1993 Sketch Land Use Plan Update-1993

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DCM COPY
DCM COPY
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Division of Coastal Management
O . F
NAVASSA
1993 SKETCH LAND USE
PLAN UPDATE
LOCAL ADOPTION DATE: OCTOBER 14, 1993
CRC CERTIFICATION DATE: NOVEMBER 19, 1993
Prepared by
Hayes & Associates

LJ
TOWN OF NAVASSA
1993 SKETCH
LAND USE PLAN UPDATE
TOWN COUNCIL
Honorable Louis S. Brown, Mayor
Walter Williams, Mayor Pro-Tem
Eulis A. Willis
Thomas V. Merrick
Jimmy Lewis
Roosevelt Toomer
NAVASSA PLANNING BOARD
Craig Suggs, Chairman
Melvin Walker
Terryce Willis
William White
Linda Bryant
TOWN STAFF
Charlenna R. Alston, Town Clerk
PLANNING CONSULTANT
Margaret H. Hayes
HAYES & ASSOCIATES
2222 Mimosa Place
Wilmington, NC 28403
[phone]
FUNDING AGENCY
The preparation of this land use planning document with
associated maps was financed in part through a grant
provided by the North Carolina Coastal Management Program,
• through funds provided the Coastal Zone Management Act of
1972, as amended, which is administered by the Office of
Ocean and Coastal Resource Management, National Oceanic and
Atmospheric Administration.

•
TOWN OF NAVASSA 1993 SKETCH LAND USE PLAN UPDATE
TABLE OF CONTENTS
SECTION PAGE
Section I: Introduction 1
Section II: Present Conditions 5
Section III: Land Suitability 12
Section IV: Constraints - Capacity of 20
Community Facilities
Section V: Land Use Policy Statements 24
Section VI: Land Classification System 41
Appendix 45
LIST OF MAPS
Map 1: Location of the Town of Navassa, NC 2A
Map 2: Town of Navassa Existing Land Use 8A
Map 3: Town of Navassa Land Classification Map 41A
LIST OF TABLES
Table
2.1:
Year-round Population of the Navassa,
6
1977-1992
Table
2.2:
Building Permits Issued for New
6
Development in Navassa, 1987-1992
Table
2.3:Projected
Population Growth for
7
Navassa, 1992-2003
Table
2.4:
Town of Navassa Real Property
10
Valuations, 1987- 1992
Table
3.1:
Soil Characteristics for Navassa
15A
Table
3.2:
Classification of Water Systems
17
in Navassa
• Table
4.1:
Town of Navassa Water System
20
Utilization, 1989-1992
Table
4.2:
Average Daily Traffic Counts for
22
Navassa, 1981-1991

•
SECTION 1: INTRODUCTION
A. PREVIEW
The North Carolina Coastal Area Management Act of 1974,
better known as "LAMA", requires that the 20 coastal
counties and their respective municipalities prepare
land use plans. These land use plans, although developed
according to state -provided guidelines, allow local
governments to establish and enforce policies to guide and
manage growth and development of their communities.
Such is the case with the Town of Navassa. The Town of
Navassa was incorporated in 1977 and is located in
northeastern Brunswick County along the juncture of the Cape
Fear and Brunswick Rivers as shown on Map 1. The initial
sketch land use plan was prepared in 1982 and updated in
1987. As indicated in the previous plans, population growth
and development which requires an increasing utilization of
land and resources can lead to undesirable consequences if
the land and community facilities are unregulated or
improperly managed.
• This planning document will closely adhere to the CAMA
planning guidelines as contained in Subchapter 7B (as
amended) of the State Administrative Codes. Four major
components which are required to be in the sketch land use
plan are as follows:
(1) Data Collection and Analysis: This is an analysis
of existing trends and patterns within the Town's
jurisdiction as far as the population, the economy, land
use, community facilities, environmental, and other
resources. Section II of this report examines the present
conditions of Navassa, Section III describes the
environmental constraints, and Section IV examines the
constraints of the community facilities in terms of
projected growth.
(2) Existing land Use Mari: Map 2, which is included in
this report, shows the existing land use plan of Navassa as
of January 1993.
(3) Policy Discussion and Policy Statements:
Section V states the policy of the Town on a number of
important issues.
(4) Land Classification Map: Map 3 is the Land
• Classification Map and is included in Section VI. This map
is intended to be a reflection of the Town's land use
policies, based on the projected density of development, for
all the lands within its jurisdiction.

• 2
A number of data sources were utilized in the effort to
analyze the population, housing,_ economic, environmental,
and land use conditions. Various state, county, and local
agencies were contacted. Technical reports, previous land
use plans, the 1980 and 1990 Census, and other documents
were reviewed as well. Two public meetings and a survey of
town residents were conducted in order to obtain public
input.
B. PROGRESS IN IMPLEMENTATION OF 1987 PLAN POLICY
As part of the data collection process, the 1987
policy section was reviewed in order to determine what
progress has been made in addressing the stated policy and
goals outlined in the earlier plan. A list of policies and
goals is provided and the status of each policy is stated;
that is to say, whether the policy has been accomplished, is
in the process of being accomplished, or is still something
that needs to be done.
STATUS OF 1987 POLICIES AND GOALS
1. Secure new industry by promoting the Town as an UDAG
• community and locate new industry north of SR 1432.
STATUS: On -going concern. The Town of Navassa has pursued
county, state, and federal assistance with industrial
recruitment as well as has advertised in business journals.
Whereas the federal Urban Development Action Grant Program
(UDAG) has been eliminated, the Town will continue to seek
other state and federal assistance to attract new industry.
2. Establish community -wide sewer system.
STATUS: On -going concern. The Town of Navassa contends
that a community -wide sewer system will enhance both
residential and industrial development. As of the Fall of
1993, the Town of Navassa is conducting preliminary
discussions with the Towns of Leland and Belville about
developing a regional sewer system.
3. Provide improved water system.
STA TUS: In 1989, Navassa began to contract with Leland
Sanitary District in order to obtain treated water from the
Brunswick County Water System thereby reducing the Town's
operating cost.

2A
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NAVASS A
C J

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4. Establish public waterfront access.
STATUS: In 1990, the Town of Navassa built the Davis Creek
Waterfront Access which was funded by a CAMA grant. Within
a few years, the Town of Navassa plans to complete
additional planned improvements such as adding nature
trails, picnic tables, and gazebos.
5. Improve local and primary roads by preparing and adopting
a Local Thoroughfare Plan, by arranging for the NCDOT to
provide directional signs to Navassa, and by eliminating
substandard dirt alleys with CDBG funds.
STATUS:
a. Thoroughfare Plan: On -going concern. Navassa is part of
the Greater Wilmington Thoroughfare planning process which
is continuall-y being evaluated. A local connector study
evaluating the town street system has not been completed.
b. Directional Signs: On -going concern. Directional signs
for Navassa still must be placed at the Highway 74-76
interchange.
c. Dirt Alleys and CDBG grant: On -going concern. The Town
policy is to pave all dirt roads. Some dirt roads remain.
6. Location of future development guided by zoning and
health department regulations.
STATUS: The Town of Navassa has a zoning ordinance and
subdivision regulations as well as abides by the Brunswick
County Health Department regulations.
7. Study the feasibility of annexation towards Leland along
SR 1435.
STATUS: An annexation proposal for an area along SR 1432 is
being prepared and this annexation may occur in 1994.
8. Establish community -wide street lighting system if
financially feasible.
STATUS: On -going concern.
9. Navassa Planning Board name all unnamed streets and
street signs will be posted throughout the Town.
STATUS: Accomplished. Some street signs still need to be
posted or replaced.

10. Investigate feasibility of building community center
with federal and state grants..
STATUS: On -going concern.
11. Encourage private developers to build apartments or
duplexes.
STATUS: On -going concern.
12. Contact North Carolina Housing Finance Authority about
providing housing in Navassa.
STATUS: On -going concern.
•
I�
LJ

SECTION II: PRESENT CONDITIONS
A. POPULATION
1. Population Trends and Estimates
The beginning point of analysis for any land use plan
is an assessment of the population trends and patterns.
Many land use and growth management policies relate directly
to the number of people expected to use the land and/or
public facilities. Navassa is a year-round residential
community and does not experience seasonal fluctuations in
population as resort communities do. Moreover, Navassa's
town limits have remained the same since its incorporation
because there have not been any annexations. The town does
not have an extra -territorial planning area.
Navassa was incorporated in 1977 and had a population
of 429 residents. According to the 1980 United States
Census, the Town had grown to 439 residents living in 149
houses for an occupancy ratio of 3.0 persons per household.
Based on the 1990 United States Census, Navassa had 445
residents living in 144 houses for an occupancy ratio of 3.1
persons per household. This represents a 1.4 percent
increase in population but a 3.4 percent decrease in the
housing stock between the 1980 and 1990 census counts. Based
on the Office of State Planning 1991 population estimates,
Navassa had a July 1, 1991 population of 453.
It should be noted that Town officials dispute the 1990
United States Census figures because the population and
housing counts appear too low. This contention is supported
by population estimates based on the housing count obtained
from the November 1992 land use survey as well as building
permit data. As of November 1992, Navassa had 172 single-
family dwelling units of which 164 were occupied and 8 were
vacant. Six vacant residential structures deemed unsuitable
for occupancy were not included in the total housing count.
Consequently, the 1992 population estimate was derived as
follows:
164 occupied housing units x 3.1 persons per household=
508 Navassa residents
Navassa's growth from 1977 thru 1992 is summarized on
Table 2.1. Between the time of incorporation in 1977 and
the November 1992 land use survey, Navassa's population grew
by 79 residents or by 18.4 percent during this 15 year
period. Most of this growth may be attributed to new
residential development which occurred between 1987 and
1992. During this period, the Brunswick County Planning
Department issued 23 permits for new single-family
residential development as shown on Table 2.2. Most of this
new residential development occurred along Lake Shore Drive

and Church Street. The housing count of the 1990 census
must have been too low by approximately 10 housing units to
reflect this moderate growth thereby resulting in the
undercount of the Town's population.
TABLE 2 1: YEAR-ROUND POPULATION FOR THE TOWN OF NAVASSA,
1977-1992
HOUSING
PERSONS PER
YEAR
POPULATION
COUNT
HOUSEHOLD
1977
429
-----
---------
1980
439
148
3.0
1990
445
144
3.1
1992
508
164
3.1
Sources: 1987 Sketch Land Use Plan, 1980 and 1990 United
States Census, 1992 Land Use Survey
TABLE 2.2: BUILDING PERMITS ISSUED FOR NEW DEVELOPMENT IN
NAVASSA, 1987 - 1992
YEAR NEW RESIDENTIAL NON-RESIDENTIAL
1987
3
0
1988
5
1
(Lumber yard)
1989
6
1
(Lumber yard)
1990
2
0
1991
3
1
(Church)
1992
4
0
TOTAL 23 3
Source: Brunswick County Planning Department
Navassa's moderate growth rate of 18.4 percent did not,
however, keep pace with that of the surrounding township or
Brunswick County. Between 1980 and 1990, the population of
the Northwest Township in which Navassa is located grew by
60.1 percent while Brunswick County's population grew by
42.5 percent.
The United States Census reveals the following
demographic information about town residents. Ninety-two
percent of Navassa's residents are minorities. The per
capita income for Navassa residents was $6,588 in 1990 and
twenty percent of all Navassa residents were below the
• poverty level. Thirty percent of all persons 16 years or
older had a mobility or self -care limitation. In 1990, 12.9
percent of the civilian labor force was unemployed. The
percent of persons age 25 and over who had obtained a high
school degree was 47.3 percent for Navassa residents.
Navassa residents are long-term residents of the area.

