Land Use Plan-1988

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Division of Coastal Management
OF
HOLLY
RIDGE...
LAND USE
PLAN
This document should be used in conjunction with
the 1991 Holly Ridge Land Use Plan Amendment.
STEPHENSON & ASSOCIATES
greenviI le, nc

1988 HOLLY RIDGE LAND USE PLAN
Prepared for the Town of Holly Ridge
With assistance provided by
Stephenson -and Associates
A subsidiary of Aquasystems, Inc.
Environmental Research, Planning and Management Consultants
Greenville. North Carolina
Adopted by the Holly Ridge Town Board on April 25, 1989
Certification by the North Carolina Coastal Resources Commission
on May 26, 1989
The preparation of this document was financed in part through a grant
provided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as amended,
which is administered by the Office of Ocean and Coastal Resource
Management, National Oceanic and Atmospheric Administaration.

' 1988 HOLLY RIDGE LAND USE PLAN
HOLLY RIDGE TOWN COUNCIL
Herman G. Alberti, Mayor
Joseph L. Edwards, Mayor Pro Tem
Murray Fisher
W.L. Shol ar
Gregory L. Hines
Kenneth W. Williams
HOLLY RIDGE ZONING BOARD
Mary Piner, Chairman
Elmer Padgett
James Pate
Richard Royal
David Guthrie
Charles Duncan
HOLLY RIDGE TOWN ADMINISTRATION
Billy Joe Farmer, Manager
' Jo Ann Odum, Finance Officer
Brenda Padgett, Zoning Administrator
TECHNICAL ASSISTANCE
Dr. Richard A. Stephenson, AICP, Planner —in —Charge
Bruce C. Payne, Planning Associate
Richard E. Hall, Planning Associate
' Thomas H. Chaney, Planning Associate.
Hardee R. Cox, Chief Cartographer
Stacy Ann Stephenson, Cartographic Assistant
' Mary Ann Stephenson, Secretary
Stephenson & Associates. Greenville, North Carolina

1
1
11
1
JI
L'
CONTENTS
page
I. Introduction
1
II. Data Collection
and Analysis
3
A)
Regional Setting
3
B)
Population
4
C)
Economy
4
D)
Population and Economic Trends
8
1) Population Projections
11
E)
Income
11
F)
Summary
12
III. Existing
Conditions
13
A)
Existing Land Use
13
B)
Constraints: Land Suitability
15
1) Hazard Areas
15
2) Soil Limitations
15
3) Sources:of Water Supply
15
4) Slope :.
16
5) Fragile Areas
16
6) Resources Potential
16
C)
Constraints: Capacity of Community
Facilities
1) Water System
16
2) Wastewater System
16
3) Schools
17
4) Roads
17
5) Fire and Rescue
17
6) Recreation
17
7) Medical Services
17
8) Solid Waste
18
9) Police
18
10) Summary
18
IV. Current
Plans, Policies and Regulations
19
A)
Prior Land Use Plans
19
B)
Building Code
19
C)
Subdivision Regulations
19
D)
Zoning Ordinance
19
E)
Current Policies and their Status on
Implementation
19
Resource Protection Policies
19
Resource Production and Management
Policies
21
Economic and Community Development
Policies
22
V. Holly Ridge
Issues, Policies and Implementation
25
A)
Resource Protection Issues, Policies and

VI
Implementation
25
1)
Soils
25
2)
Groundwater Protection
26
3)
Great Sandy Run Pocosin Protection
26
4)
Storm Water Runoff Quality -
27
5)
The Preservation of Camp Davis
27
6)
Sand Quarrying
27
7)
Effectiveness of the Sewage
Treatment Plant
28
8)
Preserving Forested Areas
28
B) Resource
Production Issues, Policies and
Implementation
28
1)
Great Sandy Run Pocosin
28
2)
Recreation
29
3)
Farmland
29
4)
Residential and Commercial Growth
29
C) Economic
and Community Development Issues,
Policies
and Implementation
30
1)
Town Growth
30
2)
Commercial Growth
30
3)
Industrial Growth
30
4)
Town Appearance
31
5)
Commitment to State and Federal
Programs
31
6)
Energy facility Siting
31
7)
The Expansion of Camp LeJeune
32
8)
Providing Services for Development
32
9)
Attracting People to Locate in
Holly Ridge
-32
10)
Annexation
33
11)
Housing Mix
33
D) Public
Participation Issues, Policies and
Implementation
33
E) Hazard
Mitigation Issue. Policy and
Implementation
34
1)
Hazard Mitigation
34
The Land Use Plan
35
A) Land Classification
35'
1)
Developed Land Use
35
2)
Transition Land Use
35
3)
Community Land Use
35
4)
Rural Land Use
35
5)
Conservation Land Use
37
B) Spatial
Arrangment of Land Uses
37
1)
Developed Areas
37
2)
Transition Areas
37
3)
Community Areas
37
4)
Rural Areas
37
5)
Conservations Areas
38
C) Relationship
of Policies and Land Use
Categories
38
1)
Resources Protection Policies as
Related to Land Use
38

2) Resources Production Policies as
Related to Land Use 38
3) Economic Development as Related to
Land Use 38
Summary of Resources Protection Policies 39
Summary of Resource Production and
Management Policies 40
Summary of Economic and Community
' Development Policies 41
VII. Conclusion 42
Organization and Management for the
Land Use Plan 42
Summary 43
VIII. Amending the Plan 44
' Appendix A — Storm Hazard Planning and Mitigation 45
Appendix B — State and Federal Development
Regulating Agencies 55
List of Figures
Figure 1
_ Holly Ridge
Population Curve
5
'
Figure 2
Holly Ridge
Population Breakdown
6
Figure 3
— Holly Ridge
Employed Persons by Class of Worker
7
'
Figure 4
Figure 5
— Holly Ridge
Holly Ridge
Household Income in 1979
Employed Persons by Industry
9
10
Figure 6
_
Holly Ridge
Existing Land Use
14
Figure 7
— Holly Ridge
Land Classification
36
List
Tables
of
Table 1
Acreage of
Land Uses in Holly Ridge
13
'
Table 2
_
Land Uses in
the Town's E.T.J.
15
Table 3
— Summary of
Resources Protection Policies
39
'
Table 4
Table 5
_ Summary of
Summary of
Resources Production Policies
Economic and Community Development
40
Policies
41
Ik

HOLLY RIDGE LAND USE PLAN
I) INTRODUCTION
Planning is the process of bringing the future into the present, so
that we can do something about it now. This is not an easy process for
most people because it is difficult to visualize the future. Also, we
are uneasy about what the future may hold. At the same time, we know
that by setting goals, we can be more efficient and effective as
individuals, and in our community we can make it a better place in which
to live, work and enjoy. We know that by planning now, our town will be
more pleasant and enjoyable in the future. We can see that through
' proper planning, we can control our own community rather than having
someone else do it for us. The consequences are simple, for it was
written long ago that if we do not envision, we will certainly fail.
This land use plan is the beginning of the envisioning process.
Land use planning is at the very core of the town planning process.
' All other phases of town planning and management are performed to service
the projected land use pattern outlined in the land use plan. The
existing land use pattern of Holly Ridge is the result of many years of
intereaction between the human and natural resources in the town and the
surrounding area. The land use plan can help keep the desired character
of the Town of Holly Ridge, and at the same time guide growth and change
in an acceptable manner, if allowed to do so. It is intended that this
' plan serve as a tool for growth to meet the needs of the people, both now
and into the 21st century.
' Land use planning is based on many factors including topography,
drainage, soils, existing uses of land, availability of town services,
roads, population projections, trends in economic development, and future
' land use needs. The coordination of all these factors is what planning,
in general, is all about. Planning is essential to avoid the chaos
typical of other coastal areas experiencing faster growth. But land use
planning is not an end in itself. Although the plan allows for changes
1 in the future, it must be implemented to receive the benefits from its
adoption. All too often, the town board does not allow the planning
process to function to its fullest extent. The town board needs to
' consult with the town planning board on every town issue presented in the
land use plan. The planning board must respond to the needs of the town
board by -providing information and recommendations related to their
requests. Then, the town board will be able to make sound decisions, all
of which affect the future of Holly Ridge.
The land use plan is a requirement under the auspices of the North
Carolina Coastal Area Management Act (NCAC, 1974, as amended), and this
document is in accordance with the land use planning guidelines
(Subchapter 7B, Chapter 15). Notwithstanding the requirement by the
State of North Carolina to accomplish a land use plan update every five
years, the Holly Ridge Land Use Plan of 1988 is a document stating how
1 —1—

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the citizens intend to
achieve success
as a community far into the
future. Further, the
forth as part of the
document is a
comprehensive
commitment to achieve the goals set
planning and growth management
processes. Its success
is directly
related to citizen involvement in
community affairs and
how well the
town's leadership responds to the
tasks ahead.
—2—

I I ) DATA COLLECTION AND ANALYSIS
A) Regional Setting
Holly Ridge is located on a relict sand ridge which represents a
period when sea level was much higher than it is today. The average
elevation of the town is sixty—six feet above mean sea level with the sea
level slowly increasing at an increasing rate. By sitting on a high sand
ridge the town is relatively well drained with Kings Creek and Cypress
Branch flowing toward Topsail Sound about two miles to the southeast.
However, the north side of the town is fairly flat and standing water can
occur with prolonged rainfall. Originally Holly Ridge enjoyed a mixed
oak and pine forest in addition to holly trees from which part of the
town's name is derived. Because of the forest resources the town became
important as a wood stop on the railroad about 1890. The town gained
added importance in 1941 when it became the site of Camp Davis which
opened in April of 1941 as an anti—aircraft training base. The town grew
rapidly to accommodate the base. but in October 1944 the base closed as
the war was waning. During the summer of 1945 the base reopened as a
convalescent hospital and redistribution center. During the war Camp
Davis had as many as 60,000 troops. The closing of the base prompted the
town to readjust in the post war years. It wasn't until after the
hurricanes of the 1950's that more people living farther inland began to
look to the beaches for relaxation and recreation. With the town located
at the crossroads of U.S. 17 and.-N.C. 50, and where N.C. 50 terminates on
Topsail Island. there was a small resurgence of economic activity. In
general, Holly Ridge as a site, is safe from storm waters, a pleasant
environment with trees and good drainage, and enjoysa small town
atmosphere.
The situation or the relative location of Holly Ridge is one of a
crossroads community. Holly Ridge is located about 20 miles southwest of
Jacksonville and about 30 miles northeast of Wilmington. The Coastal
Highway, U.S. 17, is its major transportation corridor. With the
proximity of these two cities, Holly Ridge could enjoy the benefits of
providing housing in a small, pleasant community near a'major port and
industrial complex. With N.C. 50 bringing people from Goldsboro. Kinston
and Raleigh to Topsail Island, Holly Ridge could also become more
important commercially by providing more goods and services to its local
residents and the beach dwellers. With the completion of I-40 from the
west, Holly Ridge will be about twenty—five miles from another major
transportation artery.
At the present time Holly Ridge has the function of being a brief
stop for people going to and from the beach. The completion of the high
bridge on N.C. 210 has lessened the number of people using N.C. 50
through Holly Ridge. However, the traffic on U.S. 17 has not decreased
its intensity. Holly Ridge also has the function of providing a nice
place to live for those who desire a small town environment in which to
have a family or to enjoy retirement. In either case Holly Ridge needs
' to plan for its future in order to maintain or increase its vitality.
Holly Ridge needs to better serve its small, local market area and expand

