing
plants, and marinas shall be allowed to be placed near and to
affect coastal and estuarine water habitats. In the design,
construction and operation of water dependent developments,
every effort must be made to mitigate negative effects on
water quality and fish habitat. These efforts will be at the
owners' or operators' own expense.
In order to expand Holden Beach's sport and commercial
fisheries industry, Holden Beach will support private and
public projects which will positively affect those
industries. Holden Beach supports channel and inlet dredging
and stabilization projects which will increase the water
access for fishing boats. It is recognized that in dredging
and stabilization operations, some fish habitat damage may
.occur. Only those projects which have a reasonable
likelihood of providing greater benefits than damage to
fisheries industry will be supported. All dredging and
stabilization operations must be performed so as to minimize
any unavoidable damage to fish habitat.
Holden Beach supports projects which increase productivity of
Coastal and -Estuarine Waters. Projects such as oyster
reseeding programs and properly constructed artificial reef
construction have proved successful in the past, and
therefore, will be supported in the future. Holden Beach
supports the Brunswick County Shellfish Action Plan.
Holden Beach recognizes the importance of boat building, ship
maintenance and repair, and docking and harbor facilities as
supportive and necessary for the fisheries industry. These
industries will be supported and allowed to locate on and
34

near coastal and estuarine waters if they do not prove to
injure fish habitat more than they support and provide
services for the fisheries industry. All developments which
require State or Federal permits, licenses or funds must meet
this policy criteria.
b. Off - Road Vehicles
Holden Beach has a substantial amount of beach area under its
jurisdiction and beach areas are the principal concern with
respect to off -road vehicle policies. Accordingly, all
vehicles are prohibited from beach areas year round except
emergency vehicles.
4. PROVISION OF SERVICES TO DEVELOPMENT
a. Public Water Supply
Holden Beach presently supplies water to all its residential
and commercial users. It is Holden Beach's responsibility to
provide the sources of water to the public. Holden Beach
purchases its water from Brunswick County, and
supports the regional concept of water distribution in
Brunswick County. The cost of securing this supply will be
borne by the users. User Charges are the main means of
financing these costs.
Holden Beach has provided major trunk lines throughout the
town where public water is feasible and needed. Individual
connections will be done at the user or property owners'
expense. Developers of new subdivisions will be required to
install water lines at their own expense.
b. Public Sewage System
Holden Beach will work to achieve cleansing of polluted
waters through the construction of treatment facilities.
Poorly functioning septic tanks threaten to pollute estuarine
and coastal waters. This in turn renders shellfish areas
unfit for harvest. In order to avoid future pollution
problems, Holden Beach supports the development of waste
water collection and treatment facilities.
Any future development that will substantially harm or
pollute Estuarine or Coastal waters using septic systems will
be discouraged. If the developer will provide a sewerage
collection and treatment system, the development may be
permitted.
C. Solid Waste Disposal
Holden Beach recognizes its role as the provider of solid
waste disposal services for its residents. It is the polity
of Holden Beach to have this service provided in an
K}7

d.
e.
f.
g-
h.
efficient, safe, and sanitary manner. In order to carry out
this role, adequate means of final disposition must always be
available. Holden Beach presently uses a County landfill.
Holden Beach supports the County's landfill projects so long
as adequate, appropriately located, landfill sites are
retained, maintained, and guaranteed.
Rescue Squad and Fire Protection
Although Holden Beach has a large, dense summer population,
it is prohibitedly expensive to provide fire protection and
rescue services with paid professionals throughout the entire
year. However, Holden Beach believes it has the
responsibility to help provide these services. Therefore,
Holden Beach will contract with volunteer fire departments
and rescue squads for these services. Currently these con-
tracts are with Tri-Beach Volunteer Fire Department and
Coastal Rescue Services.
Holden Beach will promote the expansion of services to
include marine rescue and supervised swimming areas
(lifeguard services), although it is beyond its local
financial resources to provide such services.
Public School System
Although Holden Beach has no school facilities in its
jurisdiction, Holden Beach does support and encourage the
improvement of the County school facilities utilized by its
residents. Therefore, Holden Beach will encourage continued
and expanded multi -purpose use of school facilities for
recreation and other purposes.
Transportation
Although Holden Beach has no formal program to provide
transportation for the elderly and handicapped, and other
needy residents, Holden Beach does support and encourage any
such program that will aid the citizens of Holden Beach.
The new bridge to Holden Beach will significantly influence
future island development. This is discussed on page
Street Lights
Holden Beach does not support the installation of street
lights.
Beach and Water Access
Recognizing that access to the beach is a major issue for the
Town, Holden Beach supports the establishment of "No Parking"
zones along the road right-of-way and the financing of
construction of public dune walkovers at selected points.
Also, Holden Beach supports the establishment of official
beach access points with designated parking lots.
36