Nearly 72 percent of the residents had lived in the same
house since 1985 and nearly 90_percent were born in North
Carolina.
2. Population Projections
An important aspect of the planning process is
forecasting the future population of the area.
Unfortunately, population projections are the least precise
element of a land use plan since so many factors such as
annexation, the economy, and building trends directly impact
demographic projections.
As previousily mentioned, Navassa experienced a
population increase of 18.4 percent in 1992 since its
incorporation in 1977. This represents an annual population
increase of 1.2 percent. For projection purposes, it was
assumed that this growth rate would continue for the next 5
to 10 years. Table 2.3 shows the population projections
from 1993 through the year 2003. Based on these projections,
it is anticipated that Navassa's population will be 549 in
1998 and 586 in 2003. Basically, Navassa's population will
increase by 2 households per year. These projections are
based on the current town limits remaining the same during
the next 5 to 10 years. Of course, if the proposed
annexation and/or additional annexations are completed, then
the Town's population will increase significantly more.
TABLE 2.3: PROJECTED POPULATION GROWTH FOR NAVASSA.
1992 - 2003
YEAR
PROJECTED POPULATION
1992
508
1993
515
1994
521
1995
528
1996
535
1997
542
1998
549
1999
556
2000
563
2001
571
2002
578
2003
586
Source: Projections by Hayes & Associates
•

TOWN OF NAVASSA POPULATION
550
z
O
g 500
450
400
1977 - 2003
1975 1980 1985 1990 1995
YEAR
2000
SOURCE: US CENSUS, 1987 LAND USE PLAN,
PROJECTIONS BY HAYES & ASSOCIATES
2005

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C7
B. EXISTING LAND USE
Land use for Navassa has not changed much since the
1987 Plan was prepared. Within the Town's corporate limits
are approximately 1,553 acres of which about 20 percent of
the land has been developed. Notice Map 2, the 1993 Land
Use Map, which shows the existing land uses in Navassa.
Since 1987 the major change in land use was the development
of the Klarbane Estates subdivision near the western edge of
Navassa. Land uses in Navassa include industrial,
residential, limited commercial uses, and institutional
uses.
The industrial area north of the residential portion of
Navassa has remained relatively unchanged since 1987. Three
industrial sites have continued operations at their previous
locations. The Davis Yard CSX provides freight train
facilities and employs 60 workers. Bolivia Lumber
manufactures skids and has 20 employees. The Infinger
Transportation Company is a trucking and transportation
facility which has 25 employees. The vacant Agri Chemicals
facility had a devastating fire in 1989 and the Town is
considering condemning this site. The Kaicham International
Corporation site is also vacant.
The residential area of Navassa is located primarily
west of SR 1435 and south of SR 1434, and is characterized
by small, single family houses that in many cases appear to
be in poor structural conditions. The November 1992 Land Use
survey revealed that Navassa has 164 occupied housing units,
8 vacant units, and 6 vacant units which are not suitable
for habitation. The low vacancy rate in Navassa is
considered a major problem because there is not a sufficient
number of housing units to meet demand. Based on 1990
housing census data, 24 percent of Navassa's houses were
built after 1980; 37 percent were built between 1960 and
1979; 25 percent were built between 1940 and 1959; and 14
percent were built before 1940. Many of the homes between
Main Street and Sturgeon Creek are located on unimproved and
ungraded dirt roads that are 20 feet wide or less with no
public right-of-way for access. As previousily mentioned,
most of the recent residential development has occurred in
the newer subdivisions of Klarbane Estates and Church Street
and these subdivisions have paved roads, fire hydrants, and
conventional lot design.
Three commercial uses exist in Navassa. The B&B
Grocery is located at the corner of SR 1435 and Broadway.
Jennings Septic Service is a small business operating at a
house on Main Street and White's Place is a small snack
stand operating on a part-time basis near the Town Park.

8A
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MAP 2: TOWN OF NAVASSA EXISTING LAND USE,1993
I
RESIDENTIAL:
All structures on the land use map
-are residential unless noted.
INDUSTRIAL:
Active: Bolivia Lumber, Infinger Transportation, Davis Yard
Inactive: Kaicham Int. Corp., Agri -Chemical
COMMERCIAL:
Service Station/Grocery, Septic Tank Service,
Park Concession Stand
PUBLIC:
Town Hall, Fire Station, Town Park,
Davis Creek Cama Waterfront Access
SEMI-PUBLIC:
r
Three Churches and Two Lodges
THE BRUNSWICK AND CAPE FEAR RIVERS ARE PRIMARY NURSERY AREAS.
N
o tm aoo aoo rmo
SCALE
Town of Navvassa
HAYES & ASSOCIATES
2222 MIMOSA PLACE WILMINGTON, NC 28403
(919) 343-880 t
PREPARATION OF THIS MAP WAS FINANCED IN PART THROUGH A GRANT PROVIDED BY THE NORTH CAROLINA COASTAL MANAGEMENT PROGRAM, THROUGH FUNDS PROVIDED THE COASTAL ZONE MANAGEMENT ACT OF 1972,
AS AMENDED, WHICH IS ADMINISTERED BY THE OFFICE OF OCEAN AND COASTAL RESOURCE MANAGEMENT, NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.

Institutional uses in Navassa include public facilities
and three churches. Public facilities include the Town
Hall/ Post Office Building, the Navassa Volunteer Fire
Station, the Town Park, and the Navassa Davis Creek Boat
Ramp located off of SR 1430.
Approximately 80 percent of Navassa is undeveloped and
includes marsh, wooded areas, and agricultural open space.
The State of North Carolina owns 97 acres of marshland
bordering the Sturgeon Creek and the Brunswick River.
C. LAND USE COMPATIBILITY PROBLEMS AND PROBLEMS FROM
UNPLANNED DEVELOPMENT
At this time, Navassa is fortunate not to have land use
compatibility problems. The industrial development is
located north of the residential area along SR 1432 and it
is the desire of Town officials for residential and
industrial areas to remain separated. There are few
commercial and institutional uses in Navassa which intrude
into residential areas.
As typical in many rural areas, the haphazard layout of
older residential development is the major problem in
Navassa from unplanned development. Numerous houses are
located along dirt alleys, rather than public right-of-ways.
Moreover, the local street system consists of many narrow
roads with dead -ends. Such development patterns are common
in areas without subdivision ordinances. The Town's newer
residential subdivisions along Church Street and Lake Shore
Drive follow more conventional land use patterns.
D. AREAS LIKELY TO EXPERIENCE CHANCES IN PREDOMINANT
LAND USE
Moderate residential growth is likely to continue in
Navassa, especially along the western edge of Navassa
towards Leland. Numerous vacant subdivided lots exist in
the Klarbane Estates and Church Street subdivisions.
Moreover, Navassa is planning to do an annexation near the
Klarbane Estates subdivision in July 1994. The proposed
annexation contains some residential development as well as
vacant land which is suitable for housing. Furthermore,
other large tracts of vacant land in Navassa may be
subdivided for residential development. There has been
discussion among town officials about the need to provide
low-cost single and multi -family housing in Navassa.

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E. ECONOMY
Navassa's economic base consists mainly of its three
industries and three commercial establishments;
consequently, there has been little change in the Town's
economic base during the past five years. The relative
stability of the Navassa's economic base is reflected in the
property tax valuations shown in Table 2.2.
The destructive Agri Chemicals plant fire caused the real
property tax base to fall from $6,204,620 in 1987 to
$5,899,090 in 1988. The value of the property tax base
began to rise over the next few years and by 1992 was
$6,397,230 for a net 3.1 percent increase over the 6 year
period for which data was available. The slight rise in
property value is probably the result of the 23 new houses
built between 1987 and 1992. It should be noted that there
was no property re -valuation during this six year period.
TABLE 2.4: TOWN OF NAVASSA REAL PROPERTY VALUATIONS.
1987 - 1992
REAL PROPERTY NUMBER OF PERCENT
YEAR TAX VALUE TAX BILLS CHANGE
1987
$6,204,620
244
------
1988
$5,900,550
277
-4.90
1989
$5,899,090
277
-0.02
1990
$6,064,730
290
+2.81
1991
$6,175,850
299
+1.83
1992
$6,397,230
314
+3.58
Source: Brunswick County Tax Records
F. REVIEW OF EXISTING PLANS AND ORDINANCES
The following represents a list and brief description
of current plans, policies, and regulations for the Town of
Navassa.
1. Navassa Zoning Ordinance
The Navassa Zoning Ordinance was adopted June 8, 1980.
This ordinance divides the Town into three zoning districts:
the Low Density Residential District R-40 which primarily
permits single-family dwellings and mobile homes on 40,000
square feet lots; the Medium Density Residential District R-
20 which permits primarily single-family and mobile homes or
20,000 square feet lots; and the Commercial -Industrial
District which is composed primarily of industrial uses and
permits the location of commercial uses as a special use.
The zoning ordinance specifies area, height, and yard
requirements, site plan requirements, industrial

9 11
construction and operation standards as well as sign,
parking, and mobile home standards.
2. Navassa Subdivision Ordinance
These regulations establish minimum design standards
for residential subdivisions and include requirements for
site improvements such as streets, curbs, and gutters,
drainage, and utilities prior to approval and recording of
any plat.
3. Prior CAMA Land Use Plans
The Town of Navassa had its first CAMA Sketch Land Use
Plan completed in 1981 with an additional update completed
in 1987. Both of these plans contain a description of the
Town and general development policies.
4. Brunswick County Thoroughfare Plan
Brunswick County completed a Thoroughfare Plan in 1988.
Both the Sturgeon Creek Bridge on SR 1435 and the Mill Creek
Bridge on SR 1432 are listed as Priority 1 bridges needing
replacement.
5. Greater Wilmington Thoroughfare Plan
Navassa is included in the Greater Wilmington area for
purposes of State transportation planning. Two alternatives
for the Wilmington "Outer Loop" are being evaluated as part
of a federal environmental impact statement. Both
alternatives pass near the Phoenix area in Brunswick County
and will not directly impact Navassa.
6. North Carolina Transportation Improvement Plan 1993-1999
The only Navassa transportation improvement included in
the TIP is the replacement of the Sturgeon Creek bridge.
The right-of-way acquisition will occur in Fiscal Year 1997
and construction is scheduled for Fiscal Year 1998.
•

SECTION III: LAND SUITABILITY
Development in a community such as Navassa is often
limited by constraints, factors which preclude or place
restrictions on development. This section identifies
features of the land or landscape of the Town which limit or
could pose serious constraints to development such as Areas
of Environmental Concern, flood hazard areas, estuarine
erosion areas, man-made hazards, areas with soil
limitations, sources of water supply, natural resource
fragile areas, and areas with resource potential.
A. Areas of Environmental Concern
One of the most significant aspects of the legislation
which created CAMA was the designation of special "Areas of
Environmental Concern" (AECS). These areas which are
defined in the NC state statues require special protective
consideration as far as land use planning is concerned.
AECS are further designated under two major groupings, the
Estuarine System and the Ocean Hazard AECS. Because of its
interior mainland location, Navassa has only Estuarine
System AECS which are described below. All development and
development -related activity within Navassa's designated
AECS is currently regulated by the Coastal Area Management
Act permit process.
The Estuarine System AECS include Coastal Wetlands,
Estuarine Waters, Estuarine Shorelines, and Public Trust
Areas. The recently created Outstanding Resource Waters
designation does not pertain to Navassa. These areas and
their general occurrence in Navassa are discussed as
follows:
1. Coastal Wetlands
These areas are defined as any salt marsh or other
marsh subject to regular or occasional flooding by tides,
including wind tides (whether or not the tide waters reach
the marshland areas through natural or artificial water
courses), but not including hurricane or tropical storm
tides. Salt marsh or other marsh shall be those areas which
grow some but not necessarily all of the following salt
marsh and marsh species: Smooth or Salt Water Cordgrass;
Black Needlerush; Glasswort; Slat -Meadow Grass; Sea
Lavender; Bulrush; Saw Grass; and Salt Weed Grass. In
Navassa, coastal wetlands generally occur in the marsh areas
along the west side of the Brunswick River and along a
portion of the north side of Sturgeon Creek and Mill Creek
as well as the marshes along the Cape Fear River and Davis
Creek (Cartwheel Branch).