its share of the surrounding market At the present-e-ir�,-
e=- t e market area
which has half or more of the people trading in Holly Ridge reaches only
two miles toward Wilmington and only a mile toward Jacksonville and Surf
City. Holly Ridge could increase its market area by providing additional
' retail activity for the beach residents since it would be safer for
retail stores to be located away from, but nearby the beach.
B) Population
The Town of Holly Ridge waned in population from World War II until
1970. Since 1970 the town has had a modest population increase (see
Figure 1). The projection shows a continuous, but slow growth. The 1980
' population of 489 persons has increased to slightly more than 500 persons
in 1987. Stump Sound Township, which contains Holly Ridge, grew the
second fastest of the five townships in the county between 1970 and 1980.
Most of this growth was attributed to the Sneads Ferry area according to
the Onslow County 1986 Land Use Plan. White Oak Township grew the
fastest. The -City of Jacksonville and Camp Lejeune are nearby
and account for most of its growth as it does for the entire county.
The growth of Holly Ridge in the immediate future will be dependent
upon a modest natural increase of its present residents, the in -migration
of new residents and those added due to annexation by the town in the
future. The question is whether_or not there will be an in -migration
later on. If there is to be an in -migration there needs to be an effort
in the community to prepare for it. Camp Lejeune may be expanding into
the town by 1991. The part of the camp that is to be in the town is
expected to be a buffer zone, but this expansion will most likely put
' development pressure on the town. The expansion could create an
in -migration of population or because of potential environmental impact.
could push people out.
The population distribution shows that the town presently has a small
natural increase (see Figure 2). There should be some concern with
respect to the age groups of 20-24, 25-29 and 30-34 year as these groups
are less than they should be. It appears that Holly Ridge is losing its
young people to college and jobs elsewhere after graduating from high
school. Also, with fewer females than males in these groups the
population distribution shows a potential for a decrease in families.
This is a common occurrence in many small towns throughout the nation.
But what can Holly Ridge do to change the out -migration of young people?
One way is to make the town more attractive for the young people to seek
Holly Ridge as a home. This commonly means that a viable economy must be
in place.
C) Economy
The economy of Holly Ridge has progressed greatly since the old
railroad wood stop days of the 1890's. In 1980 there were 181 workers
residing in Holly Ridge. Of the total there were 132 who were private
wage. self-employed or salary workers (Figure 3). The remaining workers
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1100
1000
900
800
700
C
0
0 600
n.
0
a
500
400
300
200
100
FIGURE 1
HOLLY RIDGE POPULATION CURVE
1950 1960 1970 1980 1985
Year
Source: U.S. Census &
N.C. Office of State
Budget & Management
-5 -

1
1
1
1
1
1
1
80
75
70
65
60
55
'50
U)
a�
0 45
a�
N 40
a�
0
35
0
Z 30
25
20
15
10
5
0
._...... ... .
FIGURE 2
HOLLY RIDGE POPULATION BREAKDOWN
PERSONS BY SEX AND AGE
0-5 6-13 14-19 20-24 25-29 30-34 35-44 45-54 55-64 65-74 75&up
Age in Years
® Males ® Females
_6_ Source: 1980 Census of
Housing & Population

FIGURE 3
HOLLY RIDGE EMPLOYED PERSONS
16 YEARS & OVER BY CLASS OF WORKER
Class 1 (59.159)
Class 2(1
Class 3(3.3%)
WORKER CLASS
1) Private Wage & Salary Worker
2) Federal Government Worker
3) State Government Worker
4) Local Government Worker
5) Self -Employed Worker
Total Workers
;lass 5(13.8%)
Mass �+� i v.558)
No. of
WORKERS
107
24
19
25
181
Source: 1980 Census of
-7- Housing & Population

�1
J
wage, self—employed or salary workers (Figure 3). rne''_remaining workers
were either local, state or federal government workers. This shows
an acceptable balance as long as there is not an increase in government
workers as related to the private sector employment. Unfortunately, the
income levels are much lower than they should, or could, be. For
example, 44% of the 159 households had incomes less than $9,999 in 1979
(see Figure 4).
There are two small industries in the town, Holly Ridge Foods
presently employs approximately 95 persons and Thorn Apple Valley, a meat
processing plant, now employs more than 500 persons. By comparing this
employment of almost 600 persons in these two industries with the
employed persons in Figure 5, it shows that a large percentage of people"
working in Holly Ridge apparently live outside the town. The primary
reasons for this are believed to be insufficient housing and commercial
activity in the town. This is a problem the town must deal with in order
to accomodate growth, particularly for those age groups that are in the
process of developing families. Most of the economic activity in the
town takes the form of marginal retail establishments along the main
highways. If it was not for the large number of vehicles using these
highways, especially U.S. 17, the town itself probably could not support
all the retail activities. With the growth of the nearby beach
communities, the highway retail establishments could be benefiting from
the tourist trade if properly marketed.
If and when Camp LeJeune expands toward the town it could
greatly affect the local economy- Holly--Ri-dge must keep in close contact
with Camp Lejeune officials so proper plans for the area are made.
Construction is to begin sometime in the early 1990's.
The economic future of Holly Ridge, like its population growth,
is dependent upon the leadership of the town to improve housing, commerce
and attractiveness. This means better opportunities for the people of
Holly Ridge and the surrounding area.
D) Population and Economic Trends
The population of Holly Ridge in the future is expected to
increase slowly. This is advantageous since it will allow the community
to make periodic adjustments to accomodate the population increase with
few, if any, problems. Holly Ridge has sufficient space to grow.
Population increases will likely respond to economic activities in the
surrounding area as well as in Holly Ridge itself. There must be a
reason for people to live in Holly Ridge. If the town has a forward
looking economy, opportunities for a livelihood, and a well kept
appearance, the town will surely increase in population. Thus, the
population and economy can increase or decrease depending on the
willingness, or the lack of it, by the town leaders and the citizens to
make a commitment.
The local economic base and employment picture is dependent upon
manufacturing employers in the town and surrounding area. Also, it is
MM

104
25
20
v
0
t
a�
15
0
0
6
z
10
5
FIGURE 4
HOLLY RIDGE HOUSEHOLD
INCOME IN 1979
No. of
INCOME RANGE
Households
#1
Less that $2500
18
#2
$2500 to
$4999
7
#3
$5000 to
$7499
29
#4
$7500 to
$9,999
17
#5
$10,000
to $12,499
8
#6
$12,500
to $14,999
9
##7
$15,000
to $17,499
26
#8
$17,500
to $19,999
14
#9
$20,000
to $22,499
10
#10
$22,500
to $24,999
9
#11
$25,000
to $27,499
3
#12
$27,500
to $29,999
1
#13
$30,000
to $34,999
4
#14
$35,000
to $39,999
2
#15
$40,000
to $49,999
2
#16
$50,000
to $74,999
0
#17
$75,000
or more
0
Median
$12,639
Mean
$13,186
#1 #2 #3 #4 #5 #6 #7 #8 #9 #10 #11 #12 #13 #14 #15 #16 #11
Income Range
Source: 1980 Census of
Housing & Population
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'
Industry 41
Industry 5(5.5%)
Industry 6(9.9%)
'
Industry 7(12.7%
Indus,,
Indusfry10(3.3%
FIGURE 5
HOLLY RIDGE E1v1PLOYED PERSONS
16 YEARS & OVER BY INDUSTRY
I.,tqiiQ+ry V1Q QK1
Industry 11(6.6%)
'
INDUSTRY
1)
Agriculture, Forestry, Fisheries, & Mining
2)
3)
Construction
Manufacturing
4)
Transportation
5)
Communication, Other Public Utilities
6)
Wholesale Trade
7)
Retail Trade
8)
Finance, Insurance, & Real Estate
9)
Business and Repair Services
'
10)
Personal, Entertainment, & Recreation Services
11)
Professional and Related Services
12)
Public Administration
' Total Workers
-10-
No. of
WORKERS
12
7
36
16
10
18
23
0
5
12.
36
181
ustry 2(3.9%)
Industry 1(6.6%)
stry 12 (19.9%)
Source: 1980 Census of
Housing & Pop.

Ridge. If this is done, it will allow a diversity QsL7ployment to. occur
which will also improve the wage and salary structure in the community.
Then, perhaps, the town will be more attractive for the youthful age
groups to return or remain in town.
E) Population Projections
' There are many different ways to project populations. In this land
use plan the linear and exponential methods are used. A projection is
made from each method and then averaged.
A linear projection gives the same result as if the population
history for a given area was graphed and the line connecting the dots on
the graph was continued at the same slope as a straight line.
' "Thomas Malthus, an English scholar whom everyone talks about and few
have read, claimed that population tends to grow at a geometric rate. It
compounds, like interest on money. The exponential curve portrays this
idea, growth at a constant rate or percentage, which means that with each
unit of time, the absolute addition to population gets bigger and bigger
' and bigger." (Donald A. Krueckenberg and Arthur L. Silvers, 1974, URBAN
PLANNING ANALYSIS: METHODS AND MODELS, New York, NY, p. 262.) This
projection will give a higher estimate than a straight line.
' By averaging the two projections a mean can be achieved that is a
fair estimate. It is difficult to forecast exactly what a population is
going be in the future. The projections are as follows:
LINEAR ESTIMATE FOR THE YEAR 2000; 521
EXPONENTIAL ESTIMATE FOR THE YEAR 2000; 583
' AVERAGE ESTIMATE FOR THE YEAR 2000; 552
The population for Holly Ridge in the year 2000 is estimated to be
' 552. This represents a 19% growth rate between 1980 and the year 2000.
Since Holly Ridge has an unusual population history, the projections were
derived from the growth between 1970 and 1980 (see Figure 1). The town's
' estimated population can vary considerably. For example, the planned
expansion of Camp Lejeune and the annexation of surrounding areas will
cause the population to vary from the estimate in this plan.
F) Income
The town's income is somewhat diverse, and rather low. According to
the 1980 census the median income was $12,639 per year and 31% of the
town's population was below the poverty level. It is not likely these
values have changed since 1980. The census showed the largest number of
people to have an income between $5,000 to $7.499. The second largest
was $15,000 to $17,499-and the third largest less than $2,500 (see Figure
' 4). This shows a wide range of income. The $5,000 to $7,499 income
1
-11—

range is the second lowest monetarily and largest in1 -umber, and one of
major concern.
' The tax base is expected to change with the expansion of Camp LeJeune
and any annexation. In the case of Camp LeJeune the land will be in
public ownership and this does not necessarily contribute to the tax
base. Also, if noise pollution from the base becomes excessive it can
' also have a negative effect on the town. A positive effect could be
increased demand for housing and trade. Also. this land use plan will
help the town directly by stating policies related to residential,
commercial, and industrial development.
G) Summary
The Town of Holly Ridge
shows a population and
economic situation
shared with many small towns
across the nation. A
population
that is
relatively static or slightly
increasing, and the
continuing
dilemma of
low income for far too many
families. Holly Ridge
is more fortunate
than
'
many towns, in that the town
unemployment rate is
considered
to be much
lower than the average for the
state which was 6.4%
in 1981.
Holly Ridge
has the potential to vastly
improve its economic situation.
11
0
1 —12—