Holden Beach supports the spending of tax money to improve
beach access for non -beach front as well as for the beach
front property owners.
Public parking for beach access is currently located
at the end of B, C, and D Avenues, and at the Pavilion.
The only current access to the Intracoastal Waterway is
at Ferry Road where a public boat ramp exists.
It is a policy of the Town that land areas under the
new high rise bridge (N.C. Department of Transportation
right-of-way) be used for parking. Implementation of
this policy would be through a lease from the D.O.T.
to the Town. Further, additional access to the
Intracoastal Waterway could be accomplished by
leasing this same area to the Town.
i. Beach Access Structures
Holden Beach encourages the construction of individual
over -the -dune structures for access to the beach at every
private access point. Such structures will be provided
by the Town at every public access point.
j. Recreation
x
Holden Beach will work to provide improved and additional
recreational areas. Holden Beach supports the construction
of a bike and jogging trail along Ocean Boulevard.
5. ECONOMIC AND COMMUNITY DEVELOPMENT
The citizens of Holden Beach believe that there is a place
for many types of residential, commercial and recreational
developments in Holden Beach, provided that proper and adequate
measures are incorporated into the design, construction and
operation of the development to eliminate substantial negative
impacts to neighboring land uses and the environment. New
development will be encouraged in the most suitable areas as
determined from the Holden Beach suitability map. New develop-
ment shall also be provided with the necessary public services.
a. Industry
Holden Beach will encourage in the area of Brunswick County,
but outside its town limits, only those industries that are
quiet, clean, and present no substantial environmental or
health hazards. Example of the industries encouraged in the
area by Holden Beach would be tourism, textile, electronics,
and seafood processing.
37

b.
Holden Beach will encourage the tourist industry within its
Town to grow with the development of single family and multi-
family residences, duplexes, and low profile apartments.
Airports
Obviously, no land within Holden Beach is used or will be
used as an airport. However, Holden Beach is near the County
Airport approach zones. Major airport approach zones should
be kept well away from residential developments because of:
a. Noise
b. Crash hazards
C. Likelihood of industrial growth near the airport
Holden Beach supports the development of appropriate general
aviation facilities on the mainland designed primarily for
small private aircraft.
6. GROWTH PATTERNS
a. Contiguous Growth
Holden Beach is a contained island community and therefore
has natural geographic limits on where growth and develop-
ment can occur. The Town will consider exercising extra-
territorial jurisdiction on the mainland adjacent to
Holden Beach as future circumstances may warrant.
b. Provision of Services
Urban growth and development will be directed to occur in
areas where services are available or planned. Low and
medium density growth is recommended until such time that
wastewater collection and treatment facilities are available.
C. Population Growth
Holden Beach's policy is to discourage large amounts of
growth and development and large increases in population.
Low and medium density growth is recommended due to the
Town's present lack of a sewer system. This policy is
implemented through densities established by the Town's
zoning ordinance.
d. Segregation of Existing Land Uses
Spatial segregation of conflicting land uses will be
encouraged. The Town's zoning ordinance provides the
principal means of implementing this policy.
e. Housing
Holden Beach will encourage seasonal and permanent single
38