0 13
These wetlands along our coast serve as a critical part
of the ecosystem. Estuarine dependent species like fish and
shellfish make up over 90 percent of the total value of
North Carolina's commercial catch. These coastal wetlands
should be considered unsuitable for all development and for
those land uses which alter their natural functions.
Inappropriate land uses include, but are not limited to the
following examples: restaurants and businesses; residences;
apartments, motels, hotels, and trailer parks; parking lots
and offices; spoil and dump sites; wastewater lagoons;
public and private roads and highways; and factories.
Examples of acceptable land uses may include utility
easements, fishing piers, docks, and certain agricultural
uses, except when excavation or filling of navigable waters
is involved.
2. Estuarine Waters
This AEC is defined as all the waters of the Atlantic
Ocean and the bays, sounds, rivers, and tributaries thereto,
seaward of the dividing line between coastal fishing waters
and inland fishing waters. The North Carolina Marine
Fisheries Commission classifies waterways as being either
coastal, joint, or inland waters. Only coastal and joint
waters are designated as estuarine waters. The Brunswick
and Cape Fear Rivers are classified as joint waters and
thereby are Estuarine Waters AEC. Sturgeon Creek, Mill
Creek, and Davis Creek (Cartwheel Branch) are classified as
inland waters and thereby are not designated as such.
The high productivity associated with the estuary
results from its unique circulation patterns caused by tidal
energy, fresh water flow, and shallow depth. The nutrient
trapping mechanisms add protection to the many organisms.
The circulation pattern of estuarine waters performs a
number of important functions, including transporting
nutrients, propelling the plankton, spreading seed stages of
fish and shellfish, flushing wastes from animal and plant
life, cleaning the system of pollutants, controlling
salinity, shifting sediments, and mixing the water to create
a multitude of habitats.
Secondary benefits include commercial and sports
fisheries, waterfowl hunting, processing operations, and
tourist -related industries. In addition, there is
considerable non -monetary value associated with aesthetics,
recreation, and education. (15 7H .206)
is Appropriate uses in and around estuarine waters are
those which preserve the estuarine waters so to safeguard
and perpetuate their biological, economic and aesthetic
values. Highest priority is to be allocated to the
conservation of estuarine waters. Second priority may be
given to water dependent uses such as navigable channels,

14
piers and docks, and mooring pilings, provided that they do
not directly or indirectly block or impair existing
navigation channels, increase shoreline erosion, deposit
patterns, violate water quality standards or cause
degradation of shellfish waters.
3. Public Trust Areas
These are described as (1) all the waters of the
Atlantic Ocean and the lands thereunder from the mean high
water mark to the seaward limit of state jurisdiction;
(2) all natural bodies of water subject to measurable lunar
tides and lands thereunder to the mean high water mark;
(3) all navigable natural bodies of water and land
thereunder to the mean high water level or mean water level
as the case may be, except privately -owned lakes to which
the public has no right of access; (4) all water in
artificially created bodies of water containing significant
public fishing resources or other public resources which are
accessible to the public by navigation; and (5) all waters
in artificially created bodies of water in which the public
has acquired rights by prescription, custom, usage,
dedication or any public means.
Public trust areas in Navassa include Davis Creek
(Cartwheel Branch), the Cape Fear River, the Brunswick River
as well as Sturgeon and Mill Creeks. The significance of
the public trust areas is that the public has rights to
them, including navigation and recreation. In addition,
these public trust areas support valuable commercial and
sports fisheries, have aesthetic value, and are important
resources for economic development. (15 7H .0207)
The State allows appropriate private development within
public trust areas, provided the development is not
detrimental to the environment or to public access.
Navigation channels, piers, marinas, and bulkheads to
control erosion are examples of uses which may be found
acceptable.
4. Estuarine Shorelines
Estuarine shorelines, although characterized as dry
land, are considered a component of the estuarine system
because of the close association with the adjacent estuarine
waters. Estuarine shorelines are those non -ocean shorelines
which are especially vulnerable to erosion, flooding, or
• other adverse effects of wind and water and are intimately
connected to the estuary. The extent of the estuarine
shoreline area extend from the mean high water level or
normal water level along the estuaries, sounds, bays, and
brackish waters as adopted by the Wildlife Resources
Commission of the NC Department of Environment, Health, and
Natural Resources, for a distance of 75 feet landward.

15
As previousily discussed-, the Brunswick and Cape Fear
Rivers in Navassa are classified as Estuarine Waters AEC;
therefore, the shorelines of these rivers and 75 feet
landward are the estuarine shorelines in Navassa. Because
development within the estuarine shoreline AEC can harm the
marshland and estuarine waters, and because of the inherent
dynamic and hazardous nature of coastal shorelines, specific
standards have been adopted by the State for construction in
these areas as outlined in NCAC T 1507H.029. A CAMA permit
must also be obtained. By regulation all projects cannot
weaken natural barriers to erosion, shall have limited
impervious surfaces, and shall take measures to prevent
pollution of the estuary by sedimentation and runoff.
B. Flood Hazard Areas
There is potential for flooding along the lower
elevation areas bordering the Brunswick River, the Cape Fear
River, Sturgeon Creek, and Davis Creek. To date, no major
problem has been caused by the location of development;
however, as the community grows this potential hazard should
be carefully considered in the future location of
residential, commercial, and industrial uses. As of the
Fall of 1993, Navassa is considering participation in the
Federal Emergency Management Agency (FEMA) flood insurance
program.
C. Estuarine Erosion Areas
Navassa has extensive marshes bordering its estuarine
shorelines which protects the shorelines from erosion.
D. Man-made Hazards
The numerous rail lines in Navassa pose a potential for
man-made hazards because of the possibility of rail
accidents and the spilling of chemicals or other hazardous
materials. The now closed Agri -Chemical Plant poses a
potential hazard because of the risk of chemicals as
illustrated by the recent fire of this facility. In the
event of a hazardous spill, Navassa would contact the
Brunswick County Emergency Management Agency for assistance.
E. Areas with Soil Limitations
A soil survey for Brunswick County was completed in
1986 by the U.S. Department of Agriculture Soil Conservation
Service. The report contains detailed descriptions of the
is soil types and properties for Brunswick County with the
discussions of the suitability for various uses such as
dwellings without basements, septic tank absorption,
sanitary landfills, and recreation.

•
15A
TABLE 3.1: SOIL CHARACTERISTICS FOR NAVASSA
SOIL TYPES
GENERAL
DWELLINGS
SEPTIC
CHARACTERISTICS
WITHOUT
TANK
BASEMENTS
ABSORPTION
Baymeade
Gently sloping soils on
Slight
Moderate
lower coastal plains
Blanton
Moderately well drained
Slight
Moderate
sandy soil of interstream
areas
Chowan
Poorly drained soils on
Severe
Severe
flood plains
Dorovan
Very poorly drained soils
Severe
Severe
of marshes
Foreston*
Nearly level, well drained
Slight
Severe
soils in interstream areas
Goldsboro*
Moderately well drained
Moderate
Severe
soils on uplands
Johns*
Poorly to moderately well
Moderate
Severe
drained soils on stream
terraces
Leon
Nearly level, poorly drained
Severe
Severe
soils in interstream areas
Mandarin
Nearly level, poorly drained
Moderate
Severe
soils on uplands
Muckalee
Poorly drained soils on low
Severe
Severe
flood plains
Murville
Poorly drained soils on
Severe
Severe
upland depressions
Norfolk*
Well drained soils on
Slight
Moderate
uplands
Onslow*
Moderately well drained
Moderate
Severe
soils on uplands
Tomahawk
Poorly to moderately well
Moderate
Severe
drained soils on uplands
* Prime Farmland Soil
Source: U.S.D.A., Soil Survey of Brunswick County,NC,
November 1986.

0 16
Soils in Navassa are typical of those found in coastal
floodplains, marshes, and uplands. Table 3.1 lists the
general characteristics of the fourteen soil types found in
Navassa and discusses their suitability for dwellings
without basements and septic tank absorption. This Table
shows that the soils in Navassa are typical of the rest of
Brunswick County. Most of these soils are poorly drained
and subject to high water tables or frequent flooding.
Thus, all of these soils have slight to severe limitations
for use as dwellings without basements and have moderate to
severe limitations for septic tank absorption. While these
characteristics do not preclude development, these soil
characteristics do suggest that a careful site investigation
be conducted by competent, qualified persons before
development begins or commitments are made.
The lack of soils generally suitable for septic tank
placement is a major concern for Navassa which does not
currently have a centralized sewer system. However, the
general declaration of limitations does not mean that sites
within these soil types are absolutely unsuitable.
Individual on -site investigations must be conducted to
determine final suitability. The Brunswick County Health
Department issues permits for septic tanks if all applicable
county, state, and federal regulations are met. A final
decision is based on soil testing and other site
requirements being determined by local subdivision and
zoning requirements.
F. Sources and Estimated Quantity of Water Supply
1. Groundwater
As discussed in the 1987 Land Use Plan, hydrologic data
indicates that groundwater occurs in two aquifers, the
unconfined and the principal. The unconfined aquifer occurs
several feet below land surface, is composed of sand, and
contains water at atmospheric pressure. It is approximately
5 to 30 feet in thickness and is a satisfactory source of
domestic water supply. The principal aquifer is under the
unconfined aquifer and is separated by low permeability
sediments. The principal aquifer generally occurs 30 and 70
feet below surface and is composed of sand, limestone, and
sandstone. The water within this aquifer is artesian and of
fair quality. Previousily, Navassa used three public wells
to supply the town with its water. These well sites are now
used only for fire protection purposes. Few remaining
households in Navassa now use private wells.
2. Surface Water duality
Navassa has substantial amounts of surface waters which
are affected by land development in terms of water quality.
In 1992, the North Carolina Department of Environment,

• 17
Health, and Natural Resources issued reports for the waters
of the Cape Fear River Basin which includes the water
systems of Navassa. Table 3.2 details these use
classifications.
TABLE 3.2: CLASSIFICATION OF WATER SYSTEMS IN NAVASSA
CLASSIFICATION AND
WATER SYSTEMS CLASSIFICATION DEFINITION
CLASS SC
Brunswick River Tidal salt waters used for aquatic
life propagation and survival,
fishing, wildlife, and secondary
recreation.
CLASS SC SW
Davis Creek Tidal saltwater swamp which has low
(Cartwheel Branch) velocities and other natural
characteristics which are different
from adjacent streams and used for
aquatic life propagation and
survival, fishing, wildlife,
secondary recreation and
agriculture.
CLASS C SW
Cape Fear River Fresh water/brackish swamp waters
Sturgeon Creek which have low velocities and other
Mill Creek natural characteristics from
adjacent streams and used for
aquatic life propagation and
survival, fishing, wildlife,
secondary recreation and
agriculture.
Source: "Classifications and Water Quality Standards
Assigned to the Waters of the Cape Fear River Basin," North
Carolina Department of Environment, Health, and Natural
Resources, 10/22/92.
G. Slopes in Excess of 12 Percent
Navassa lies on a low -elevation coastal plain.
Generally, there is no land within the Town which has slopes
in excess of 12 percent which would pose a constraint for
development.
G. Fragile Areas
• These are areas which could be easily damaged or
destroyed by inappropriate or poorly planned development.
Fragile areas include Areas of Environmental Concern (AECS)
which were previously discussed. However, there are other
potential fragile areas in Navassa which are not classifi-.'