I
III) EXISTING CONDITIONS
A) Existing Land Use
Holly Ridge has not had any significant changes in its land use
during the past five years. Adjacent to the town toward the beach there
has been some residential development (see Figure 6).
' The land uses are mixed within the town and some of the industrial
uses cause some compatability problems. Because of mixing and scattering
different land uses there are no well defined functional areas which is
typical of small towns and hamlets. For example, old storage buildings
are adjacent to residences. Further, the town has an older business area
' with mixed uses and some dilapidated structures along with newer
development surrounding the older section. Finally, there are a few
structures remaining from Camp Davis that are scattered throughout the
' town. In the future, zoning districts should be established that will
allow the town to become more structured.
There is a need
for additional housing in the town.
At the present
time there is vacant
land available for residential development.
At the
present time, if one
wanted to move into Holly Ridge it
would be
difficult in finding
a suitable house or even a mobile
home. People
desiring to live in
the area may not choose Holly Ridge
as a place to
'
live because of the
lack of housing. More housing must
be constructed in
order to attract more people. Based on the population
estimates the town
'
will demand certain
1 2 indicates this
types and amounts of land uses in the
demand.
future. Table
and
additional
Recent town growth has been scattered strip development along US 17
and NC 50 which can develop into a major problem. Other than the
highways and the downtown, development is somewhat sparse. The town has
a large amount of vacant land to accommodate future growth. Future
development should be more orderly since the town has adopted a zoning
ordinance in addition to mobile home regulations in 1985 and subdivision
regulations in 1987. Demand for future land uses will be moderate.
tTABLE 1
ACREAGE OF LAND USES IN HOLLY RIDGE
' Land Use Present Acreage % of Total Future Demand
Residential 62.4 12.9 11.9
Open Space 277.3 57.2 N/A
Commercial 9.2 1.9 1.8
Industrial
16.5
3.4
3.1
Institutional
7.4
1.5
1.4
Vacant
20.2
4.2
N/A
Roads and RR
90.0
18.6
17.1
total
484.8
35.3
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1
1
1
1
1
1
1
1
i
1
1
1
i
HOLLY RIDGE
EXISTING LAND USE
® RESIDENTIAL
■ COMMERCIAL
INDUSTRIAL
El
INSTITUTIONAL
❑ AGRICULTURAL. FORESTS. OPEN SPACE
.ao o 7 7 7 7e
5u wF_
The preparation of this document was -financed in part through a grant
provided by the North Carolina Coastal Management Program, through funds
ant Act of 1972. as amended, rhich is
in and Coastal Resource 1.lanagment,
)spheric Administration.
Figure 6
Stephenson and Assoc/mates
A subsidiary of Aquasystems, ine.
Environmental Research. Planning and Management Consultants
Greenville. North Carolina

' TABLE 2
LAND USES IN THE TOWN'S E.T.J.
Land Use Present Acreage 2 of Total Future Demand
Residential 64.2 1.6 3.2
' Open Space 3675.5 93.5 N/A
Commercial 44.0 1.1 2.3
Institutional 22.0 0.5 1.1
' Roads and RR —126_6 3.2 —6_6
total 3932.3 13.2
B) Constraints: Land Suitability
' 1) Hazard Areas
' At an elevation of about sixty feet Holly Ridge is not considered to
be in a hazard area. Hazards such a flooding, earthquakes, snow and ice
storms are rare. However, high winds, drought and tornados are possible.
' Erosion along drainageways and creeks are common during intense rainfall.
Man —induced hazardous waste dumping may have occured during the war, but
the location of Camp Davis dump sites have not been investigated.
2) Soil Limitations
Most of the town's soils are poorly drained fine sands. The Leon
' soil series occupies a majority of the town's acreage. This is a poorly
drained soil with a seasonal high water table within one foot of the
surface. The soil has severe limitations for septic tank absorption
fields and dwellings because of poor filtration and excessive wetness
respectively. A severe limitation means that development activity will
require moderate to major special planning, good design, and careful
' management to overcome the limitation. Other soils in the town have
developmental limitations as well such as the Muckalee Loan soil series.
For example, there are some very wet soils along the streams and along
some deeply incised streams where the soils are very susceptable to
erosion.
It is fortunate that the town has wastewater and drinking water
' facilities, so these soil limitations are not much of a constraint to
growth. Development outside of the town is affected much more by soil
limitations since public wastewater and drinking water systems are not
' available. The town could expand their utilities to these areas.
One must keep in mind that soil properties are site specific and
' there can be several different soils on one plot of land. An on —site
inspection is needed to determine the limitations at each location. For
more detailed soil information the Soil Conservation Service in
Jacksonville should be contacted.
—15—

3) Sources of Water Supply
The Holly Ridge drinking water is presently supplied by the county's
t system which is obtained from wells. The town's wells are presently
inoperable, but there are plans to reactivate the wells in the near
future, and use the county water system.in emergency situations only.
' 4) Slope
The lay of the land should not be a constraint to development in the
' town. The town is generally flat, although excessive erosion is occuring
along streams which is caused by rapid runoff during heavy rains. This
will increase with development and poor storm water management practices
if not rectified through sediment control and proper storm drainage
controls.
' 5) Fragile Areas
The town has no Areas of Environmental Concern. The only areas that
can be considered fragile are the stream areas and remains of old Camp
' Davis as a historic site. The streams show considerable down cutting and
should be protected. Most of Camp Davis except foundations of some of
.the buildings, is gone. The North Carolina Department of Cultural
Resources stated that there were no known structures of historical or
architectual importance located within the planning area. There are a
few old buildings remaining from Camp Davis still standing in the town
' but these are dilapidated except for the Camp Davis Resturant.
Outside the town toward the north is an upland swamp or pocosin which
' is a fragile wildlife habitat. This area should be protected.
6) Resources Potential
I Holly Ridge is a small urban area with most of its resources
potential in the surrounding unincoorporated areas of the county. The
main resource near the town is the Great Sandy Run Pocosin which is'
approximately 63 square miles and has the potential of a protected
wildlife habitat and for peat mining. This area is being considered for
the expansion of Camp LeJeune.
C Constraints: Capacity of Community Facilities
' 1) Water System
The town presently purchases its water from the county. The county's
system operates at an average of 81% capacity during its twelve hour
pumping day. During peak periods the system must operate more than
' twelve hours per day to satisfy the demand.
Holly Ridge is planning to put its water system back into operation.
If this were to happen the town would use the county system as a back—up
system in case of an emergency.
1
-16—

1 2) Wastewater System
The town's wastewater system is fairly new but because the old storm
1 water system is mixing with the present system, it fills up to or over
its capacity. The town has corrected this problem by decreasing its
flow.
In an area that has poor soils for septic tanks it is very important
that the town have a good wastewater system. It is also important that
the town continuously monitor the capacity of its wastewater treatment
plant as annexation takes place.
3) Schools
' The children in Holly Ridge attend Dixon Elementary and Dixon High
School. These schools are substantially above capacity, as are most of
the schools in the county. This is a problem that is being taken care of
through the passage of a county bond issue for school expansion.
4) Roads
Two primary highways intersect in Holly Ridge. U.S. 17 is the main
coastal thoroughfare in the eastern part of the state. Holly Ridge is
one of only a few towns on U.S. 17 between Jacksonville and Wilmington.
The highway design is adequate to handle additional traffic and the route
is being expanded in town to provide parking.
' N.C. 50 is an. important southeast to northwest thoroughfare in the
area. This highway is one of two routes to Topsail Island which is a
1 growing beach resort. The design capacity of this highway is sufficient
so there are no plans for expansion. The other route is N.C. 210 which
tends to divert some of the beach traffic around Holly Ridge.
Half of the town's roads are rights —of —way, unimproved, unpaved, or
in disrepair. This is an issue that the town must quickly address.
5) Fire and Rescue
The town has an excellent volunteer fire and rescue service. The
' service is more than adequate to handle fire and rescue emergencies in
the foreseeable future.
6) Recreation
The town has a small outdoor recreational area. It has a ball field
and a small playground. An indoor recreation center to be built by a
group of citizens that would be located near the town is in the planning
stage.
' 7) Medical Services
There is a small public clinic in the town and a hospital in
Jacksonville. This hospital is the only facility in the county with
1 twenty—four hour emergency service and it is between twenty to thirty
minutes from Holly Ridge.
1 —17—

' 8) Solid Waste
The town has a contract with a private firm to
handle its
refuse
collection and
disposal. The refuse
is collected twice a week
and taken
to the county
landfill. The landfill
will approach
capacity
in the next
few years but
there is a large tract
of land nearby
that the
county plans
to use.
9) Police
'
There are
presently two full time
policemen and
one part
time officer
making up the
town s police force at
the present time.
10) Summary
Holly Ridge presently has several problems which need to be solved.
Several problems are at other governmental levels. The immediate local
problems that need to be dealt with are, streets and roads, reactivation
of the town well, improving storm water runoff, maintaining an adequate
' wastewater treatmemt system, housing, and commercial development.
1
_18_

1
1 IV) CURRENT PLANS, POLICIES AND REGULATIONS
rThis section contains a summary of the conditions, plans and policies
related to land use planning in the Town of Holly Ridge. All the items
included in this section contribute to the overall town planning process.
A) Prior Land Use Plans
The town utilizes the 1981 CAMA Land Use Plan for land use
information and policies. Once the 1988 land use plan is adopted, all
' aspects of it will supercede the 1981 Plan.
B) Building Codes --
The town has a building code and it is enforced by the building
inspector.
C) Subdivision Regulations
The town adopted subdivision regulations in May of 1987
' D) Zoning Ordinance
The town has a zoning ordinance and it is working on extending the
jurisdiction of zoning into the extraterritorial area.
1
E) Current Policies and their Status
on Implementation
The policies
presented in the 1981
CAMA Land Use Plan are
indicated
below as well as
their present status
on implementation.
Resource Protection
Policies:.
'
1) a) Policy:
"There are no AEC's
within the jurisdiction
of the Town
of Holly Ridge.
The town is, however
located near the coast
and receives
a great deal of
through traffic as a
direct result. Protection
and
management of estuarine
AECs is important
to Holly Ridge for
this reason
and because the
town believes these areas
to be important to
all
citizens.
The policy of
Holly Ridge is to support
the coastal
management
program especially
in regards to Areas of Environmental
Concern. The
'
town will implement
involvement in the
this policy through its
program. Responsibility
continued support
for action
and
shall rest with
the Mayor and Town
Board."
b) Status on
implementation: This is
an on going
process.
—19—

n
2) a) Policy: "Only two alternatives were considered by the town as
reasonable. First was to take an inactive role in railroad actions and
transports through town. The second was to support the railroad but only
to the extent railroad actions and policies are supportive of
environmentally safe operations. The town does not consider current
traffic levels to create a hazard by dividing the town.
' The second policy was selected as most appropriate for the town of
Holly Ridge. The railroad is a very important asset to the town and the
town will continue to support the railroad provided all applicable health
1 and safety regulations are complied with. The town does not nessarily
oppose transport of any material through Holly Ridge provided the above
condition has been adequately satisfied.
The Mayor and Town Board shall be the persons responsible for
implementing this policy."
b) Status on implementation: This is an unchanging and on going
process, but the railroad tracks have been removed.
3) a) Policy: "The policy of the town is to support the programs of
the State and U.S. Soil Conservation Service insuring adequate soil
conditions to the extent possible for future development in Holly Ridge.
Appropriate uses are those which do not conflict with this policy by
creating a hazard to the soils of Holly Ridge. No alternatives to this
' policy were considered.
Implementation and enforcement of this policy shall be the
responsibility of the town building inspector and the Onslow County
Health Department."
b) Status on implementation: The town's zoning ordinance and the
county's septic tank regulations help to implement this policy. The town
needs to improve its storm sewer system and to enforce the subdivision
regulations in order to implement this policy. Subdivision regulations
were adopted in May of 1987.
4) a) Policy: "The town policy is to insure the availability of fresh
useable water from the aquifers providing the town's water supply. No
' alternatives to this policy were considered. Appropriate uses are those
which would not endanger the town's water supply either from pollution or
over use."
b) Status on implementation: There is no known pollution or over
use of the groundwater. The town is taking steps to get its own water
system back into operation so it will not have to purchase water from the
county.
5) a) Policy: "The town policy is to support the preservation of the
pocosin (The Great Sandy Run Pocosin) in its natural state within the
limited use of forestry. No alternatives to this policy were
considered."
—20—