family and multi -family residences, duplexes, and low profile
apartments.
f. Aesthetics
Holden Beach supports the adoption of an ordinance requiring
property owners to maintain their property's appearance.
g. Planned Unit Developments
Holden Beach will encourage the development of any indiv-
idual residential projects over three acres as planned unit
developments.
7. STORM HAZARD MITIGATION AND POST DISASTER RECONSTRUCTION
a. Storm Hazard Mitigation
The Storm Hazard Mitigation Plan Adopted June 18, 1984
by The Holden Beach Board of Commissioners contains the
following policies:
The entire Town of Holden Beach is susceptible to
significant storm damage from a hurricane or a storm of
similar magnitude. All of the development in the Town is
located in AEC's or in areas susceptible to flooding
associated with the 100-year storm. The entire Town is
susceptible to wind damage. In general, the Town's existing
mitigation policies meet the requirements for hazard
mitigation planning outlined in Before the Storm.
Specifically:
(1) The Town's growth policy encourages low density
residential development avoiding high density - high
rise developments that are found in many North Carolina
beach communities. The lack of specific plans for a
central sewage treatment system will also enhance the
continuation of this policy.
(2) The Town's policies support and are consistent
with State policies and regulations for development
in Areas of Environmental Concern.
(3) All new development must conform with the provisions
of the N.C. Building Code.
(4) The Town's flood plain development policies conform
with all Federal and State requirements.
(5) The Town does an excellent job of controlling mobile
home developments in order to minimize hazard damages.
Mobile homes are restricted to a specific district and
must conform with elevation and other requirements.
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b. Post Disaster Reconstruction
The Town's Post Disaster Reconstruction Plan was adopted June
18, 1984 by the Holden Beach Board of Commissioners. It is
organized in the following sections:
o Introduction
o Organization of Local Damage Assessment Team
o Damage Assessment Procedures and Requirements
o Organization of Recovery Operations
o Recommended Reconstruction Policies
The following provides a summary of the Plan's most im-
portant provisions and policies from each of these five
sections:
(1) Introduction. Defines plan purpose and use; identifies
3 distinct reconstruction periods: Emergency, Restor-
ation, and Replacement/Reconstruction. Outlines se-
quence of procedures to be followed to meet State and
Federal Disaster Relief regulations: 1) Assess storm
damage and report to County; 2) County compiles and
summarizes individual community reports; 3) State
compiles County data and makes recommendation to the
Governor; 4) Governor requests Presidential declara-
tion; 5) Federal relief programs available.
(2) Organization of Local Damage Assessment Team.
Outlines personnel available; establishes team
members; designates building inspector as team
chief.
(3) Damage Assessment Procedures and Requirements.
The purpose of this phase is to rapidly determine
immediately following a storm disaster: 1) number
of structures damaged; 2) magnitude of damage by
structure type; 3) estimated total dollar loss;
and 4) estimated total dollar loss covered by
insurance. To accomplish this, the Plan estab-
lishes four categories of damage: l) destroyed -
(repairs over 80% of value); 2) major (repairs over 30%
of value); 3) minor (repairs under 30% of value); and
4) habitable (repairs under 15% of value). A color
coding system in conjunction with County tax maps is
recommended for this phase of damage assessment.
Total damage in dollars is estimated by taking the
County tax valuations times a factor to make
prices current and then factoring these figures
according to the above damage classifications. Es-
timated insurance coverage is made by utilizing
information as to average coverage obtained from
insurance agencies on an annual basis.
40

(4) Organization of Recovery Operations. The Mayor and
Board of Commissiors assume the duties of a Recovery
Task Force. The Task Force must accomplish the
following:
o Establish reentry procedures
o Establish overall restoration schedule
o Set restoration priorities
o Determine requirements for outside assistance
and request such assistance when beyond
local capabilities.
o Keep appropriate County and State officials
informed using Situation and Damage Reports
o Keep the public informed
o Assemble and maintain records of actions
taken and expenditures and obligations incurred
o Proclaim a local "state of emergency" if
warranted
o Commence cleanup, debris.removal and utility
restoration activities undertaken by private
utility companies
o Undertake repair and.restoration of essential
public facilities and services in accordance
with priorities developed through situation
evaluations
o Assist individual property owners in obtaining
information on the various types of assistance
that might be available from federal and
state agencies
A schedule outlining tasks and general time frames
is provided in the plan.
(5) Recommended Reconstruction Policies. The policies
outlined are for the Mayor and Commissioners to con-
sider after a storm occurs. It is not practical to
determine at this time what specific responses are
appropriate. The following policy areas are
discussed:
o Reentry. Not allowed until the Mayor determines
it safe and initial damage assessment is completed.
A list of property owners will be maintained and
kept at the Bridge entry to Town.
41

o Permitting. Permits to restore previously con-
forming structures outside AEC's issued auto-
matically. Structures suffering major damage
allowed to rebuild to original state but must
be in compliance with N.C. Building Code, Zoning
and Flood Hazard Regulations. Structures with
minor damage allowed to rebuild to original state
before the storm. Structures in AEC's allowed to
rebuild only after determination has been made as
to adequacy of existing development regulations
in these special hazard areas.
o Utility and Facility Reconstruction. Water
system components repaired or replaced must be
flood -proofed or elevated above 100-year flood
levels. Procedures established to effect emergency
repairs to N.C. Rt. 130 if necessary.
o Temporary Development Moratorium. To be consid-
ered after major storm damage for AEC's if existing
regulations appear inadequate to protect structures
from storm damage.
8. CONTINUING PUBLIC PARTICIPATION.
Holden Beach realizes an important part of any planning
program is citizen involvement. In order to provide for
public participation, Holden Beach adopted the following public
involvement policy.
All land use plans and updates will be done with public
participation. Citizen participation in the land use planning
process has been accomplished by using the following plan.
Time Use of One Year Planning Period
one-third I. Education
A. Newspaper
1. News releases
2. Letter to editors
B. Pamphlets
C. Public Meetings
one-third II. Input
A. Public meetings
B. Review and comments
1. Newspaper spread of plan summary
2. Public review meeting
one-third III. Support
A. Use of education and input properly
B. Public hearing (formal)
42