• 18
as Areas of Environmental Concern, but nevertheless, due to
either natural or cultural significance, are environmentally
sensitive. These areas will be discussed below as either
"Natural Resource Fragile Areas" or "Cultural Resource
Fragile Areas".
1. Natural Resource Fragile Areas
Natural resource fragile areas are generally recognized
to be of educational, scientific, or cultural value because
of the natural features of the particular site. Features in
these areas serve to distinguish them from the vast majority
of the landscape. These areas include: complex natural
areas, areas that sustain remnant species, unique geological
formations, pocosins, wooded swamps, prime wildlife
habitats, or registered natural landmarks.
According to a January 4, 1993 letter, the North
Carolina Natural Heritage Program has no specific records of
significant natural features within the current Navassa town
limits because this area has never been systematically
inventoried. It is possible that the marshes and wooded
swamps of Navassa could be habitats to threatened and rare
species sometimes found in such areas. This can only be
determined by field surveys conducted by qualified
biologists during the growing season.
2. Cultural Resource Fragile Areas
Fragile coastal cultural resource areas are generally
recognized to be of educational, scientific, aesthetic, or
cultural value because of their special importance to our
understanding of past human settlement. Based on a December
15, 1992 letter from the North Carolina Division of Archives
and History, there are no recorded archaeological sites or
historic buildings within the town limits of Navassa;
however, a comprehensive inventory of Navassa or Brunswick
County has never been conducted. The Division of Archives
and History observes that based on their knowledge of the
area that archaeological sites ranging from the prehistoric
through historic periods may be located in Navassa,
particularly along the waterways and in areas of highest
elevation. There is also a possibility of underwater
archaeological resources. According to local residents, the
former Moore Plantation and ante-bellum cemeteries may also
be potential archaeological sites. The Town of Navassa has
contacted the NC Division of Archives and History about
investigating the significance of these sites.

19
H. Areas with Resource Potential
(1) Agriculture, Forest, and Mining Resources
Navassa has no major commercial agricultural, forest,
or mining activities located within its town limits. There
are small pockets of prime farmland soils such as Foreston
and Goldsboro located in Navassa; however, the small scale
of these tracts precludes them as being conducive to
agricultural production. Moreover, there are no peat or
sand mining operations located in Navassa.
(2) Productive Water Bodies
According to the North Carolina Marine Fisheries
Division, the waters of the Cape Fear and Brunswick Rivers
are designated as Primary Nursery Areas (PNA) in Navassa.
The PNA areas have been designated by the State as being
highly productive for juvenile habitat for marine species.
Destruction of these beds, either physically by dredging or
filling or by pollution, reduces their productivity which is
the reason they were designated as PNA's.
(3) Non -Intensive Outdoor Recreational Lands
Numerous boaters come to use the Davis Creek Boat
Access and fish along the waterways of Navassa. There are
no publicly owned forests, fish, or gamelands within
Navassa. Moreover, there are no privately owned wildlife
sanctuaries in Navassa.
•

9 20
SECTION IV. CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
Of crucial importance to any community experiencing
growth is its capacity to accommodate that growth. The
ability of the current and proposed water, sewer, education,
transportation, solid waste, police, fire, rescue,
recreation, and town administrative systems will be examined
to determine that system's capacity to accommodate the
projected 1998 Navassa town population of 549.
1. Existing Water Service
Between 1980 and mid-1989, Navassa operated a
community -wide water system which consisted of three wells
located near the Town Hall and a distribution network.
However, in July 1989, the Town of Navassa began to obtain
its treated water from the Leland Sanitary District which in
turn obtains its treated water from the Brunswick County
Water Service. The Brunswick County Water Service buys its
raw water from the Lower Cape Fear Water and Sewer
Authority. The raw water is transported through Bladen and
Columbus Counties to the 24 million gallon per day water
treatment plant located at Hoods Creek. Trunk mains cut
through the northeastern portion of the county and provide a
connecting point for the Leland Sanitary District on Mount
Misery Road. From there, a 6-inch distribution line carries
the treated water to Navassa. The Town is responsible for
the distribution of water via 4 and 6-inch lines throughout
its jurisdiction and as of January 1993 served 141
customers. Most Navassa households utilize the public water
system and it is estimated that only a few households
utilize private wells. In July 1992, the Town of Navassa
computerized its water billing system. Water utilization
figures from August 1989 through June 1992 are shown in
Table 4.1. The apparent decrease in water consumption
between 1989-90 and 1990-91 is actually due to the repair of
water leaks in Navassa's water distribution system.
Numerous water leaks were discovered when Navassa converted
to the higher pressurized water system of the Leland
Sanitary District. Water consumption, therefore, decreased
as these leaks were repaired. The County and Town water
systems are sufficient to accommodate the 1998 projected
Navassa population of 549.
TABLE 4.1: TOWN OF NAVASSA WATER SYSTEM UTILIZATION,
AUGUST 1989 - JUNE 1992
TOTAL AVERAGE
• YEAR MILLION GALLONS GALLONS PER DAY
Aug. 1989 - June 1990 16,173,800 48,424
July 1990 - May 1991 12,550,000 37,462
June 1991 - May 1992 12,681,980 34,745
Source: Leland Sanitary District

• 21
2. Sewer Service Area
Navassa does not have a centralized sewer system which
is a major concern of this town. Nearly one-third of the
survey respondents reported having a problem with their
septic system at least once a year which is indicative of
the poor soils in the area as well as of the age of the
systems. Two-thirds of the respondents favored the Town
Council establishing a sewer system. Moreover, the
development of a centralized sewer system is considered
vital as a means for industrial recruitment. The Town of
Navassa is currently conducting preliminary discussions with
the Towns of Leland and Belville about developing a regional
sewer system. Until a regional sewer system can be built,
septic tank systems as permitted by the Brunswick County
Health Department will provide on -site disposal systems.
3. Schools
According to the 1990 U.S. Census, there were 144
children under the age of 18 in Navassa. This comprises 33
percent of the total town population. Public school
children in Navassa attend Lincoln Primary, Leland Middle
School, and the North Brunswick High School of the Brunswick
County School System. The moderate population growth of
Navassa will not significantly impact the county -wide
system.
4. Transportation
Primary roads in Navassa are State maintained roads
including SR 1430, 1432, 1434, 1435, and 1443. Table 4.1
lists the traffic counts for State Roads 1435 (Navassa
Road), SR 1443 (Broadway), and SR 1434 (Main Street) between
1981 and 1991. Traffic counts for secondary roads are only
taken every two years. As shown by these counts, all of
these State roads have projected volumes well below
capacity. Two bridges in Navassa are listed as Priority
One bridges needing replacement in the 1988 Brunswick County
Thoroughfare Plan. The Sturgeon Creek Bridge on SR 1435 is
ranked first while the Mill Creek Bridge on SR 1432 is
ranked fourteenth in this 1988 Plan. According to the 1993-
1999 North Carolina Transportation Improvement Plan, the
Sturgeon Creek replacement bridge is to be constructed in
1998 while the Mill Creek replacement bridge is not yet
included as a prospective state bridge improvement project.
Based on NCDOT criteria, the Mill Creek bridge is in better
• condition and has lower traffic volumes than the Sturgeon
Creek bridge.

0 22
TABLE 4.2: AVERAGE DAILY TRAFFIC COUNTS FOR NAVASSA,
1981 - 1991
SR 1435 SR 1443 SR 1434
YEAR Navassa Rd. Broadway Main St.
1981
2,000
700
450
1983
2,200
750
250
1985
2,200
900
300
1987
2,100
600
500
1989
2,500
1,100
500
1991
2,500
1,100
600
Percent Change
1981-1991 25% 57.1% 33.3%
Source: North Carolina Department of Transportation
5. Solid Waste Collection
The Town of Navassa currently collects trash from all
town households and businesses twice a week. The solid
waste is disposed of in the 55-acre Brunswick County
landfill. The County landfill is projected to last until
1998 at which time the County by State mandate must operate
a lined landfill. The County is now exploring its options
on how best to meet the 1998 State mandate. Town residents
now utilize the County recycling center located at Sand
Ridge which is approximately three miles from Navassa.
Brunswick County also has placed a public dumpster at the
Davis Creek CAMA Boat Access. This dumpster is used by
county residents, rather than town residents who are locally
serviced, and the dumpster has become a nuisance and
eyesore. Town officials are exploring the possibility of
having the dumpster moved. The capacity of the solid waste
management will be sufficient through 1998.
6. Police Protection
Navassa is now provided police protection by the
Brunswick County Sheriff Department. The Town of Navassa is
included in the Northern Sector which is patrolled by one to
two sheriff cars depending on the shift. The County uses
the 911 System to divert sheriffs to calls. The Town of
Navassa plans to hire a police chief and auxiliary police
officers in January 1994 which will greatly enhance local
police protection.
•

•
23
7. Fire Protection
The Navassa Volunteer Fire Department is located along
Main Street near the Town Hall. This volunteer department
has 22 volunteers. The fire station's equipment includes
one 500 gpm tanker truck, one 1,000 gpm tanker, and one
2,500 gpm tanker truck. The Navassa Fire Department is
connected to the County's new 911 system and has back-up
agreements with fire protection units at DuPont, Leland,
Wilmington, Northwest, and Acme-Delco. The fire insurance
rating for the Town is currently a 9. Local officials are
very proud of their volunteer fire department.
8. Emergency Rescue and Safety
An ambulance is stationed at the Navassa Volunteer Fire
Station and is manned by 9 trained EMS and EMT volunteers.
The rescue service is connected to the County's 911 system.
Navassa is located approximately 7- 10 miles from the New
Hanover Regional Hospital and about 30 miles from the
Brunswick County Hospital. Emergency services are
considered adequate by local officials.
0 9. Recreational Services
There are two major recreational facilities in Navassa.
Navassa has a 10 acre park which is jointly owned by the
Town and the County. The park includes a tennis court,
basketball court, and open space provided by the Town and a
lighted ball field built by the County. The Town received a
CAMA grant to build an 8.4 acre water access recreation
facility on Davis Creek which was completed in 1990. Many
town residents support the construction of a town community
center. A site near the fire department has been selected
but land acquisition efforts have failed to date.
Condemnation proceedings may be undertaken to acquire the
land for the community center. Such a community center will
greatly enhance recreational services.
10. Administrative Services
The Town of Navassa employs a Town Clerk, a Town
Supervisor, and a Maintenance Worker. Navassa contracts
with Brunswick County to provide building inspection and the
issuance of CAMA permits. The Town Hall will soon be
renovated to accommodate the new police department and to
install a post office box area. During fiscal year 1992-
1993, the Town projected that the revenues for the General
Fund would be $120,780 and that expenditures would be
$118,780. The ad valorem tax rate was $.25 per $100.00 of
full valuation. Town administrative services are considered
adequate by local officials.