' b) Status on implementation: This is an on going process. The town
must be more vocal on this policy since Camp Lejeune might expand into
the pocosin.
6) a) Policy: "The town policy shall be to protect and preserve all
structures identifed by the N.C. Division of Archives and History and any
' other structures subsequently identified, and to protect and preserve
existing or potential archeological sites as identified by the Division
or Holly Ridge. No policy alternatives were considered.
Appropriate uses are those which in the opinion of, the Division Of
Archives and History and/or the Town of Holly Ridge, will not endanger,
destroy, or remove the historic value of the structure or site."
b) Status on implementation: Since there are no sites or structures
in the town listed on the National Register, this policy is an on going
' one. The town continues to try to get some sort of historic site
declared for Camp Davis.
Resource Production and Management Policies:
1) a) Policy: "The town policy shall be to continue to support
recreation but not through a financial contribution. The Mayor and Board
of Commissioners shall be responsible for implementing this policy.
Natural resource protection will be the responsibility of the various
agencies and local governments controlling these areas. The Onslow
County Recreation Department should be consulted for more information
concerning specific recreation policies and programs in the area."
b) Status on implementation: The town is in the process of
developing an outdoor recreation area. There is also a group of
concerned citizens from surrounding communities that has formed a group
called Coastal Recreations, Inc. This group is attempting to construct
an indoor recreation facility for the area. They already have received
some donated land and are seeking funds for the facility. This should
help to serve the indoor recreation needs of the area.
2) a) Policy: "As a policy the town supports the preservation of
forestry lands and endorses the use of forestry management practices
which will not substantially harm the natural environment. A slight
' exception or variation of this policy is the town policy to support land
clearing provided the future use of the land will either improve the
overall housing conditions, housing availability, or overall economic
conditions of Holly Ridge. The town considers appropriate uses to be
proven forestry, management practices which universally accepted or those
uses proven to meet the policy exception.
Alternatives to this policy considered were; (1) establish land use
controls to prohibit development with forest lands; (2) permit
unrestricted development or use through a no control policy; or (3)
' encourage development only where the overall housing or economic
conditions of the town can be shown to directly benefit. The town
believes the third alternative to be the most appropriate and insure the
least interference with the private property rights and the needs of the
town to grow.
—21—

I�
The policy objective will be implemented and enforced by the Town
Planning Board using the existing town ordinances and Land Classification
Map.
11
b) Status on implementation: Since there has been little
development in the town since the last plan, it is difficult to determine
if this policy has been implemented. This policy is also on going.
Economic and Community Development Policies
1) a) Policy: "Holly Ridge supports and is actively seeking light
industrial development. The most desired industry is the relatively
small employer providing approximately 25 to 100 high wage skilled
positions. Ideally this type of industry would be clean, without fumes,
noise, or other pollution causing by product. Heavy industry employing
large numbers of people with the accompanying environmental problems is
not desired. The objective of industrial development is based on the
desire of Holly Ridge to first provide jobs for County citizens and
second to provide employment opportunities for new residents creating
town growth. High wage jobs are required to: 1) decrease the out
migration of young residents; 2) improve income levels within the area;
and 3) reduce the high percentage of substandard housing in Holly Ridge.
These problems are discussed in greater detail in the Description of
Present Conditions section of this plan. The only major employer located
in the Holly Ridge immediate area is Carolina Meat Processors. Major
employers in Jacksonville and Wilmington are too distant to create growth
in Holly Ridge under normal circumstances.
The town feels to accomplish this objective through the use of
' various state and federal industrial location programs and the Onslow
County Industrial Development Commission."
' b) Status on implementation: The town has not implemented this
policy. Holly Ridge needs to take a more active role in marketing
itself.
' 2) a) Policy: "The first priority for providing public services in
Holly Ridge is with in the town limits. Currently only the fire and
' rescue services provide assistance to areas outside of town limits.
Services normally provided town residents include:
1)
Police Protection
'
2)
Fire Protection
3)
Water and Sewer Service
4)
Emergency Medical Service
5)
Garbage Collection
With
exception
of water and sewer these
services can easily be
extended
to serve
new residents or industry.
Sewer service cannot be
increased
or extended
unless and until facilities
proposed in the Holly
Ridge 201
Facilities
Plan are constructed.
To date the project has not
received
funding
from the U.S. Environmental
Protection Agency."
b) Status
on
implementation: The town
obtained funding from the EPA
'
—22—

' and FmHA for a sewage treatment plant and are planning to place the water
system back into operation. Sewer and water services are provided to
some people outside of the town limits along Route 50 toward Surf City.
' 3) a) Policy: "Holly Ridge supports low to medium density urban growth
within the town limits. The town believes any growth should improve on
and change the dilapidated appearance of Holly Ridge. The town believes
in existing patterns of residential and commercial development. The
pattern of mixed land uses which now exist throughout the town will not
be supported in future development however."
' b) Status on implementation: The town adopted a zoning ordinance in
1985. Subdivision regulations were adopted in 1987. There has been
little growth in the town since the 1981 Land Use Plan so it is difficult
to see how well this policy has been carried out. However, there appears
to be major problems with the zoning ordinance and its zoning districts.
4) a) Policy: "Major areas and many structures in Holly Ridge are in
need of redevelopment. The Town has not been financially able to
undertake any redevelopment at its own expense. Attempts at obtaining
' federal redevelopment funds have not been successful. As policy the town
will continue to seek outside funding assistance and will encourage and
assist private redevelopment activities where possible."
b) Status on implementation: This has not been done.
' 5) a) Policy: "Holly Ridge is generally supportive of state and
federal programs including erosion control, public water access, highway
' improvements, and construction, port facilities, dredging, military
facilities, etc. There are no federal or state programs at present which
create either overriding interest or concerns in Holly Ridge. Areas
where state and/or federal programs assistance has or may be requested
are:
' 1) EPA 201 Facilities Planning
2) Four Laning of US 17
3) HUD Community Development Block Grant Program
4) Restoration and Preservation of Camp Davis
' S) Improvement of Railroad
The Town is willing to commit resources to these projects if funds
' are available. Holly Ridge reserves the right to review and comment and
to support or oppose other projects individually. The Town is an active
member of the Neuse River Council of Governments and reviews all state
' and federal projects included under the A-95 Project Notification and
Review System. All official comments are directed through the Town
Clerk's Office."
' b) Status on implementation: The town obtained an EPA 201
Facilities Planning Grant to construct a new sewage treatment plant. US
17 is now a five lane highway and is being improved. The town has not
' received any assistance on items 3, 4, and 5 above.
1 —23—

' 6 a Policy: "Holly Ridge generally supports both Channel Maintenance
and Beach Nourishment projects provided the benefits gained can be proven
' to be greater than the resulting cost whether financial or to the
environment. There are no beaches or waterways in the Holly Ridge
Planning Area, however.
' The Town supports the Corps of Engineers' program to maintain and
improve the Intercoastal Waterway as an avenue of commercial and
recreational traffic. Given the economic importance of the waterway,
there is no real alternative to this position. Holly Ridge is interested
since a great deal of traffic.through the Town is directly related to the
resources of the coast."
b) Status on implementation. This is an on going process.
' 7) a) Policy: "Holly Ridge has no specific policy on energy facility
siting or development at this time. Generally the Town would be
supportive of such a facility locating in the area. Holly Ridge would
' not support the locating of a facility which could not provide reasonably
adequate assurances for the future safety of citizens and/or natural
resources of the area. The Town, for this reason, reserves the right to
' comment, support, or oppose any proposed facility on an individual
basis."
b)
Status on implementation:
This is an on going process.
'
"Holly
8) a)
Policy: Ridge does
not receive substantial
economic
benefit
from tourism. Tourism because
of the town's
location is a
potential
untapped resource. The
policy of the town
is to support any
'
efforts
to increase the benefits of
tourism to Holly
Ridge.
Beach
and Waterfront -access are
not issues in Holly
Ridge since no
'
beach or
waterfront of any type is
within the town's
jurisdiction,
although
one of two access routes
to Topsail Island
is through Holly
Ridge."
'
b,)
Status on implementation:
The town has not
taken enough action
to market
tourists for the town on
their way to the
beach or along U.S.
r
17.
1 —24—

' V. HOLLY RIDGE ISSUES, POLICIES, AND IMPLEMENTATION
' The land use issues of Holly Ridge can be resolved through strategies
or policies. This provides a basic approach and a guide for solving land
use issues before they materialize or become unsolvable. At the center
of policy formulation is the town planning effort. The reasoning here is
' that the town planning board has the necessary resources to be the major
source of data and information which is essential in determining issues
and policies. Further, it is equally important to solicit public views
' on issues and related policies. The planning process allows this to
occur most effectively.
' The formulation of policies, herein, is based on an open process of
consultation, negotiation and compromise. The policies set forth in this
plan are a result of this formulation process. There are twenty-five
' issues each directly related to a single policy in the five land use
policy categories. An overall policy was articulated for each which
represents a myriad of policy alternatives. Consequently, each issue has
a related policy and a way to implement it. In a word, an issue is
' resolved by a policy through an implementative process. This procedure
is an improvement over having several policies for a single issue, and a
hodge-podge of implementation mechanisms. Here in this plan, a single
' issue, with a single policy, and related implementation tasks are used.
To successfully accomplish this land use plan we must decide on a
' course or courses of action. Through the policy statements, which
indicate how we intend to solve the land use issues, we reveal our
prudence and wisdom in the planning and management processes of
implementation. The land use policies *are divided into five categories:
1) resource protection, 2) resource production, 3) economic development,
4) public participation and 5) hazard mitigation.
' There are a number of policies that are to be addressed accourding to
the CAMA Land Use Planning Guidelines (Subchapter 7B of the North
Carolina Administrative Code). Since Holly Ridge does not have any Areas
' of'Environmetnal Concern (AEC's) and it is located on high land which is
a safe distance away from the ocean, there are some policy areas that do
not apply to the town. The policy areas that are not issues in Holly
Ridge are; AEC's, flood prone areas, wetlands, existing historic areas,
' manmade hazards, use of package treatment plants, marine and floating
home development, industrial impacts of fragile areas, development of
sound and estuarine system islands, commercial and recreational
' fisheries, off -road vehicles, assistance to channel maintenance and beach
nourishment projects, and coastal and estuarine water beach access.
' A) RESOURCE PROTECTION ISSUES, POLICIES, AND IMPLEMENTATION
1) Soils
a) Issue: Soils are very important in land planning. Most of the
soils in the town have limitations in providing a good filter for septic
tank absorption fields. This is not a problem where sewer and water
-2 5-

services are located. These services may be required in nearby areas
that have problem soils. Many of the area's soils also have engineering
limitations, such as for large buildings.
I
b) Policy: It is the town's policy to use suitable soils as a basis
for guiding land development.
c) Implementation:
i) Consult the Onslow County Soil Survey when devising plans for
development.
ii) Discourage development where soils are unsuitable through the
' town zoning ordinance and subdivision regulations.
iii) To extend public water and sewer services to existing
developed areas where poor soil conditions exist.
iv) Study the feasibility of controlling erosion.
' 2) Groundwater Protection
a) Issue: The town recognizes the need to protect the groundwater
' since it is the only source of its water supply. Groundwater can be
contaminated by the leaching of toxicants from the land surgface, land
fills, buried gasoline and oil tanks, dry cleaners, malfunctioning septic
systems, and by many other means. Once a groundwater system is
' contaminated it is almost impossible to correct.
b) Policy: Although there are no known problems with the
' groundwater, the town wishes to preserve and protect
all groundwater resources.
c) Implementation:
i) The town will require abandoned gasoline and oil tanks to be
removed, and/or pumped dry and filled with sand.
ii) The town will continue to work on correcting the seepage
' problem with the storm and sanitary sewage system.
iii) Public sewer and water services will be provided to nearby
areas where soils have septic tank limitations.
' iv) The North Carolina Division of Land Resources will be supported
in their protection of water quality.
v) The Division of Environmental Management will be supported in
1 the regulation of effluents.
vi) The town supports the state and county health departments in
their efforts to protect water supplies and effluents.
' vii) The location of any future landfill or toxic waste dump is
discouraged by the town.
3) Great Sandy Run Pocosin Protection
a) Issue: The Great Sandy Run Pocosin is a valuable recreation and
natural resource for the area.
b) Policy: The development of this area, expecially by Camp
' LeJeune, is opposed by the town.
' —26—