During the preparation of this Land Use Plan Update, the Town
encouraged its citizens and property owners to participate in the
planning process. Public meeting dates and times were announced in the
local newspaper and members of the public attended meetings of the Town
Planning Board when the Update was discussed. Specifically, public
meetings were held at Town Hall on the following dates:
October 23, 1984 - Planning and Zoning Board, Initial meeting to review
Land Use Plan Update project, schedule, etc.
February 6, 1985 _ Planning and Zoning Board - Work session on Land Use
Plan Update; public meeting.
March 7,1985 - Notice of Public Hearing on March 19, 1985 published.
Public review of and comment on Land Use Plan invited. Material
available for public review.
March 19, 1985 - Planning and Zoning Board - Public hearing to receiv
public comment.
April 16, 1985 - Planning and Zoning Board - Public Meeting to finalize
policy statements and Land Classification Map.
May 23, 1985 - Planning and Zoning Board - Public meeting to review
changes.
May 28,1985 - Joint Meeting - Planning and Zoning Board and Board of
Commissioners - public meeting to review changes.
November 18, 1985 - Formal Public Hearing held on Plan by Board of
Commissioners after 30-day public notice.
November 25, 1985 - Board of Commissioners adopted Plan for final
submission to the Coastal Resources Commission.
December 13, 1985 - CRC Certification.
43

LAND CLASSIFICATION
Background and Purpose
The North Carolina Coastal Area Management Act Guidelines require
that each city, town and county located in the twenty county coastal
areas develop a land classification map classifying all of the land
within its jurisdiction into one of five classes and their subclasses.
A land classification system for Holden Beach has been developed
as a means of assisting in the implementation of the goals, objectives,
and policies of this Plan. By delineating land classes on a map, the'
Town and its citizens can specify those areas where certain policies
(local, state, and federal) will apply. Although specific areas are
outlined on the Land Classification Map, it is merely a tool to help
implement policies and not a strict regulatory mechanism. The
designation of land classes therefore allows the Town to illustrate its
policies as to where and to what density growth is desired, and where
natural and cultural resources will be preserved.
Relationship of the Land Classification Map to Policv Statements
The land classification map is a graphic representation of the
policy statements formulated and adopted through the citizen
participation and plan development process. The classification of land
reflects existing development patterns as well as the desired pattern
of development as specified in the policy statements. Additionally,
development in AEC's must conform to all applicable C.A.M.A.
requirements.
The Transition classification reflects the policy of the Town to
accommodate development in those areas with existing or planned urban
facilities within the next ten years, and those areas that are
consistent with the holden Beach Zoning Ordinance. The subclasses of
the Transition Classification are Transition Residential and Transition
Mixed —Use. Lands meeting the above policy for Transition areas were
classified as one of these subclasses according to whether planned
outlying development was to be strictly residential or a variety of
land uses such as residential, commercial, institutional and
recreational. All classification of land within these subclasses are in
accordance with the Holden Beach Zoning Ordinance.
The Rural Classification reflects the policy of the Town toward the
protection of low intensity resource potential lands as well as the
policy to provide lands for low density residential development where
urban services are neither provided nor planned. This latter policy is
further supported by the Town's policy of compact growth and because it
is very inefficient and uneconomical to provide facilities to sparsely
populated outlying areas. To comply with these two policies, the Rural
classification is divided into two subclasses, Rural and Rural
Residential. The main difference between these two subclasses is their
accessibility and degree of development.
44