0 24
SECTION V: LAND USE POLICY STATEMENTS
The formulation of specific policies regarding growth,
development, and management objectives is perhaps the most
important part of any land use plan.- - especially those
prepared under North Carolina's Coastal Area Management Act.
Because of regulatory requirements and local peculiarities,
the policies often attempt to strike a delicate balance
between desires and objectives of the local citizens, the
local government, and the objectives of CAMA itself. Land
development policies, which should be based on analysis of
existing conditions (including consideration given to
natural and man-made constraints) and desired development.
Under CAMA, the overriding issue is that of growth
management while protecting coastal resources. The special
resources and restraints within Navassa were identified
within the previous sections of this plan. The policy
statements contained in this section will address growth
management and protection, and maintenance of these
resources.
The Coastal Resources Commission, recognizing the
diversities which exist among the coastal communities,
requires each locality to delineate specific development
policies under five broad categories:
* Resource Protection
* Resource Production and Management
* Economic and Community Development
* Continuing Public Participation
* Storm Hazard Mitigation
Although policies developed under these topics cover most of
the local development issues, in some cases they do not.
Navassa has the flexibility to address specific community
issues within the scope of this plan and they have done
this.
It is important to understand the significance of local
CAMA policy statements and how they interact with day-to-day
activities of Navassa. Three areas are affected. First,
the policy statements will regulate the issuance of CAMA
minor and major permitting as required by N.C.G.S.-113A-118
prior to any development within Areas of Environmental
Concern. For example, a CAMA permit was required before the
Davis Creek Waterfront Access was built. A local government
must adopt policies which are, at a minimum, equal to and
consistent with the State's minimum use standards. The
local government may, however, adopt minimum use standards
which are stricter than the State's and the local
government's stricter standards would become the determining
factor whether a CAMA permit would be issued.

25
The second area of application is that of establishing
local policies and regulations which guide Navassa's growth
and development. Under North- Carolina legislation, land use
plans are not regulatory controls. Policy statements must
be consistent with and implemented through land use
ordinances such as zoning or subdivision ordinances.
The final area of application is that of "Consistency
Review." Proposals and applications for state and federal
assistance or requests for agency approval of projects are
normally reviewed against a jurisdiction's land use plan to
determine whether the project is consistent with local
policies. Inconsistencies of a federal or state project
with local policies may serve as grounds for denial or
revision of a project.
The Town of Navassa employed several means of
soliciting meaningful citizen participation in developing
policies. Monthly meetings with the Navassa Planning Board
and planning consultant were held since October, 1992.
Public meetings were held on Dec. 7, 1992 and February 8,
1993 and citizens helped to identify planning issues as well
as suggest policy alternatives. A survey was distributed to
the 164 Navassa households and of these, 30 responses were
received. A summary of the public meetings and survey
results are included in Appendix 1.
The foregoing policies were developed to provide a
general framework for guiding growth and development in
Navassa over the next five years.
A. RESOURCE PROTECTION
1. AREAS OF ENVIRONMENTAL CONCERN
ISSUE IDENTIFICATION:
Navassa recognizes that the primary concern of the
Coastal Management Program is to provide a means for
planning sound economic growth that is sensitive to the need
to protect natural resources. Town officials share this
concern for the protection and sound management of these
environmentally sensitive lands and waters. Navassa has the
following types of Areas of Environmental Concern (AEC's):
* Coastal Wetlands
* Estuarine Waters
* Public Trust Areas
* Estuarine Shorelines
• In terms of developing policies, the Estuarine System
AEC's mentioned above will be treated as one uniform
grouping since they are so closely related. These AEC's
were previousily discussed in Section III, pages 12 - 15
of this report.

•
26
POLICY STATEMENTS:
Navassa's overall policy and management objective for
the estuarine system is "to give the highest priority to
their protection and perpetuate their biological, social,
economic, and aesthetic values and to ensure that
development occurring within these AEC's is compatible with
natural characteristics so as to minimize the likelihood of
significant loss of private property and public resources."
(15 NCAC 7H.0203) In accordance with this overall
objective, Navassa will permit those land uses which conform
to the general uses standards of the North Carolina
Administrative Code (15 NCAC 7H) for development within the
Estuarine System. Generally, only those uses which are
water dependent will be permitted. Specifically, each
permitted use is discussed below.
a. Coastal Wetlands
The first priority of uses in this area will be uses
which promote "conservation" of this sensitive area, with
conservation meaning the lack of imposition of irreversible
• damage to the wetlands. Generally, uses which require water
access and uses such as utility easements, fishing piers,
and docks will be allowed, but must adhere to use standards
of the Coastal Area Management Act. (CAMA: 15 NCAC 7H)
b. Estuarine Waters and Estuarine Shorelines
Navassa officials are very much aware that protection
of the estuarine waters and adjacent estuarine shorelines is
of paramount importance to fishing, both commercially and
for recreation. Navassa recognizes that certain actions
within the estuarine shoreline, which is defined as 75 feet
landward of the mean high waterline of the estuarine waters,
could possibly have a substantial effect upon the quality of
these waters.
In order to promote the quality of these waters,
Navassa officials will permit only those uses which are
compatible with both the estuarine shorelines and which
protect the values of the estuarine system. Residential,
recreational, and commercial uses may be permitted within
the estuarine shoreline, provided that:
(1) Natural barriers to erosion are not weakened or
eliminated;
• (2) The amount of runoff is unchanged and no pollution
is generated;
(3) Development does not significantly interfere with
existing public rights or access to, or use of navigable

27
waters or public resources, and such development meets all
local, state, and federal regulations including the
standards of the North Carolina_ Sedimentation Pollution Act
of 1973 as amended in 1990.
c. Public Trust Areas
Navassa recognizes that the public has certain
established rights to certain land and water areas and that
these public areas also support valuable commercial and
aesthetic value. Navassa will continue to promote the
conservation and management of Public Trust Areas.
Appropriate uses include those which protect public rights
for navigation and recreation. Projects which would
directly or indirectly block or impair existing navigation
channels, increase shoreline erosion, deposit spoils below
mean high tide, cause adverse water circulation patterns, or
violate water quality standards shall not be allowed.
Allowable uses shall be those which do not cause detriment
to the physical or biological functions of public trust
areas. Uses such as navigational channels, drainage
ditches, bulkheads to prevent erosion, piers or docks, and
bridges shall be permitted.
. POLICY IMPLEMENTATION:
Navassa believes that the existing development permit
process enforced by CAMA and the Army Corps of Engineers
represent adequate measures to protect the Estuarine System
AEC's.
2. HAZARDOUS AND FRAGILE LAND AREAS
ISSUE IDENTIFICATION:
Uncontrolled or incompatible development may result in
the major or irreversible damage to fragile estuarine
resource areas which contain environmental, natural,
historical, or archaeological resources of more than local
significance. In recognition of this, it is the policy of
Navassa to encourage the protection of such natural or
cultural resources. Development of such areas should be
discouraged or carefully designed in such a fashion as to
preserve the area's natural significance.
POLICY STATEMENTS:
a. Natural Resource Fragile Areas
• The marshes and wooded swamps of Navassa have the
potential to be habitats for threatened and endangered plant
and animal species; however, these areas have never been
inventoried and the presence of rare species is not known as
of 1993. This situation may be changing. The Natural

n
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28
Heritage Program is beginning to survey potential natural
significant areas in Brunswick County and this inventory
will take several years. It is likely that potential
habitats in Navassa will be surveyed. Town officials will
be informed by the North Carolina Heritage Program if
habitats for threatened and endangered species are
discovered within Navassa.
b. Prime Wildlife Habitats, Wooded Swamps, and 404 Wetlands
The wooded swamps and marshes of Navassa function as
prime wildlife habitats. Development in these areas will be
regulated by the CAMA permitting process and/or by the 404
wetland regulations of the Army Corps of Engineers.
Navassa's policy is to support these regulations in an
effort to protect these sensitive natural environments and
wildlife habitats.
c. Significant Archaeological Resources
There are no known archaeological or historical sites
within Navassa; however, a comprehensive inventory of
Navassa or Brunswick County has never been conducted.
According to the North Carolina Division of Archives and
• History, there is the potential for either underwater
archaeological resources or archeological sites to be found
along Navassa's waterways. According to local residents, the
former Moore Plantation and ante-bellum cemeteries are also
potential archaeological sites. The Town of Navassa will
contact the NC Division of Archives and History to determine
if there are any archaeological sites within Navassa.
3. CONSTRAINTS TO DEVELOPMENT
POLICY IDENTIFICATION:
The major physical constraint for development in
Navassa is the general lack of soils suitable for septic
tank use as discussed in Section III of this report on pages
15 - 16. The lack of soils suitable for septic tank use is a
major concern for the Town which currently does not have a
centralized sewer system. one out of four survey
respondents reported having problems with their septic tank
systems at least once to twice a year.
POLICY STATEMENTS:
(a) Until such time as a central sewerage system is
developed, growth and development will not be permitted in
areas where septic tank systems will not function. All
septic tanks must be in compliance with State health
regulations through administration by the Brunswick County
Health Department.

U
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29
(b) Development may be permitted in
limitations for building foundations only
measures for stabilizing foundations are
the building design.
POLICY IMPLEMENTATION:
areas with
if corrective
incorporated into
The Town of Navassa will continue to support the North
Carolina Building Code as well as support the enforcement of
septic tank regulations by the Brunswick County Health
Department.
4. Protection of Potable Water Supplies
POLICY IDENTIFICATION:
Since July 1989 Navassa has been receiving all its
treated water from the Brunswick County Water System via the
Leland Sanitary District. The existing town wells are now
only activated for filling the fire engine pumper tanks.
Only a few private wells are now utilized in Navassa since
most town residents now are connected to the public water
system.
POLICY STATEMENT:
Navassa officials support State regulations controlling
land uses near groundwater sources as regulated by the North
Carolina Division of Environmental Management through NCAC,
Subchapters 2L and 2C.
POLICY IMPLEMENTATION:
Navassa recognizes the importance of protecting potable
water supplies and therefore, supports the North Carolina
Division of Environmental Management regulations if and when
applicable. The Town of Navassa will regulate land uses near
wells through its zoning ordinance and will enforce site
requirements that private wells be located suitable
distances from septic tank systems.
5. Use of Package Treatment Plants
POLICY IDENTIFICATION:
Ground absorption systems are the
sewerage disposal in Navassa and there
treatment plants now operating within
• POLICY STATEMENT:
It shall be the policy of Navassa
treatment plants where they are deemed
can be constructed to meet all federal
only means of
are no package
the Town.
to allow package
necessary and if they
and state

•
30
environmental regulations. If and when centralized sewer
facilities are made available to areas served by package
plants, hookup to these sewer facilities will be required,
and the package plant(s) eliminated.
POLICY IMPLEMENTATION:
The Town of Navassa will support the enforcement of
package treatment plant regulations by the Brunswick County
Health Department. Package treatment plants will be
eliminated upon the availability of centralized sewer
service.
6. Stormwater Runoff
Through support of the Division of Environmental
Management, Navassa officials support efforts to regulate
storm water runoff through applicable state and federal
regulations.
7. Marina, Bulkhead, and Floating Structure Development
The development of bulkheads and private boatslips must
• meet CAMA regulations. Damage to existing marshes by
bulkhead installation or replacement will not be permitted.
Navassa officials would support the development of marinas,
in compliance with applicable CAMA regulations. Floating
home development has not taken place in Navassa. Because of
potential environmental problems, Navassa officials would
not encourage or support development of floating homes.
8. Industrial Impacts on Fragile Areas
Navassa officials will continue to support applicable
state and federal regulations on how they relate to the
siting of new industry in order to minimize the impact of
new industry on environmentally sensitive areas such as
Navassa's rivers and tributaries.
9. Rising Sea Level
The Town of Navassa will closely monitor research on
sea level rise and its effects on coastal areas. It is the
policy of the Town to consider any state or federal policies
prior to issuing specific statements regarding sea level
rise and the restriction of development in potentially
susceptible locations. Specifically, development within
areas up to 5 feet above sea level may be prone to sea level
rise and wetland loss.
r

E
31
B. RESOURCE PRODUCTION AND MANAGEMENT
POLICY IDENTIFICATION:
In most coastal counties and towns "resource production
and management" usually relates to agriculture, forestry,
and mining activities as well as recreational and fisheries
resources. For Navassa, only recreational and fisheries
resources pertain since there are no commercial agriculture,
forestry, or mining resources within the Town. The Town
recognizes the value of water quality maintenance in terms
of protecting fishing resources as well as providing clean
water for other recreational activities such as boating.
The Brunswick and Cape Fear Rivers are designated as Primary
Nursery Areas by the North Carolina Division of Marine
Fisheries. The water systems and marshes are classified as
Estuarine System Areas of Environmental Concern previousily
discussed.
POLICY STATEMENTS:
(1) Recreational and Fisheries Resources
(a) The Town of Navassa encourages the protection and
• enhancement of North Carolina's sport and commercial
fisheries industry. Any development or activity which will
negatively impact estuarine waters will be discouraged.
Only those structures which are water dependent will be
allowed to be placed adjacent to estuarine waters. In the
design, construction, and operation of water dependent
structures, efforts must be (nade to mitigate negative
effects on water quality and fish habitat, as determined by
15 NCAC 7H, the Division of Environmental Management, and
the Coastal Resources Commission. The developer and/or
owner will bear the cost of any such mitigation.
(b) All necessary dredging and stabilization projects
must be performed in a manner which minimizes damage to
wildlife habitats.
(2) Impact of Residential, Commercial and Industrial_
Development on Natural Resources
The Town of Navassa is committed to the protection of
its estuarine waterways. The land use controls of Navassa
will be written and enforced to ensure that proper measures
are incorporated into the design, construction, and
operation of residential, commercial, and industrial
development so that any substantial negative impact to the
• unique estuarine ecosystem is minimized.