c) Implementation:
i) The town will support the state or county declaring this area
a state or county conservation area.
4) Storm plater Runoff Quality
a) Issue: The quality of storm water runoff in general and that
associated with agricultural, residential, and industrial development is
' an important concern in the town. Many factors can affect the quality of
strom water such as; heavy metals from automobile exhaust washing off the
roads, sediments from erosion and runoff, nutrients from fertilizers,
toxic chemicals from pesticides, and malfunctioning septic systems.
b) Policy: The town's policy is to improve the quality of storm
water runoff.
c) Implementation:
i) Support of the N.C. Sedimentation Control Act.
' ii) Support of the county's Soil and Water Conservation District.
iii) Require drainage plans in the subdivision ordinance.
iv) Support other county, state, and federal programs that regulate
activities that could possibly affect storm water runoff.
v) Study the feasibility for improving storm drainage.
5) The Preservation of Camp Davis
a) Issue: During World War II Camp Davis was a large army base that
' housed approximately 60,000 troops. There is very little remaining of
the camp. Camp Davis is an important part of the area's history and
there should be some way of remembering it and/or learning about it.
b) Policy: It is the town's policy to have Camp Davis listed on the
National Register os a historic site, preserve this area
as such, and possible construct a small museum.
' c) Implementation:
' i) Work with the N.C. Division of Archives and History to have
Camp Davis declared as a historic site and to seek funding for such
a project.
1 ii) Coordinate commercial development with a Camp Davis historical
museum.
' 6) Sand Quarrying
a) Issue: There are areas in and around the town that have potential
for sandquarrying. The town is concerned about the environmental impact
of such an activity.
' b) Policy: The town will not allow these activities where it has
the authority.
c) Implementation:
' i) In the update of the town's zoning ordinance this activity
should be prohibited.
—27—

7) Effectiveness of the Sewage Treatment Plant
a) Issue: The town is concerned about the effectiveness of its sewage
treatment plant. Storm water is mixing with the sewage and placing a
' stress on the sewage system that was to accommodate the town for some
time.
b) Policy: It is the policy of the town to improve the sewage
treatment system.
c) Implementation:
' i) To support the testing of the town's effluents from its its
sewage treatment plant.
ii) Steps will be taken by the town to correct the problem of the
' storm water and sewage mixing.
iii) The town will develop a plan to imporove the wastewater
treatment system.
8) Preserving Forested Areas
' a) Issue: It is important for the town to have some areas that are
forested. Although the town would like more development, it also
recognizes that forested areas are useful for buffer zones, parks, and
groundwater recharge.
b) Policy: It will be the policy of the town to retain some if its
land as forested areas.
c) Implementation:
i) The town will require a specified amount of open space in its
subdivision regulations', part of which can be forested.
ii) When the zoning ordinance is updated some -areas should be zoned
for low density residential development, this will allow for
forested areas.
iii) When the town budget allows, the town should pruchase tracts of
forested land for additional open space.
1 iv) All commercial and industrial zones that abut residential zones
should be buffered.
B). RESOURCE PRODUCTION ISSUES, POLICIES, AND IMPLEMENTATION
'
1)
Great Sandy Run Pocosin
a)
Issue: The town recognizes
the importance of Great Sandy Run Pocosin
'
as a
valuable natural resource
and recreation area. It was noted as a
Prime
Wildlife Habitat in the
"1986 Onslow County Land Use Plan".
Although
this area is outside
of the town, but partly in its ETJ, it is a
'
concern.
b)
Policy: It is the town's
policy to prevent any activities that
'
might change Great
Sandy Run's natural habitat.
1
-28—

c) Implementation:
i) To publicly condemn the plan for Camp LeJeune to expand in that
area.
' ii) To support any county, state, or federal plans to make the area
a conservation reserve.
iii) To support the N.C. Wildlife Resources Commission.
2) Recreation
a) Issue: Holly Ridge recognizes the importance of recreation in the
community and will continue to work on its program.
' b) Policy: It is the town' policy to have a good recreation
program.
c) Implementation:
i) To support and coordinate with all recration programs.
ii) To establish a town recreation commission for the purpose of
' overseeing town programs, to coordinate with the county
recreation department, and to oversee any other recreation
matters in the town.
iii) To support a community recreation facility in combination with
other towns in the area.
3) Farmland
a) Issue: There is little farmland in the area. However, there is a
need to protect and reserve the existing agricultural land uses.
b) Policy: The town's policy will be to preserve farmland in the
town's jurisdiction.
c) Implementation:
i) To zone areas in the ETJ for agricultural uses.
' ii) To discourage development on prime farmland.
iii) To utilize the Onslow County Soil Survey, the Soil
Conservation Service, and the Agricultural Extension Office to
1 help employ the best management practices.
4) Residential and Commercial Growth
a) Issue: The town realizes that need
for residential and commercial
growth. This growth must proceed in an
orderly, attractive, and
'
controlled manner.
b) Policy: It is the town's policy to
see that growth occurs in a
'
controlled and orderly manner.
c) Implementation
i) To update the zoning ordinance.
'
ii) To enforce the town's subdivision
regulations.
iii) To provide proper drainage.
iv) To support the Sedimentation Control
Act.
v) To utilize the Onslow County Soil
Survey and the Soil
Conservation Service as development
occurs.
1
-29—

C) ECONOMIC AND COMMUNITY DEVELOPMENT ISSUES, POLICIES AND
IMPLEMENTATION
1 1) Town Growth
a) Issue: The town is primarly a residential community. It would
like to continue as such.
b) Policy: It will be the town's policy to grow primarly as a
residential community.
c) Implementation:
i) The town will zone most of its land area as residential as it
updates its zoning ordinance.
ii) To provide services conducive to residential development.
iii) Not to zone too much land for industrial development and to
separate it from residential areas.
iv) To adopt building and housing codes to insure better homes.
v) To provide more affordable housing in the form of single
family houses, duplexes, and multifamily units.
2) Commercial Growth
a) Issue: The town could improve its commercial growth in the
' proper areas. It would look favorably on a small shopping area that not
only contains convenience type stores, but also some clothing, speciality
shops, and grocery stores.
b) Policy: The town will attempt to make itself attractive for
commercial growth.
c) Implementation:
i) To provide adequate land zoned for a commercial center.
ii) To actively market companies to locate in the town.
' iii) To establish a commercial district.
3) Industrial Growth
' a) Issue: The town desires industry, but not those that would be
offensive to the community.
b) Policy: The town's policy will be to attract industries to
locate in the area that will not adversely affect any
' of its citizens or their land.
c) Implementation:
i) To market the town to industries planning on locating in the
area.
ii) To zone land for industry away from residential areas and to
have buffers between different land uses.
' iii) To have adequate sewer and water facilities to handle
industrial growth.
1
-30—

4) Town Appearance
a) Issue: The town recognizes that its grounds and buildings need
to be improved.
b) Policy: It will be the policy of the town to upgrade its
appearance and to keep the town pleasant for its
citizens and visitors.
c) Implementation:
i) To reduce strip development impact on highways 17 and 50.
ii) To redevelop the downtown area.
iii) To apply for a block grant for the purpose of upgrading the
town.
iv) To require industries to provide a buffer that separates
themselves from adjacent land uses.
v) To demolish and remove dilapidated and abandoned structures.
vi) To activate the beautification committee.
5) Commitment to State and Federal Programs
a) Issue: The town is committed to state and federal programs
including erosion control, public access, highway improvements, and
military facilities.
' b) Policy: It is the policy of the town to support these federal
programs with the exception of the expansion of Camp
Lejeune in the Great Sandy Run Pocosin.
c) Implementation:
i-) The town will work and coordinate with all organizations when
applicable.
6) Energy Facility Siting
' a) Issue: Energy facility siting in or near the town.
b) Policy: It is the town's policy not to allow the siting of a
1 large energy facility in the area.
c) Implementation:
' i) The town will prohibit the siting of a large energy facility in
its juristiction through zoning.
7) The Expansion of Camp LeJeune
a) Issue: The expansion of Camp LeJeune into the town and in the
Great Sandy Run Pocosin would place tremendous development pressure on
the town. It would also eliminate a prime natural resource.
1
-31—

b) Policy: The town's policy is to protest the expansion of Camp
LeJeune in the Great Sandy Run Pocosin and into the
Town.
c) Implementation:
i) To discuss with the Navy Department, the town's concerns of the
expansion being so close, and try to reach a compromise.
8) Providing Services for Development
a) Issue: The town desires residential, commercial, and some
industrial growth. It recognizes that it must provide the proper
services to accommadate this growth.
b) Policy: The town's policy is to provide services to
development as -needed.
c) Implementation.
1 i) To continue to work on repairing the problem with the storm water mixing with the sewage.
ii) To get the town's water system back into operation.
iii) To have areas zoned for the different types of development so
they will not conflict with each other.
9) Attracting People to Locate in Holly Ridge
a) Issue: The town is quite close to Surf City and Topsail Beach
whose primary income comes from those seeking rest, relaxation, and
recreation. One of the three routes to these areas passes through the
town. The town does not receive too much benefit from its location.
b) Policy: The town's policy is to promote the town for retirees,
tourists, and people that would work at the industries
and businesses establishments located in the town.
c) Implementation:
i) To create a town promotion committee.
ii) To use routes 17 and 50 as corridors to the town and make them
attractive to visitors.
iii) To encourage business activities that would be attractive for
development as a residential community.
iv) To work on a small museum that features Camp Davis.
10) Annexation
a) Issue: Although there has not been a large amount of growth in the
town over the past few years, there has been growth outside the town
limits.
b) Policy: It is the policy of the town to have controlled growth
' and annex areas when and where appropriate.
1 —32—

c) Implementation:
i) To expand the town limits and extraterritorial jurisdiction.
ii) To apply the town's ordinances to the area.
iii) To conduct an annexation study.
1) Housing Mix
a) Issue: With the high cost of housing, many people are resorting to
modular or mobile units and multi —family units in which to live. This
creates a high demand for this type of housing which the supply will try
to match.
b) Policy: The town does not discourage any type of sound housing
as long as it is compatable to the area.
c) Implementation:
i) To have areas properly zoned for modular, mobile, and
multi —family units.
ii) To require adequate space for parking and recreation.
iii) To allow for aesthetically pleasing housing.
D) PUBLIC PARTICIPATION ISSUES, POLICIES AND IMPLEMENTATION
There is a need to increase citizen participation in the Town of
Holly Ridge. The public meetings that were held in the formulation of
this plan were not well attended. These meetings were usually held in
conjunction with the regularly scheduled planning board meeting on the
second Monday of each month.
In order to have a successful land use planning process and a
' progressive, orderly government, citizen participation is required. It
is common knowledge that there is a direct relationship between
successful planning and government and citizen participation. In other
words, as citizen participation increases, good governmental practices
increases also. The planning process and how it is related to government
practices is considered to be less than adequate at the present time.
In the planning process, citizen involvement is mandatory. Historic—
ally, citizens have been a part of planning and development. Not only
are government officials and agencies ineffective without citizen
participat— ion, but the planning process would tend to malfunction as
well. Usually, citizens desire to participate if an immediate problem
needs to be solved. At other times they become involved only if
officials or agencies are not doing what they think they should. Citizen
involvement is a valuable part of the decision making process at all
levels of government. The reason being that citizen participation: 1)
influences government decisions, 2) maintains stability in society, 3)
supports and advises officials, 4) guards the public interest. and 5)
reduces alienation between the people and the government.
� -33-