The Conservation classification reflects the policy of the Town to
protect and provide effective long term management for significant,
limited or irreplacable lands. Within the Conservation classification
are areas of environmental concern. For a listing of the areas of
environmental concern applicable to Holden Beach, see the Fragile Areas
section of this Plan (page 19). Areas of environmental concern are
necessarily protected in accordance with the North Carolina Coastal
Area Management Act (C.A.M.A.) of 1974; Holden Beach supports all
C.A.M.A. regulations.
Land Classes and The Land Classification Map
The Land Classes applicable to Holden Beach are described below.
Each of the five broad classes identified by the C.A.M.A. are not used
in Holden Beach. The three applicable broad classes with subcategories
are:
Transition
o Mixed Use
o Residential
- Low Density
- Medium Density
Rural
o Rural
o Rural Residential
Conservation
The inclusion of a land area into one of these classification
categories or subcategories does not dictate the type of land use that
will be allowed in a particular location. Several of the classes
provide for and are designed to encourage a variety of different land
uses. The classifications and subclasses are defined below. Map Six
delineates each of the subclasses adopted by Holden Beach.
1) Transition
The purpose of the transition class is to provide 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. The transition lands also
provide for additional growth when additional lands in the
developed class are not available or when they are severly limited
for development.
The transition class should be the only land in Holden Beach
under active consideration for intensive urban development
requiring urban services. The area within this class is where
detailed local land use and public investment planning must occur.
State and federal expenditures on projects associated with urban
development (water, sewer, urban systems, etc.) will be guided to
45

The preWatioo of this map was financed in p
Provided by the North Carolina Coastal Manageme
funds Provided by the Coastal Zone Maoas—
amended, which is administered by the Office of
Resolrce Manasement, N.O.A.A.
sHALLOTTE INLET
a
C
c
LEGEND
c
Conservation
R
Rural
jn
Rural Residential
'rM
Transition Residential- Low Density
TRM
Transition Residential -Medium Density
TM
Transition Mixed Use
POD FOLLY INLET
MAP 6
HOLDEN BEACH N.C.
LAND CLASSIFICATION MAP
Prepared By: SATILLA PLANNING
200 Osbome Street
St. Marys, Georgia NORTH
0' 250' 500' 1000' 1500' 2000'
Mapping Date: MAY, 1985

these areas.
In accordance with the State Guidelines, first priority lands
for allocation to the Transition category are those areas which
presently exhibit a gross population density of 2,000 persons per
square mile. The second priority includes those areas which have
experienced septic tank problems and/or face potential public
health threats in terms of contamination of on -site wells or
pollution of estuarine waters to which much existing residential
development is adjacent. The third priority provides for inclusion
of more areas where future development is expected and can be
clustered through the provision of services. The fourth priority
includes lands located along existing or proposed service
corridors in which higher density development is to be encouraged.
a) Transition Mixed Use
This class includes areas where public services are
currently provided or planned, yet are more suitable for a
wide variety of development ranging from recreational
facilities to commercial establishments. The guide for the
placement of development within this class is the Holden
Beach Zoning Ordinance and the Holden Beach Policy
Statements.
b) Transition Residential
This class includes the areas with planned facilities
best suited for residential development.
A large portion of the land in Holden Beach is
designated either transition Mixed Use or Transition
Residential. Generally, all developed residential areas that
are currently provided with public water are classified
Residential. Those areas currently develop with a wide range
of uses, such as piers, arcades, stores, or other commercial
establishments, are classified Transition Mixed Use. All
those areas are scheduled to be provided with public sewer
within the upcoming ten year period.
The Transition Residential areas in Holden Beach are
subdivided into two sub -classes as follows:
- Transition Residential - Low Density, which
shall include single and duplex dwellings
- Transition Residential - Medium Density, which
shall include single, duplex and multi-
family dwellings
2. Rural
The purpose of the rural class is to provide for agriculture,
forest management, mineral extraction and other low intensity uses
where urban services are not required and where natural resources
47

will not be permanentlyimpaired.
a) Rural Residential
The purpose of this class is to provide for low density
residential development where urban services are not provided
or planned and where natural resources will not be
permanently impaired.
In Holden Beach, the Rural classification is made for
those lands that are suitable for development but that have
not been made accessible by public streets and roads. The
Rural Residential classification is made for low density
residential areas not presently provided with public water.
It is the intent of the Rural designations to encourage
development of those areas classified Transition before
those classified Rural or Rural Residential.
3. Conservation
The purpose of the Conservation class is to provide for
effective long-term management of significant limited or
irreplaceable areas. This management may be needed because of the
area`s natural, cultural, recreational, productive, or scenic
values. These lands should not be identified as transition lands
in the future.
• The Conservation Class should be applied 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 of
providing necessary habitat conditions, publicly owned water
supply watersheds, and aquifers; and forest lands that are
undeveloped and will remain undeveloped for commercial purposes.
Those lands designated as Conservation in Holden Beach are
primarily coastal wetlands, oceanfront shorelines, or inlet hazard
areas.
48