E
32
POLICY IMPLEMENTATION:
The Town of Navassa supports state and federal programs
designed to enhance the proper- utilization of water
resources. The LAMA major and minor permitting process will
be enforced to protect the Areas of Environmental Concern.
Establishment of a centralized sewer system and effective
stormwater management will help to maintain water quality in
Navassa.
C. ECONOMIC AND COMMUNITY DEVELOPMENT
POLICY IDENTIFICATION:
The Town of Navassa experienced modest growth since its
incorporation in 1977. Over this 15-year period, the Town
grew by 79 residents for an average annual population
increase of +1.2 percent. Modest growth is expected to
continue over the next 5 to 10-year planning period within
the current town limits. The Town does anticipate
completing an annexation by July 1994 which may
significantly increase its population. Two-thirds of the
survey respondents felt that the Town was growing just about
• right while nearly one-fourth thought that the Town was
growing too slow. Overwhelmingly, the survey respondents
thought that the Town should continue growing as it had done
in the past and that single-family, commercial, industrial,
and recreational land uses should be encouraged. Providing
more affordable housing and upgrading the existing housing
stock were major concerns expressed throughout the planning
process. Nearly two-thirds of the survey respondents were
in favor of paying an "appropriate" tax increase to fund the
improvements that they supported.
POLICY STATEMENTS:
(1) Growth Management
a. Generally, Navassa believes in managing and directing the
Town's growth and development in balance with the
availability of municipal services.
b. To institute land use planning by 'adopting and enforcing
zoning and subdivision ordinances.
c. To guide development away from Areas of Environmental
Concern and other special areas, as reflected in the
policies for Resource Protection and Resource Production and
Management.
d. To guide development away from hazardous areas where
there is a tendency for septic tank problems and flooding.

LJ
33
e. To institute annexation proceedings in a timely manner in
order to guide growth in the surrounding area around
Navassa.
(2) Types of Development
a. Residential:
It shall be the policy of Navassa to encourage the
development of a variety of housing types to enhance the
affordability of housing. Areas will be zoned exclusively
for conventional, single-family housing. Areas zoned for
multi -family, duplexes, or mobile homes will have adequate
buffers separating these housing areas from single-family
areas. Private developers will be encouraged to build
apartments or duplexes in appropriately zoned areas.
Navassa officials will explore the feasibility of providing
a quality, multi -family housing project near the Davis Creek
Waterfront Access. Density of residential development will
continued to be dictated by health department regulations
for septic tank use and by zoning, until such time that a
central sewer system can be installed.
b. Commercial:
• Limited commercial development addressing neighborhood
needs should be allowed. Navassa will encourage land use
compatibility between commercial development and neighboring
residential and/or industrial development.
c. Industrial Development
It shall be the Town's policy to encourage the
expansion of existing industries as well as to secure new
industry which is not hazardous or would adversely affect
the environment. Town officials support the recruitment
efforts of the Brunswick County Economic Development Office.
Local officials will promote the fact that Navassa is an
UDAG approved community and encourage the use of this
program as an extra incentive for new industry. Navassa,
through zoning and the 1993 Land Classification Map, will
encourage new industry to locate north of SR 1432.
d. Institutional Development
Institutional land use in Navassa is limited to three
churches, the Town Hall, the Fire Station, and utility sites
necessary to provide adequate services to the Town. This
land use will continue and compatibility between
• institutional uses and neighboring land uses will be
encouraged.

•
34
e. Recreational
Improving recreational facilities was a major concern
expressed in the survey and public meetings. Town officials
will continue to explore the feasibility of building a
community center as well as completing the plans for the
Davis Creek Waterfront Access.
(3) Capacity of Existing Facilities and Local Commitment to
Providing Services to Development
The capacity of community facilities was discussed in
Section IV, pages 20 - 23 of this report. Navassa will have
sufficient capacity to serve the projected 1998 population
of 549. The Brunswick County Water System has sufficient
capacity to provide the distribution networks of the Leland
Sanitary District and the Town of Navassa with treated
water. The Town of Navassa will continue to explore the
feasibility of providing a centralized sewer system to the
Town. Population growth in Navassa is anticipated to only
have minor impact upon the school enrollment in Brunswick
County. Although the local street system has sufficient
capacity, Navassa supports the replacement of the Sturgeon
Creek and Mill Creek bridges, the construction of a
connector road between Navassa and the "Outer Loop", the
installation of directional signs by the Highway 74-76
interchange, the development of a local connector study, and
the paving of all dirt roads. The Town urges Brunswick
County to upgrade its landfill to meet stringent federal and
state regulations which will be effective by 1998. The Town
of Navassa supports the recycling program of Brunswick
County. Security and sufficient police protection is a
major concern in the Town as revealed by the survey and
public meetings. The Town will work with Carolina Power and
Light Company to provide street lighting throughout the
Town. Town officials will work with local residents and the
Brunswick County Sheriff Department to start a community
watch program. Fire and rescue services are deemed to be
adequate. There was a great deal of public interest
expressed at the public meetings and in the survey about
constructing a community center and completing the Davis
Creek Waterfront Access.
POLICY STATEMENTS:
(1) As areas develop, it is the policy of the Town that
the developer/owner share in the financial responsibility of
providing basic town services.
• (2) In order to protect the
waters as well as to attract new
Navassa will pursue providing a
treatment and collection system.
work to secure state and federal
quality of its estuarine
development, the Town of
centralized sewerage
Navassa officials will
grants to construct the

•
35
sewer system and will also consider conducting a bond
referendum on the issue if adequate grant funds cannot be
secured. The Town of Navassa will also consider exploring
the feasibility of establishing a regional system with
agencies such as the Leland Sanitary District or neighboring
towns and communities.
(3) In order to promote better access to Navassa, the
Town supports the Southern Alternative to the proposed
"Outer Loop" around Wilmington as well as the construction
of a connector route between the Town and the "Outer Loop."
(4) The Town of Navassa supports the placement of
directional signs to the Town at the US 74-76 interchange.
(5) The Town supports the replacement of the Sturgeon
Creek and Mill Creek bridges.
(6) Local officials will begin the process of
developing a connector study in Navassa with the assistance
of the North Carolina Department of Transportation. It is
the policy of the Town to pave all dirt roads as financially
feasible.
• (7) Town officials will work with Carolina Power and
Light in establishing a community -wide street lighting
system throughout the Town.
(8) Town officials will work with the Brunswick County
Sheriff Department and local residents in order to establish
a Community Watch Program.
(9) Town officials will continue to explore the
feasibility of building a community center and completing
the Davis Creek Waterfront Access by using county, state,
and federal funds.
POLICY IMPLEMENTATION:
The Town of Navassa will continually evaluate its
provision of services to determine whether there is
sufficient capacity. It is the policy of the Town that the
developer/owner share in the financial responsibility of
providing town services.
(4) Desired Urban Growth Patterns
The Town of Navassa wishes to maintain its current
development patterns. Residential, neighborhood commercial,
• and industrial development is considered desirable as long
as there is no major or irreversible damage to
environmentally sensitive areas. Most new residential
development will occur in the newer subdivisions along
Church Street and Lakeshore Drive as well as in the proposed

•
36
annexation area. New industrial development will be located
north of SR 1432. Control over development will be
established by the reenactment of the zoning ordinance and
map and subdivision regulations.
(5) Redevelopment of Developed Areas
POLICY IDENTIFICATION:
Navassa has experienced moderate residential growth
since its incorporation in 1977. With the exception of new
residential houses in the two recent subdivisions, most
homes have existed in Navassa for many years with 14 houses
being located on narrow dirt alleys with no public right -of
way. According to the 1990 Census, 76 percent of Navassa's
housing was built before 1980. Upgrading existing housing
to minimum housing standards was the major concern expressed
in the January, 1993 survey. Navassa would like to
eliminate these substandard conditions through UDAG or
Community Development Block Grant Program in order to
establish a more standard urban growth pattern.
Redevelopment of older portions of Navassa will be done as
feasible through the Community Development Block Grant
Program.
• POLICY STATEMENTS:
(1) The Town of Navassa's policy is to pave all dirt
streets. The Town will pursue obtaining a Community
Development Block Grant in order to pave the remaining
streets.
(2) The Town of Navassa's policy is to assist
homeowners to upgrade their housing to at least the minimum
housing standards. Navassa will continue to redevelop
existing areas as financially feasible with the assistance
of programs such as the Community Development Block Grant
Program.
POLICY IMPLEMENTATION:
The Town of Navassa will apply for a Community
Development Block Grant in order to continue to redevelop
existing substandard road and housing conditions.
(6) Commitment to State and Federal Programs
As a small community, Navassa officials understand the
importance and need for both state and federal programs
• which can assist them in providing more and better community
facilities for Navassa citizens. Examples of state and
federal programs which are important to and supported by the
Town include: the Community Development Block Grant Program,
the EHNR Coastal and Estuarine Water Beach Access Program,

37
CAMA major and minor permitting, dredging and 404 wetlands
permitting by the U.S. Army Corps of Engineers, assistance
programs for the elderly, meals -on -wheels, housing
assistance programs, and transportation planning and
construction programs of the N.C. Department of
Transportation.
(7) Assistance to Channel Maintenance and Beach
Renourishment Projects
Navigational access is important to Navassa; therefore,
local officials will support any necessary dredging
activities to keep access open provided that the dredging is
done in a manner which minimizes damage to wildlife
habitats.
(8) Energy Facility Siting and Development
At present, Navassa officials are not aware of any
plans to construct an energy facility in Navassa. If such a
facility was proposed, Town officials would assess whether
the facility would pose any hazards to the town residents as
well as the environment before supporting such a proposal.
• (9) Tourism
Tourism is not a major factor in this inland, permanent
residential community which has an industrial base.
(10) Coastal and Estuarine Beach Access and Parkinq
POLICY IDENTIFICATION:
The development of the Davis Creek Waterfront Access
was a major accomplishment during this past planning period.
The Town received a CAMA grant to build an 8.4 acre water
access recreation and parking facility on Davis Creek which
was completed in 1990. This new facility provides the only
public waterfront access in Navassa and is an asset to the
community. There has been much interest expressed at public
meetings to complete the original conceptual plan for the
access which included nature trails, a picnic shelter, and a
gazebo.
POLICY STATEMENT:
The Town of Navassa will continue to support the Davis
Creek Waterfront Access and will seek grants to further
improve this facility by building a picnic shelter, a
• gazebo, and nature trails.