1
1
J
Citizens have a direct concern and should be involved in the
following planning processes: 1) assessing community values, 2)
determining issues and policies, 3) choosing alternative plans, 4)
approving or modifying plans, and 5) feedback after plans have been
effectuated. The citizen's role is as equally important as the public
official's role. It should not be thought of as just another
time -wasting, unnecessary burden. The citizen's importance is found in
the success of improving the well-being of all the citizens.
Citizen involvement may occur in different ways. All citizens should
generally be involved in: 1) informational, neighborhood or community
planning meetings, 2) public hearings, 3) attitude surveys, 4)
referendums, and 5) voting. Other types of involvement will depend on
the citizen's interests, but all citizens should be involved in at least
one of the following: 1) a•task force which has been assigned a specific
problem to be solved, 2) a citizen advisory committee, 3) county,
community or neighborhood planning commissions or boards, 4) elected
citizen representatives on a public policy -making body, 5) workshops for
the purpose of learning how to solve problems, 6) citizen training for
the purpose of gaining knowledge about government operations, and 7)
volunteer services. There are many ways that citizens can become
involved in their communities. Hopefully, the citizens of Holly Ridge
will recognize this need and respond to it in a positive manner. It is
the policy of Holly Ridge to hold to these statements regarding citizen
involvement in governmental affairs, particularly the planning process.
To implement this policy, the town will distribute a public participation
questionaire to its citizens.
E) HAZARD MITIGATION ISSUE, POLICY AND IMPLEMENTATION
1) Hazard Mitigation
a) Issue: Holly Ridge has only two major areas which require
mitigation action: 1) small streams, and 2) poorly drained uplands.
These areas, on the average, can reach high levels every year, and flood
isolated areas.
b) Policy: It is the policy of Holly Ridge to mitigate hazards by
adopting the following measures in the next five years:
c) Implementation:
i) To include in the zoning ordinance, a conservation zone.
ii) Adhere to the county redevelopment policy as related to storms.
-34-

I
VI. THE LAND USE PLAN
The information for this update has been collected and analyzed, the
issues have been listed and studied, the policies have been formulated,
and the implementation for the policies have been stated. The final task
of this update is to devise a land use plan. At this point, the future
is brought to the present by assigning different land uses to certain
areas. This distribution of the land uses reflect population
distribution, economic trends, existing land use, soils and other natural
resources, community services, storm hazards, and other town plans (see
' Figure 7).
IA) Land Classification
The land use plan uses a land classification system recommended in
the Land Use Planning Guidelines (Subchapter 76) which is part of the
State's administrative code. The land use categories are: 1) developed,
2) transition, 3) community, 4) rural, and 5) conservation.
1) Developed Land Use -
Developed areas provide for continued intensive development. These
areas have been and continue to be developed for urban areas including:
1) residential, 2) commercial, 3) industrial, and 4) institutional.
Usually, these uses are served by streets, water, sewer, police and fire
protection.
2) Transition Land Use -
Transition areas provide for future intensive development. These
areas are considered appropriate for urban growth in the future and
should be scheduled for the necessary urban services as development
occurs. These areas should not be developed until most of the land in
developed areas has been urbanized.
' 3) Community Land Use -
Community areas provide for clustered development in rural areas.
These areas allow for additional housing, shopping and public services.
They are considered to be crossroad communities and tend to serve the
immediate community and nearby rural areas. This category is not
appropriate or used in this plan.
4) Rural Land Use -
Rural areas provide for agriculture, woodlands, mining or quarrying,
and low density residential uses. These areas allow for the usual rural
land uses which include farming, forests, farmsteads, passive recreation,
processing of farm and forest products, farm and forest services,
schools, churches, community centers scattered non -farm residences and
-35-

1
1
1
1
1
1
1
1
i
1
1
1
1
1
1
1
1
1
HOLLY RIDGE
LAND CLASSIFICATION
El DEVELOPED
QTRANSITIONAL
® CONSERVATION
❑ RURAL
.00 o Sao am uoo +zoo
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S.— n Few
The preparation of this document was ,financed in part through a grant
"- "--- "-- "---'iI Management Program, through funds
?nt Act of 1972, as amended, which is
)n and Coastal Resource Managment,
)spheric Administration.
Figure 7
Stephenson and Assoeiates
A subsidiary of AQuasy stem S. Inc.
Environmental Research, Planning and Management Consultants
Greenville, Ilorth Carolina

' general stores.
5) Conservation Land Use —
Conservation areas provide for the management or the protection of
AEC's, unique, fragile or hazardous areas. While agriculture and
forestry may occur in certain situations such as floodplains and
pocosins, they are to be managed so that the impact on the environment is
minimal.
IB) Spatial Arrangement of Land Uses
' The land use plan shows how land use in the Town of Holly Ridge will
be spatially distributed in the next five to ten years. It is the intent
of the plan to maintain the small town character of Holly Ridge while
' allowing for industrial and commercial land uses to occur in and near the
town.
' 1) Developed Areas —
The developed areas in the land use plan correspond to the existing
incorporated town and where urban spillover has occurred. Developed
areas include residential, commercial, and industrial parcels. All of
the areas have land available for additional development. However, past
growth rates show little promise for substantial development. Still,
these developed areas have the more desirable land for commerce and
industry. The developed areas have the urban services expected for
growth. But, the town must plan to solidify their infrastructure and to
' fill in the available developable land.
2) Transition Areas —
The transition areas in the land use plan are bordering the developed
areas of the town. These areas have land available for development to
occur. The transition areas along the highways leading into Holly Ridge
1 are expected to be sufficient to handle increased commercial growth.
Along the railroad and in the vacant areas there is sufficient land for
increased industrial growth. The land away from the highways and
' railroad will be suitable for increased residential development.
3) Community Areas —
The community land use category is not appropriate for the Holly
Ridge area and is omitted from the land use plan.
' 4) Rural Areas —
The rural areas correspond to the existing rural land uses, which are
' usually located between the poorly drained soils and on the most
productive upland soils. There is a tendency to change rural land uses
in favor of urban development. This has been kept to a minimum level in
' the plan.
—37—

5) Conservation Areas —
The conservation areas are the town's poorly drained areas and along
its small streams. These areas are located mainly in its ETJ area,
although some are in the town. Some areas may have fragile or critical
habitats. Further, these areas could be hazardous because of periodic
flooding.
Conservation areas are set aside because of their natural
characteristics and their long lasting contribution to the citizens of
the community. These areas can be considered greenways or buffer areas
which allow a separation of land uses without conflict between them.
Consequently, they are to be protected or managed so that they will
remain essentially unaltered for generations to come..
C) Relationship of Policies and Land use Categories
There are twenty three policies which have been generated in the land
use plan, which deal with resources protection, resources production, and
town and economic development as they are related to the land use
categories.
' 1) Resource Protection as related to land use —
The policies related to resource protection are formulated to aid in
managing and conserving our natural heritage. By protecting water
resources and farmland the town assures improved water quality in the
environment and the best possible management of the prime farmland.
t2) Resources Production Policies as Related to Land Use —
The policies related to resources production are formulated to aid in
improving water quality of the water courses in the town. Water draining
the land, no matter what its use, is commonly of poor quality. By
improving storm runoff, water and sewer lines, and improving legislation,
' resources production will improve with respect to fishing, farming and
forestry.
' 3) Economic Development as Related to Land Use —
The policies related to economic development are formulated to aid in
' improving the social and economic well being of the town and its
citizens. The policies set forth should revitalize the town. For the
Town of Holly Ridge this is a formidable task, but well worthwhile.
1
-38—

'
TABLE 3
SUMMARY
OF RESOURCES PROTECTION POLICIES
Land Use Categories—
'
D=Developed
T=Transition
R=Rural
C=Conservation
D T R C
Policies
'
x x x x
1)
It is the town's policy to use suitable soils.
as a basis for guiding land development.
t
x x
2)
Although there are no known problems with the
groundwater presently, the town wishes to
preserve and protect all groundwater
'
resources.
x x
3)
The development of this area (The Great Sandy
'
Run Pocosin), especially by Camp LeJeune is
by the town.
opposed
x x
4)
The town's policy is to improve the quality
'
of storm water runoff.
x x
5)
It is the town's policy to get Camp Davis
listed on the National Register as a historic
'
site, preserve this area as such, and possibly
construct a small museum.
'
x x x x
6)
The town will not allow these (sand
quarrying) activities in any areas where it
'
has authority.
x x
7)
It is the policy of the town to improve the
operation of the sewage treatment system.
x x x x
8)
It will be the policy of the town to retain
some of its land as forested areas.
1
—39—

'
TABLE 4
SUMMARY OF
RESOURCE PRODUCTION AND MANAGEMENT POLICIES
Land Use Categories—
'
D=Developed
T=Transition
R=Rural
'
C=Conservation
D T R C
Policies
x
1)
It is the town's policy to prevent any
activities that might change Great Sandy Run's
'
natural state.
x x x x
2)
It is the town's policy to have a good
recreation program.
x
3)
The town's policy will be to preserve
farmland in its jurisdiction.
x x
4)
It is the town's policy to see that growth
occurs in a controlled and orderly manner.
1
—40—

TABLE 5
SUMMARY OF ECONOMIC AND COMMUNITY DEVELOPMENT POLICIES
Land Use Categories—
D=Developed
T=Transition
R=Rural
C=Conservation
D T R C
Policies
x x x
1)
It will be the town's policy to grow
primarly as a residential community.
x x
2)
The town will attempt to make itself
attractive for commercial growth.
x x
3)
The town's policy will be to attract
industries to locate in the area that will
not adversely affect any of its citizens or
their land.
x x
4)
It will be the policy of the town to upgrade
its appearance and to keep the town pleasent
to look at.
x x, x x
5)
It is the policy of the town to support
these federal programs with the exception of
the expansion of Camp LeJeune in the Great
Sandy Run Pocosin.
x x x x
6)
It is the town's policy not to allow the
siting of a large energy facility in the area.
x x x x
7)
The town's policy is to protest the expansion
of Camp LeJeune into it, and in.the Great
Sandy Run Pocosin.
x x
8)
The town's policy will be to provide services
to development as needed.
x x x x
9)
The town's policy is to attract peaple to Holly
Ridge and its jurisdiction.
x x x x
10)
It is the policy of the town to have
controlled growth and annex areas when and
where appropriate.
x x x
11)
The town does not discourage any type of
sound housing as long as it is compatable to
the area.
—41—

VII. CONCLUSION
Organization and Management for the Land Use Plan
The successful completion of the land use plan does not occur with
its adoption. The land use plan is merely the continuation of the
planning process. Its success can only be measured years from now, not
today or next month. Thus, a plan to manage the planning program is
essential for the planning process to continue.
In order to effectuate the plan a considerable amount of work is
required. Further, it will require energetic leadership and a sub—
stantial amount of citizen participation. A list of the committees, task
forces and legislative and civic groups are indicated below according to
the policy categories. Each of these groups must be in place if they do
not already exist. The Town Planning Board is considered to be the
coordinating group at the center of this planning effort.
Protection — Town Planning Board
Town Council
N.C. Division of Land Resources
N.C. Division of Environmental Management
N.C. Division of Health Services
N.C. Division of Air and Water Resources
N.C. Division of Archives and History
N.C. Wildlife Resources Commission
N.C. Legislature
Onslow County Health Department
Onslow County Soil and Water Conservation Dist.
Onslow County Historical Society
Onslow County Emergency Management Office
Holly Ridge Camp Davis Committee
U.S. Forest Service
U.S. Department of Defense/U.S. Navy
U.S. Congress
Production — Town Planning Board
Town Council
Onslow County Recreation Department
Onslow County Soil and Water Conservation Dist.
N.C. Wildlife Resources Commission
N.C. Legislature
U.S. Soil Conservation Service
U.S. Department of Defense/U.S. Navy
U.S. Congress
Development — Town Planning Board
Town Council
Holly Ridge Development Committee
' Holly Ridge Camp Davis Committee
Holly Ridge Beautification Committee
' —42—