C�
38
POLICY IMPLEMENTATION:
Town officials will contact county and state agencies
about receiving assistance to 'Complete the Davis Creek
Waterfront Access.
D. CONTINUING PUBLIC PARTICIPATION POLICIES
POLICY IDENTIFICATION:
Navassa recognizes that an important element in
developing and implementing any local policies or plans is
the involvement of its citizens. Public involvement with
this CAMA sketch land use plan update started in October
1992 when monthly meetings with the Navassa Planning Board
and the consultant began. Public meetings were held on
December 7, 1992 and February 8, 1993. These public
meetings were advertised in the Brunswick Beacon and by the
distribution of notices. Approximately 12 local residents
as well as town officials attended these meetings which
identified planning issues as well as policy alternatives.
A survey was distributed to the 164 Navassa households in
January 1993. Of these, 30 were returned to the Town Hall.
A summary of the survey results is included in Appendix 1.
• A joint planning workshop with the Navassa Planning
Board and Town Council was conducted on May 12, 1993 in
order to review the preliminary draft plan. The public was
then notified by the newspaper that the plan was available
for review at the Town Hall and the Brunswick County
Planning Department. A public hearing was conducted on June
17, 1993. The Town Council passed a resolution on June 30,
1993 to submit the plan for review by the Coastal Area
Management Agency. Comments were received in September 1993
and the plan was revised accordingly.
Throughout the plan updating process, Navassa has
demonstrated its desire to keep citizens informed of the
planning process by giving them opportunities to provide
public input and thereby participate in the decisionmaking
process.
POLICY STATEMENT:
Navassa believes that its Planning Board which has
regularly scheduled meetings, all of which are open to the
public, provides opportunities for citizens to air their
views and concerns about planning matters. The Planning
board will continue to be the primary vehicle for citizens'
• input.

•
39
POLICY IMPLEMENTATION:
The Town will continue to use published public notices
in the Brunswick Beacon to inform citizens of pending
decisions involving land use planning matters in order to
provide opportunities for input.
E. CAMA POLICY ISSUES NOT RELEVANT TO NAVASSA
* Complex Natural Areas
* Areas that Sustain Remnant Species
* Maritime Forests
* Shellfishing Waters
* Slopes that Exceed 12 Percent
* Development of Sound and Estuarine Islands
* Off -Road Vehicles
F. NAVASSA STORM HAZARD MITIGATION, POST -DISASTER RECOVERY,
AND EVACUATION POLICIES
POLICY IDENTIFICATION:
The Town of Navassa's policies regarding storm hazard
mitigation, evacuation, and post -disaster recovery are
• integral with and incorporated in the Brunswick County Storm
Hazard Mitigation, Evacuation, and Post -Disaster Plan.
Navassa does not participate in the Federal Emergency
Management Agency (FEMA) flood insurance program. There is
potential for flooding along the lower elevations bordering
the Brunswick River, the Cape Fear River, Sturgeon Creek,
and Davis Creek. To date, there has been no major
development in the potential flood areas and Navassa has not
experienced a major flooding problem. However, as the
community grows, this potential hazard should be carefully
considered in the future location of residential,
commercial, and industrial uses.
POLICY STATEMENTS:
(1) Storm Hazard Mitigation: In order to minimize the
effects of a hurricane or other major storm, Navassa
supports the enforcement of the North Carolina State
Building Code, the continued enforcement of the CAMA and 404
wetlands development permit processes in areas potentially
susceptible to flooding, and to discourage high -intensity
uses and larger structures from being constructed in areas
prone to flooding hazards.
(2) Evacuation: The Town of Navassa will provide for an
• orderly and timely evacuation of town residents and visitors
during a declared emergency by following established
procedures set forth by the Brunswick County Emergency
Management Agency.

0
40
(3) Post Disaster Recovery and Reconstruction Policies:
(a) After a major storm,_ reconstruction and/or
relocation of structures must be consistent with the NC
Building Code, the Navassa Zoning Ordinance, and CAMA
regulations and setback requirements.
(b) The Mayor of Navassa shall appoint a "Post -
Disaster Recovery Task Force" which will be responsible for
overseeing the reconstruction process and any policy issues
which may arise after a storm disaster.
(c) It may be necessary for the Town to suspend all
redevelopment activities for a certain period of time after
a major storm if there is extensive damage. This
"moratorium" could allow the Town time to carefully assess
all damage in view of existing policies, building
regulations, and ordinances in order to determine whether
existing policies should be revised to mitigate similar
damage from future storms. If a moratorium is established,
the time frame will be commensurate with the extent of the
damage. The actual time frame will be determined by the
Town Council.
• (d) In the event of extensive damage to public
utilities requiring replacement or relocation of these
utilities, efforts shall be made to locate damaged utilities
away from hurricane hazard areas or to strengthen their
construction.
(e) Priority shall be given to the repair of public
utilities which will restore service to as many persons as
possible.
(f) Public expenditure of funds for the repair or
reconstruction of any private road or vehicular easement
which is damaged or destroyed as a result of an intense
storm event shall not occur, except in the conjunction of
town utilities. All other private roads shall be the
responsibility of the individual property owners.
POLICY IMPLEMENTATION:
The Town of Navassa, because of its small size and lack
of local law enforcement officials, will abide by the
emergency management policies and procedures of Brunswick
County in the event of a hurricane or major storm. The
Mayor, or his appointed designee, shall be the principal
liaison of communications between the County and the Town.
. The Town of Navassa will continue to support the enforcement
of the NC State Building Code, the Navassa Zoning Ordinance,
and the CAMA permit process.

41
• SECTION VI: LAND CLASSIFICATION SYSTEM
The land classification system provides a uniform way
of looking at how the use of land interacts with
environmentally sensitive areas and with the development
needs of a particular locality. It is not a strict
regulatory device in the sense of a zoning ordinance or a
zoning map. It represents more of a tool to aid in the
understanding of relationships between various land use
categories and how these relationships shape local policy.
Particular attention is focused on the intensity at which
land is used and the level of services needed to support
that intensity. The regulations of the Coastal Area
Management Act state:
"The land classification system provides a
framework to be used by local governments to identify
the future use of all lands. The designation of land
classes allows the local government to illustrate their
policy statements as to where and to what density they
want growth to occur, and where they want to conserve
natural and cultural resources by guiding growth."
(7B.0204) (b)
• "By delineating land classes on a map, local
government and its citizens can specify where certain
policies (local, state, and federal) will apply. The
land classification system is intended to be supported
by zoning, subdivision and other local growth
management tools and these local tools should be
consistent with the classification system as much as
possible. Although specific areas are outlined on a
land classification map, it must be remembered that
land classification is merely a tool to help implement
policies and not in the strict sense of the term a
regulatory mechanism." (7B.204) (a)
The seven alternative land classifications authorized
by 7B.204 (c), along with the Land Classification Map, are
therefore intended to serve as a visual representation of
the policies stated in Section V of this plan. The map
depicting these classifications must be as flexible as the
policies that guide them.
Only three of the Coastal Resource Commission's seven
types of land classifications are relevant to Navassa as
shown on Map 3. The developed, urban transition, and
conservation classes are further identified and described
below.

41A
•
.MAP 3: TOWN OF NAVASSA LAND CLASSIFICATION MAP, 1993.
2222 MIMOSA PLACE WILMINGTON, NC 28403
(919) 343-880 t
M DEVELOPED
13 URBAN TRANSITION,
Q CONSERVATION:
HE -PREPARATION OF THIS MAP WAS FINANCED IN PART THROUGH A GRANT PROVIDED BY THE NORTH CAROLINA COASTAL MANAGEMENT PROGRAM, THROUGH FUNDS PROVIDED THE COASTAL ZONE MANAGEMENT ACT OF 1972.
AS AMENDED, WHICH IS ADMINISTERED BY THE OFFICE OF OCEAN AND COASTAL RESOURCE MANAGEMENT, NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION.

42
A. DEVELOPED
According to the CAMA planning regulations, the
developed class of land provides for continued intensive
development and redevelopment of existing cities, towns, and
their urban environs. Areas meeting the intent of the
developed classification are currently urban in character
where minimal undeveloped land remains, or are scheduled for
the timely provision of public services such as water,
sewer, streets and roads, police and fire protection. Urban
in character includes mixed land uses such as residential,
commercial, institutional, and other uses. (7B.204) (d) (1)
Within Navassa, the areas complying with the above
definition include the existing residential, commercial,
institutional, and active industrial uses. As shown on Map
3, the Developed area is basically the center of Navassa as
well as the Klarbane Estates subdivision and the outlying
active and inactive residential sites. These areas are now
served by the Town's centralized water system and fire
protection services as well as will be served by a sewer
system if such a system is established. Most lots in these
areas are completely developed, and the undeveloped acreage
could be developed by the year 2003.
• B. URBAN TRANSITION
According to the CAMA planning regulations, the purpose
of the urban transition class is to provide for future
intensive urban development on lands that are suitable and
that will be provided with the necessary urban services to
support urban development. Areas meeting the intent of the
urban transition classification are presently being
developed for urban purposes or will be developed in the
next five to ten years. These areas are in, or will be in
an "urban" transition state of development going from lower
intensity uses to higher intensity uses and as such will
require urban services. Examples of areas meeting this
class are lands included within the municipal
extraterritorial planning boundaries and areas being
considered for annexation. This classification should not
be applied to any Areas of Environmental Concern, lands of
special value such as those containing archaeological sites
or wildlife habitats, or areas subject to frequent flooding.
(7B.204) (d) (2)
The lands in Navassa which are classified as urban
transition are basically vacant lands adjacent to currently
developed areas. This includes some areas where lots have
• been platted as well as some large tracts of unsubdivided
land. Basically, the urban transition lands encircle the
developed center of the town and border the conservation
lands along Sturgeon Creek and the Brunswick River. The
land in the urban transition class could be served by the

43
is Town's water system if there was a demand and would
eventually be served by a centralized sewer system if such a
system is established.
The relationship between the " developed" and "urban
transition" classification is an important one to
understand. The first class is meant to define the already
intensively developed areas and/or those areas where
intensive development is likely to occur. Urban transition
lands are those where public investment decisions will be
required to provide the necessary urban services. These
become important areas to monitor.
The Coastal Resources Commission has further clarified
this relationship. The Developed and Urban Transition
classes should be the only lands under active consideration
by a local government for intensive urban development
requiring urban services . The area within these classes is
where detailed local land use and public investment planning
will occur. State and federal expenditures on projects
associated with urban development such as water, sewer, and
urban street systems will only be guided to these areas.
C. CONSERVATION
The purpose of the Conservation class is to provide for
the effective long-term management and protection of
significant, limited, or irreplaceable areas. Areas meeting
the intent of this classification include Areas of
Environmental Concern such as public trust areas, estuarine
waters and shorelines as well as other unique lands such as
freshwater wetlands that may not be afforded protection by
another agency but are known for their natural, scenic,
historical, cultural, or hazardous nature.
Because of their unique, productive, cultural, or
natural features, lands within the Conservation Class should
not be developed at all, or if developed, done so in an
extremely limited and cautious fashion. Urban services,
public or private, should not be provided in these areas as
a catalyst to stimulate intense development. In most cases
limited on -site services will adequately support any limited
development within this class and will also protect the very
features which justify the area's inclusion in the
Conservation class. It should be understood that even
though AEC standards occasionally permit urban development
on a lot by lot basis within the various AECS and that
services are occasionally provided, this is the exception
rather than the rule, and the primary intent of the
• Conservation class is to provide protection for the resource
included therein. (7B.0204) (d) (7)