U.S. Department of Defense/U.S. Navy
' U.S. Congress
The involvement by the foregoing gro.ups, particularly the planning
board, will create a movement toward an ongoing revitalization effort,
' planning process and growth management agenda in Holly Ridge. It must be
realized that the involvement must be well organized. Further, numerous
plans and documents will be needed to aid in achieving a fully
operational planning and revitalization effort by the town.
Summary
To fully realize the importance of the land use plan and the
planning process will take years. This means leadership by the planning
board and participation by the citizens of Holly Ridge must be
' continuous, as Town Boards come and go. It also means the willingness
and commitment to achieve or work for the common good in an organized
manner. In five years an assessment of how successful the Town of Holly
' Ridge has been will be made. It is hopeful that the citizens of the Town
of Holly Ridge will be better off then than now.
1
1 —43—

VIII AMENDING THE PLAN
Special and changing circumstances may sometime require a change in
' the land use plan. A certain policy or land classification may need an
amendment to suit a peculiar situation within the Town of Holly Ridge or
its extraterritorial jurisdiction. The land use plan may be amended as a
whole by a single solution or in parts by successive resolutions. The
successive solutions may address geographical sections, county divisions,
or functional units of subjective matter. To change all or some part of
the land use plan, the amendment process must be in accordance with a
series of procedures. These include a local public hearing, a notice to
the Coastal Resources Commission (CRC), and approval by the CRC.
A) Public Hearing
The land use plan may be amended only after a properly held public
' hearing. Notice of this hearing must appear at least 30 days prior to
the date of the hearing and must list the date, time, place, and proposed
action. This should be available for viewing at a particular office in
i the town hall and must appear at least once in the local newspaper.
Copies of the proposed amendment should be made available at the time of
the public hearing.
1 B) Notice to the Coastal Resources Commission
The local government proposing a land use plan amendment shall
' provide information to the executive secretary of the CRC. This
information should include a notice of the public hearing, a copy of the
proposed amendment, and the reasons for the amendment. This should be
delivered to the executive secretary or his designee no less than 30 days
prior to the public hearing.
C) Adoption Procedures
After the hearing, the locally approved amendments should be
delivered to the executive secretary of the CRC in the form that they
will appear in the land use plan. The CRC will review the changes at the
first regulary scheduled meeting held after the executive secretary has
received notification of the amendment. After review of the changes, the
' CRC shall approve, disapprove, or conditionally approve the land use plan
amendments. Should the amendments be disapproved, the CRC will provide
an explanation of the reasons for its disapproval and offer suggestions
as to how the amendment might be changed so approval could be granted.
Final amendments to the text or maps shall be incorporated in context in
the land use plan and shall be dated to indicate the date the amendment
became final. The amended land use plan shall be maintained as required
by G.S. 113A-110(g).

' APPENDIX A
STORM HAZARD PLANNING AND MITIGATION
1 A) Introduction
All land use updates are required to mitigate and plan for storm
hazards. Storm hazards are far more serious than commonly perceived, but
previous storms are very vivid in the minds of many older coastal
residents. In order to effectively plan for storm hazards and their
periodic reoccurrence, a comprehensive approach is necessary. This
involves combined efforts of the local planning board, the fire/rescue,
law enforcement and the Onslow County Emergency Management Coordinator in
the Emergency Operation Center.
There are numerous natural hazards but, due to many factors, only a
few are likely to occur in Holly Ridge. Of partucular concern for Holly
Ridge is the potential for high winds such as hurricanes and tornados,
and heavy rains bringing flooding of lowlying areas. Although Holly
Ridge is located inland from coastal waters, flooding of small streams
and poorly drained areas is not an unlikely phenomenon. In order to
effecively plan for storm hazards and their periodic reoccurrence, a
' comprehensive approach is necessary. This involves the combined efforts
of the local planning board and the Emergency Management Coordinator in
the Emergency Operating Center of Onslow County.
There are typically four parts of a comprehensive emergency
management plan. The four parts are defined as:
1) Mitigation — the activities which actually eliminate or
reduce the probablility or occurence of a disaster caused by a hazardous
event. It also includes land use planning and other long—term activities
which reduce the effets of hazardous events.
2) Preparedness — the activities that are necessary when
mitigation measures have not, or cannot, prevent disasters caused by a
hazardous event. This involves the emergency management team to assist
in saving lives and property and to enhance response operations.
3) Response — these activities follow an emergency or disaster.
Of primary concern is emergency assistance to casualties. Also, the
emergency management team seeks to reduce secondary damage and to speed
recovery operations.
4) Recovery — these activities involve short and long term
operations. In the short term, the emergency management team attempts to
restore all systems to normal operation. This includes vital life
supporting systems. In the long term, recovery involves return to life
' at normal or improved levels. This step should involve the local
planning process.
In general, mitigation and long—term recovery require the town
planning process, while preparedness, response and short—term recovery
—4 5—

fall within the responsibility of the Emergency Management Coordinator.
Coordination between emergency management and the town planning officials
is mandatory for a successful mitigation of hazards.
The Division of Coastal Management encourages local governments to
focus on three phases of hazards planning. These include storm hazard
mitigation, post —disaster recovery and evacuation plans. In storm hazard
mitigation, it is recommended that an inventory of hazardous areas be
complated. The intent of this inventory is to put into perspective the
level of existing development within the hazardous areas. It is designed
to inform local officials of what proportion of the population, housing,
and county tax base may be subject to damage in the event of a disaster.
Policies should be formulated to deal with redevelopment in the hazardous
areas.
A post —disaster reconstruction plan is designed to operationalize
clean—up procedures after the storm. This involves the immediate
clean—up and plans for long—term redevelopment. A recovery task force
should be established to schedule priorities for redevelopment. Repair
and reconstruction guidelines should be established. This phase of the
plan requires coordination of the local government and emergency
management officials.
1 The local government is required to evaluate the adequacy of
evacuation routes used in emergency situations. The routes should be
critically assessed for their efficient use. If the required evacuation
time exceeds the standard warning time as provided by the National
Weather Service, officials should consider adopting policies which would
improve the adequacy of the routes. This step may involve coordination
with the Division of Emergency Management and the Department of
Transportation.
B) Hazard Mitigation
The first step of hazard mitigation is to identify the frequency and
magnitude of hazards in the town. The second step is to conduct a
vulnerability analysis. Both of these steps have been accomplished by
' Onslow County. The third step includes general and specific measures
for minimizing damage that is likely to occur. The general measures
include, but are not limited to the following:
' 1) building code
2) zoning ordinance
3) tax incentive/disincentive
4) land use management
5) safety code
6) preventative health care
' 7) public education
8) building use regulations,
9) resource allocations, and
10) other rules and regultions
—46—

11
Most of the general measures involve adoption, compliance and
enforcement by the the town. The role of the town board is leadership in
the adoption process and coordination among the particpating agencies.
The planning board is also involved in the compliance and enforcement of
the measures. The speciifc measures include, but are not limited to, the
following:
1) Flood Measures
a) Stream channelization
b) Construction and protection of farm ponds, retention
basins and reservoirs
c) Reforestation and preventing deforestation
d) Land conservation techniques such as contour plowing,
grass waterways, plow/plant cultivation and cover crop
plantation, and
e) Flood —proof buildings
2) High Winds
a) Roof anchors
' b) Window size and thickness codes
c) Mobile home tiedowns
d) Windbreaks
' e) Forest and farm management, and
f) Real estate disclosure laws
1 3) Erosion
a) Wetlands protection
b) Swamp forest protection
c) Construction and protection of breakwaters and levees,
and
d) Public information programs
1 4) Preventative Health
a) School innoculation
b) Rodent/insect eradication
c) Water purification
d) Sanitary waste disposal
e) Health codes/laws/inspections, and
' f) Public health education
Several of the specific measures are currently in operation in the
county. Others are functioning, but need improvement. The county may
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choose to incorporate the other measures into their current regulations.
Storm hazard mitigation requires coordination of many agencies for
successful operation. A comprehensive effort is necessary to fully
realize a mitigation plan and its relation to the overall emergency and
county planning processes.
1) Identification of Hazard Areas
As mentioned before Holly Ridge does not have all of the hazards that
many coastal areas have. This is due to the fact that the town is
located on a ridge that is elevated above the nearby coastal areas and
there are no large water bodies or major streams in the town. The two
hazards that are most likely to affect the town are high winds and heavy
rains, consequently a map showing these kinds of hazards would be
inconsequential.
2) Risk of Damage in Hazard Areas
The level of damage to life and property in the town is considered to
be relatively small. There is little chance of flooding in the town
because of the topography. High winds and heavy rains from a hurricane
could cause damage but the town is somewhat protected by being
approximately ten miles from the ocean.
3) Estimated Severity of Possible Hazard Damage
The potential level of damage to life and property in the town is
considered relatively small. The town would receive some wind damage
from hurricanes powerful enough to be rated above a Force 3 on the
Saffir/Simpson Hurricane Scale. These storms would have wind speeds in
excess of 130 MPH.
It is likely that some roads could become flooded where they bridge
streams or where culverts are located. It is also likely that the
basements of the houses and businesses could be flooded. Generally,
there are very few. structures, if any, in Holly Ridge that would be
flooded.
4) Anticipated Development in Hazard Areas
The town does not have any hazard areas and cannot be mapped.
5) Existing Hazard Mitigation Policies and Regulations
At the present time, the town building code and the existing land use
plan contribute to mitigation policies of the town, but the Onslow County
Disaster Relief and Assistance Plan is the major document to mitigate
hazards. There are also state and federal regulations in effect in the
county.

C) Post —Disaster Reconstruction Plan
A post —disaster plan will permit Holly Ridge to deal with the
' aftermath of storms in an organized and efficient manner. The plan
provides the mechanisms, procedures, and policies that will enable the
county to learn from its storm experiences and to rebuild in a wise and
' practical manner.
A post —disaster reconstruction plan encompasses three distinct
reconstruction periods:
a) The emergency period — the reconstruction phase immediately
' after a storm. The emphasis is on restoring public health and
safety, assessing the nature and extent of storm damage, and
qualifying for and obtaining whatever federal and state
assistance might be available.
' b) The restoration period — the weeks and months following a
storm disaster. The emphasis during this period is on restoring
community facilities, utilities, and essential business so the
town can return to normal activities.
c) The replacement period — the period during which the
community is rebuilt. The period could last from months to
years depending on the nature and extent of the damages
incurred.
It is important that local officials clearly understand the joint
federal —state —local procedures for providing assistance to rebuild after
a storm so that local damage assessment and reconstruction efforts are
carried out in an efficient manner that qualifies the community for the
' different types of assistance that are available. The requirements are
generally delineated in the Disaster Relief Act of 1974 (P.L. 04-288)
which authorizes a wide range of financial and direct assistance to local
' communities and individuals. The sequence of procedures to be followed
after a major storm event is as follows:
a) Local damage assessment teams survey storm damage within the
' community.
b) Damage information is compiled and summarized and the nature
and extent of damage is reported to the North Carolina Division
' of Emergency Management (DEM).
c) DEM compiles local data and makes recommendations to the
Governor concerning state actions.
d) The Governor may request a Presidential declaration of
"emergency" or "major disaster". A Presidential declaration
makes a variety of federal resources available to local
t communities and individuals.
e) Federal relief assistance provided to a community after an
"emergency" has been declared typically ends one month after the
initial Presidential declaration. Where a "major disaster" has
' been declared, federal assistance,for "emergency" work typically
ends six months after the declaration and federal assistance for
"permanent" work ends after 18 months.
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Federal disaster assistance programs previously provided aid for
communities to rebuild in the same way as existed before the disaster
occurred. This policy tended to foster recurring mistakes. However,
' recent federal policy has started to change the emphasis of disaster
assistance programs. Specifically, Executive Order 1108 (Floodplain
Management) directs all federal agencies to avoid either directly or
indirectly supporting future unwise development in floodplains, and
' Section 406 of the Disaster Relief Act can require communities, as a
prerequisite for federal disaster assistance, to take specific actions to
mitigate future flood losses.- Holly Ridge has been provided a
' comprehensive listing of the federal disaster assistance programs that
may be available following a major storm.
D) Organization of Local Damage Assessment Team
A local damage assessment team should be in place and include
individuals who are qualified to give reliable estimate of the original
value of structures, an estimated value of sustained damages and a
description of the repairs. The logistics involved in assessing damage
to Holly Ridge after a major storm will possibly necessitate the
organization of several damage assessment teams. The Holly Ridge
Disaster Relief and Assistance Plan is in place and provides the county
with such teams.
The Emergency Management Coordinater should immediately undertake a
recruitment effort at secure the necessary volunteers and to establish a
training program to familiarize the members of the damage assessment team
with required damage classification procedures and reporting
requirements. It is suggested that Holly Ridge assume the responsibility
for developing and implementing a training program for both county damage
assessment teams and the town damage assessment team. In establishing
the assessment teams, it might be very difficult to fill certain
positions, because the services of some individuals will likely be in
great demand after a storm disaster. The Emergency Management
Coordinator should establish an active "Volunteer File" with standing
instructions on where to report following a storm. Damage assessment
forms and procedures should be prepared and distributed to volunteers as
part of the training program.
E) Damage Assessment Procedures and Requirements
Damage assessment is defined as a rapid means of determining a
realistic estimate of the amount of damage caused by a natural or manmade
disaster. For a storm disaster, it is expressed in terms of: a) number
of structures damaged, b) magnitude of damage by type of structure, c)
estimated total dollar loss and f) estimated total dollar loss covered by
insurance.
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' After a major storm event. members of the Damage Assessment Team
should report for a briefing from the Emergency Management Coordinator.
In Holly Ridge the Emergency Management Coordinator should establish
' field reconnaissance priorities according to the extent of damage and
where landfall occurred. Because of the potentially large job at hand,
the limited personnel resources available to conduct the assessments, and
the limited time within which the initial assessment must be made, the
' first phase of the assessment should consist of only an external visual
survey of damaged structures. A more detailed second phase assessment
can be made after the initial damage reports are filed.
' The initial damage assessment should make an estimate of the extent
of damage incurred by each structure and identify the cause such as wind,
' flooding, or wave action of the damage to each structure. This first
phase assessment should be made by a "windshield" survey.
Damaged structures should be classified in accordance with the
' suggested State guidelines as follows:
a) Destroyed (repairs would cost more than 80 percent of value).
' b) Major (repairs would cost more than thirty percent of the
value).
c) Minor (repairs would cost .less then thirty percent of the
value, but the structure is currently uninhabitable).
d) Habitable (some minor damage, with repairs less than fifteen
percent of the value).
' It will be necessary to thoroughly document each assessment. In many
cases, mail boxes and other information typically used to identify
specific structures will not be found. Consequently, the damage
assessment team must be provided with tax maps, (aerial photographs with
property line overlays) other maps and photographic equipment in order to
record and document its field observations. Enough information to
' complete the damage assessment worksheet must be obtained on each damaged
structure.
' The second phase of the damage assessment operation will be to
estimate the value of the damages sustained. This operation should be
carried out under the direction and supervision of the Emergency
Management Coordinator. This team should be incorporated into the plan.
' In order to estimate total damage values it will be necessary to have the
following information available for use at the Emergency Management
Office:
a) A set of property tax maps (including aerial photographs)
identical to those utilized by the damage assessment field
team.
b) County maps delineating areas assigned to each team.
c) Copies of all county property tax records.
In order to produce the damage value information required, the
following methodology is recommended:
a) The number of businesses and residential structures that have
been damaged within Holly Ridge should be summarized by damage
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1
classification category.
b) The value of each damaged structure should be obtained from
the marked set of tax maps and multiplied by the following
percentages for appropiate damage classification category:
'
i) Destroyed — 100%
ii) Major Damage — 50%
iii) Minor Damage (uninhabitable) — 25%
iv) Habitable — 10%
c) The total value of damages for the unincorporated areas of
the town should then be summarized.
d) The estimated value loss covered by hazard insurance should
then be determined.
e) Damaged assessment reports should be obtained and the data
should then be consolidated into the single county damage
'
assessment report which should be forwarded to the appropriate
state officials.
f) Damage to public roads and utility systems should be
estimated by utilizing current construction costs for facilities
by lineal foot.
' The damage assessment is intended to be the mechanism for estimating
overall property damage in the event of a storm disaster. The procedure
recommended above represents an approach for making a relatively quick,
realistic damage estimate after a storm. Damage assessment is provided
' for in the Holly Ridge Damage Relief and Assistance Plan.
F) Organization of Recovery Operations
' Damage assessmennt operations as provided in the county disaster plan
are oriented to take place during the emergency period. After the
emergency operations to restore public health and safety and the initial
' damage assessments are completed, the guidelines suggest that a recovery
task force to guide restoration and reconstruction activities during a
post —emergency phase which could last from weeks to possibly more than a
year. The responsibilities of the recovery task force will be:
1) Establishing an overall restoration schedule.
2) Setting restoration priorities, in advance, by definition.
' 3) Determining requirements for outside assistance and
requesting such assistance when beyond local capabilities.
4) Keeping the public informed.
5) Keeping the appropriate State officials informed using
situation and damage reports.
6) Assembling and maintaining records of actions taken and
expenditures and obligations incurred.
7) Proclaiming a local "state of emergency" if warrented.
8) Commencing cleanup, debris removal and utility restoration
activities which would include coordination of restoration
' activities undertaken by private utility companies.
9) Undertaking repair and restoration of essential public
facilities and services in accordance with priorities developed
' through the situation evaluations.
10) Assisting private businesses and individual property owners
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I
in:
a) obtaining information on the various types of assistance
that might be available from federal and state agencies.
b) in understanding the various assistance programs, and
c) applying for such assistance. When a major storm does
eventually hit Holly Ridge and major damages occur,
consideration should be given to establishing an assistance
team to carry out the above functions as long as there is a
need to do so.
A sequence and schedule for undertaking local reconstruction and
restoration activities is presented. The schedule was deliberately left
vague because specific reconstruction needs will not be known until after
a storm hits and the magnitude of the damage can be assessed.
G) Reconstruction Operations
'The Holly Ridge Reconstruction Task Force should be the following
individuals:
1) Town Manager
2) Holly Ridge Town Clerk
3) Chief County Tax Appraiser
4) County Finance Director
5) Town Building Inspector
H) Temporary Development Moratorium
Under certain circumstances, interim development moratoriums can be
used in order to give a local government time to assess damages, to make
sound decisions and to learn from its storm experiences. Such a
moratorium must be temporary and it must be reasonably related to the
public health, safety and welfare.
It is not possible to determine prior to a storm whether a temporary
development moratorium will be needed. Such a measure should only be
used if damage in a particular area is very serious and if redevelopment
of the area in the same manner as previously existed would submit the
residents of the area to similar public health and safety problems. The
town's policy regarding the proclamation of temporary development
moratoriums shall be to:
Require the Onslow County Emergency Management Office to assess
whether a Temporary Development Moratorium is needed within one week
after the damage assessment process is completed. Such an assessment
should clearly document why such a moratorium is needed, delinate the
specific uses that would be affected by the moratorium, propose a
specific schedule of activities and actions that will be taken during the
moratorium period, and establish a specific time period during which the
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I
moratorium will be in effect.
I) Adequacy of the Onslow Disaster Relief Plan
The purpose of the Disaster Relief Plan is to prevent or lessen the
effect of disasters on the people and property in Holly Ridge. The plan
for Onslow County adopted in 1983, of which Holly Ridge is a part, is
considered adequate in its intent, scope and composition, in so far as
' Holly Ridge is concerned.
J) Adequacy of the Onslow County Hurricane Evacuation Plan
The purpose of the evacuation plan for Onslow County is to provide
' for an orderly and coordinated evacuation to minimize the effects of
hurricanes on residents and visitors. The plan's scope, organization,
concept of operation, warning and alert system, increased readiness
action checklist, evacuation areas, routes and shelter location, reentry
procedures, responsibility groups, communications and public information
activities, are considered adequate. It must be realized, however, that
this is a plan for Onslow County as a whole, and not a specific plan for
Holly Ridge. Further, it is a plan for local use and not a plan to
shelter an excessive number of visitors or evacuees from other areas.
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I
APPENDIX B
STATE AND FEDERAL DEVELOPMENT REGULATING AGENCIES
I) State Level
A) Department of Natural Resources and Community Development (DNRCD)
-permits to discharge surface waters or operate wastewater treatment
plants or oil discharge permits; NPDES permits (G.S. 143-215)
1)
Division
of Coastal Management
-permits
to dredge and/or fill in estuarine waters, tidelands, etc
'
(G.S.
113-229).
-permits
to undertake development in Areas of Environmental Concern
(G.S.
113A-118).
2)
Division
of Land Resources
r
-permits
to alter or construct a dam (G.S. 143-215.66).
-permits
to mine (G.S. 74-51).
-permits
to drill exploratory oil or gas wells (G.S. 113-381).
'
-permits
to conduct geographical exploration (G.S. 113-391)
-sedimentation
erosion control plans for any land -disturbing
activity
over
one acre (G.S. 113A-54).
3)
Division
of Environmental Management
'
-permits
for septic tanks with a capacity over 3,000 gallons/day
(G.S.
143-215.3).
-permits
for withdrawals of surface or ground waters in capacity use
areas
(G.S. 143-215.15).
-permits
for air pollution abatement facilities and sources (G.S.
143-21
5. 108).
-permits
for construction of complex sources; e.g. parking lots,
'
subdivisions.
stadiums, etc. (G.S. 143-215.109).
-permits
for construction of a well over 100,000 gallons/day (G.S.
'
87-88)
.
4)
Secretary
of NRCD
-permits
to construct an oil refinery
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B) Department of Administration
-easements to fill where lands are proposed to be raised above the
normal high water mark of navigable waters by filling (G.S. 146.6c)
C) Department of Human Resources
-approval to operate a solid waste disposal site or facility (G.S.
' 130-166.16).
-approval for construction of any public water supply facility that
furnishes water to ten or more residences (G.S. 130-160.1).
II) Federal Level
A) U.S. Army Corps of Engineers
-permits that are required under Section 9 and 10 of the Rivers and
Harbors Act of 1899; permits to construct in navigable waters.
-permits that are required under Section 103 of the Marine
Protection, Research and Sanctuaries Act of 1972
-permits that are required under Section 404 of the Federal Water
Pollution Control A'ct of 1972; permits to undertake dredging and/or
1 filling activities.
1 B) U.S. Coast Guard
-permits for bridges, causeways, pipelines over navigable waters;
required under the General Bridge Act of 1946 and the Rivers and Harbors
Act of 1899.
-deep water port permits.
C) Department of the Interior Geological Survey Bureau of Land
Management
-permits required for off -shore drilling.
approvals of OCS pipeline corridor rights -of -way.
D Nuclear Y
Re ulator Commission
9
-licenses for siting, construction and operation of nuclear power
plants; required under the Atomic Energy Act of 1954 and Title II of the
Energy Reorganization Act of 1974.
' -56-

E) Federal Energy Regulatory Commission
-permits for construction, operation and maintenance of interstate
1 pipelines facilities required under the Natural Gas Act of 1938.
-orders of interconnection of electric transmission facilities under
Section 202 (b) of the Federal Power Act.
-permission required for abandonment of natural gas pipeline and
' associated facilities under Section 7C (b) of the Natural Gas Act of
1938.
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