44
C� J
As shown on Map 3, the extensive marshes bordering
Sturgeon Creek and the Brunswick River are classified as
Conservation. The Davis Creek CAMA Waterfront Access is
likewise designated as Conservation. These coastal wetlands
are a valuable ecosystem which promote wildlife production,
public uses requiring water access, and the preservation of
aesthetic value.
•
•

U
APPENDIX I:
PUBLIC PARTICIPATION
0

TOWN OF NAVASSA, N.C.
1993 LAND USE PLAN UPDATE
PUBLIC PARTICIPATION PLAN
Subchapter 7B of the N.C. Administration Code, CAMA Land Use Planning
Guidelines, requires that the plan update process be conducted in the
public arena. It is, therefore, the responsibility of the local
government to involve, inform, and educate a broad cross-section of
the population. There should be a continuous structure in place which
both reaches out and invites diversified segments of the community to
participate within its jurisdictional boundaries.
The Town of Navassa is aware of this responsibility and will seek to
carry out this obligation throughout the updating of its 1993 Land Use
Plan. The following steps will be taken in order to provide
information to the public and to maintain citizen involvement
throughout the process:
1. Designation of Principal Local Board and Planner -in -Charge
Ms. Margaret H. Hayes of the firm Hayes & Associates will serve as the
Planner -in -Charge and will supervise the project. Ms. Charlena
• Alston, the Town Clerk, and Mayor Louis S. Brown will serve as the
preliminary contacts between the Town of Navassa and the Planning
Consultant. The Navassa Planning Board will be the principal local
board directing the 1993 Land Use Plan Update with the Mayor and Town
Council being involved.
2. Public Information Meetings
Included as part of this plan is a schedule of events to inform and
receive input from the citizens as well as from Town officials. The
schedule includes three (3) public meetings and a survey of town
residents. The December 7, 1992 Public Meeting will focus on the
identification of planning issues and an explanation of the CAMA Land
Use Planning Process. A survey of all town residents will then be
conducted in .January 1993. The February 8, 1993 Public Meeting will
focus on the survey results, the presentation of data analysis and the
existing land use map, and an assessment of the Town's land use
policies. In April 1993, the draft policies, draft land
classification map, hurricane mitigation and post disaster recovery
policies, and plan sections will be presented to the Mayor, Town
Council, and Planning Board in a .joint planning workshop. Copies of
the preliminary plan will then be available for public review during
May 1993. The final public meeting will be conducted on June 7, 1993
prior to the submission of the preliminary plan to the Coastal
Resources Commission. In addition to the meetings outlined above it
• is anticipated that the Planning Consultant will meet at least monthly
with the Town of Navassa Planning Board. These meetings will be open
to the public and will be conducted on the third Wednesday evening of
each month from November 1992 through .June 1993.

CJ
3. Public Notification of the Land Use Plan Update Meetings
The public will receive notice of all its opportunities for input
through the legal advertisement of the public meetings in the
Brunswick Beacon, the local newspaper which is widely read by many of
Navassa residents. Announcements concerning the public meetings will
also be posted at the Town of Navassa Town Hall and Post Office as
well as other key locations throughout the Town. Citizens will also
be notified about the land use plan update through the Survey
Questionnaire. All economic, social, ethnic, and cultural viewpoints
will be considered in the development of the land use plan update.
Adopted this the day of _
Council of Navassa, North Carolina.
By:
Title.
•
, 1992 by the Town
Town Seal

•
CITIZEN PARTICIPATION PLAN
SCHEDULE OF .EVENTS
1993 TOWN OF NAVASSA LAND USE PLAN UPDATE
TENTATIVE DATE* EVENT
November 1992 CAMA Planning Workshop with Mr. Haskell Rhett
of the NC Division of Coastal Management and
the Town of Navassa Planning Board.
November 19, 1992 Town Council approves planning contract with
Hayes & Associates and adopts Citizen
Participation Plan.
December 7, 1992
Public Meeting: Assessment of Land Use Issues
for Navassa
.January 1993
Citizen Survey Questionnaire distributed to
each Navassa household.
February 8,1993
Public Meeting: Assessment of current
land use policy statements, discussion of
•
survey results and December public meeting,
and presentation of data analysis and
existing land use map.
April, 1993
Joint planning workshop with Town Council
and Planning Board to develop policy
statements.
May, 1993
Draft plan available for review in Town Hall.
.June 7, 1993
Publir_. Meeting: Navassa Town Council approves
submission of Draft Final Plan to the Coastal
Resources Commission.
* Actual dates subject to change as needs and circumstances dictate.
0

0
THE BRUNSWICK BEACON
TOWN OF NAVASSA
PUBLIC MEETING
1993 CAMA LAND
USE PLAN UPDATE
NAVASSA TOWN HALL
MONDAY, DECEMBER 7, 1992 7:00 PM
December 3, 1992
TOWN OF NAVASSA
PUBLIC MEETING
1993 CAMA LAND
USE PLAN UPDATE
NAVASSA TOWN HALL
MONDAY, FEBRUARY 8, 19939
7:00 PM
February 3, 1993

0
0
9
THE BRUNSWICK BEACON
TOWN OF NAVASSA
PUBLIC HEARING
NOTICE
1993 CAMA. Land Use Plan Update
Navassa Town Hail
Thursday, June 17,1993, 7:00 PM
Copies of the Land Use Plan are avail-
able for review at the Navassa Town
Hall and the Brunswick County Planning
Department.
June 16, 1993
NOTICE OF PUBLIC HEARING
The Town of Navassa will hold a public hearing on
Thursday, October 14, 1993 at 7:00 pm at the
Town Hall of Navassa. Purpose: To hear and
receive written comments on the proposed CAMA
sketch land use plan update prior to the Town
Council adoption and submission of the plan to the
CRC for certification. All citizens are invited to
attend. The plan is available for review at the Town
Hall of Navassa during regular office hours
Monday thru Friday from 9:00 am until 4:30 pm.
The plan is also available for review at the
Brunswick County Planning Department at the
Brunswick County Government Complex in Bolivia
during regular office hours. This plan is being con-
sidered under the 5-year update requirements of
the NC Coastal Area Management Act.
Charlena Alston, Town Clerk
September 15, 1993

0
•
NAVASSA SURVEY RESPONSES
TOTAL RESPONSE- 30 QUESTIONNAIRES
JANUARY, 1993
The Town of Navassa is in the Process of updating its 1987 Sketch Land
Use Plan. The Town Planning Board and Council would like to have the
benefit of your thoughts so that your opinions can be incorporated
into the land use planning Process. Please respond to the following
questions and return or mail the questionnaire to the Town Hall by
Wednesday, January 27, 1993. We ask that each adult member of your
household respond to the questionnaire. Thank you for your assistance
in helping us plan for the future of Navassa.
1. How long have
a.
3 b.
_2 7_
2. Do you own
_2 8_
_1_
1
C.
d.
sincerely,
Louis S. Brown, Mayor
Town of Navassa
you lived in Navassa?
Two years or less
Two to five years
Five to ten years
More than ten years
or rent the house in which you live?
a. Own
b. Rent
No response
3. What, in your opinion, is the most important problem facing Navassa
that. the Town can do something about?
9-Drug Problem: 3-Sewer Svstem: 2-Clean Ditches; 3-More Street
Lighting; 1-Do more to help senior citizens; 1-Lack of Housing;__
1-Need community center to reduce drugs; 1- Children in road at night.;
1- Employment., need more Jobs; 1- Number -writing; 1- Gambling; 1- Get
my water line; 1- Need more police protection; 1- Promote drug free
life-style
4. Do you feel that Navassa is growing . . .
_2_ a. Too fast
_8_ b. Too slow
_20_ c . Just about right.
_0_ d. Navassa has had enough growth
5. What type of growth should be encouraged or discouraged?
TYPE OF DEVELOPMENT
ENCOURAGE
DISCOURAGED
NA
Single-family residential
_20
2
8
Duplexes
7_
8
15
Multi -family residential
_11
5
14
Mobile homes
_ 9
_8_
13
More affordable housing
25
—0_
5
Shopping facilities
22
3
5
Industry
_21
_2
7
Recreational Use
_23
—1—
6

2
6. What do you think are the most important issues now facing Navassa?
Rank each item below according to the following scale:
2=Major Issue; 1=Minor Issue; 0= Not an Issue
40
a.
Build community recreation/education center
53
b.
Improve Street Lighting
54
c.
Upgrade all housing to minimum standard
_27
d.
Add more street and traffic signs
49
e.
Clean ditches
38
f.
Install sewer system
24
g.
Build new roads
22
h.
Complete proposed annexation
21
i.
Extend Park Avenue to Navassa Road
28
j.
Build sidewalks
_41
k.
Have safety patrol for Town Park
_43
1.
Have Brunswick Sheriff Department post deputy in
Town
_20
m.
Require buffer between multi -family and single
family development
_37
n.
Improve animal control
_41
o.
Increase citizen participation in Town government
_32
p.
Promote quality multi -family, affordable housing
36
q.
Pave dirt roads
20
r.
Complete boat and water access along Davis Creek
s.
Remodel Town Hall and Post office
_22
_44
t.
Change zoning ordinance to prohibit hazardous
industry within Town
COMMENTS:
7. Would you approve of allowing mobile home parks inside the Town
limits of Navassa?
13 Yes 17 No
$ a. Are you having any problems with you septic tank system?
$ Yes 22 No
b. If yes, how frequently are you having problems?
_1 Monthly
_3 Every six months
_3 Once a year
9. At the present. time, Navassa does not have a sewer system. Should
the Town Council work towards establishing a community -wide sewer
system?
20
Yes
_1
No
_5
Not Sure
_3
No opinion
1
No answer

L]
0
10. Would you
sewer system?
15
4
_-7
_3
1
3
favor a bond referendum to Pay for a community -wide
Yes
No
Not sure
No opinion
No answer
11. If additional street lighting was to be placed
you prefer for the new lighting to be concentrated
and Broadway or distributed throughout the Town?
_$ Concentrated along Main Street and
_21 Distributed throughout the Town
1 No answer
in Navassa, would
along Main Street
Broadway
12, Should the Town attempt to annex developing areas adjacent to the
Town limits?
17
Yes
3
No
4
Not Sure
5
No opinion
1
No answer
13. Are you currently satisfied with the following public services
available in Navassa? If no, why not?
YES
NO
25
4
23
3
14
4
_8
18
26
_ 3
24
5
-n
_30
2 8
_0
_4
19
13
11
16
_8
_12
10
_8
14
_14
11
11
12
20
_5
_11
_15
11
9
ADDITIONAL COMMENTS:
SERVIC_.E IF NO, WHY NOT?
a. Town Management
b. Planning
c. Building Inspection
d. Police Protection
e. Fire Protection
f. Rescue Services
g. Trash Collection
h. Water System
i. Street. Lighting
J. Street. Maintenance
k. Street. Paving
1. Traffic Control
m. Storm Drainage
n. Town Cleanliness
o. Recreational Facilities
p. Boat Accesses
q. Mosquito Control
r. Evacuation Control
14, Would you be willing to pay an appropriate tax increase to fund
the improvements which you supported in this questionnaire?
19 Yes
_6 No
—5— No opinion

4
10 Thank you for ,your Participation. In closing, the following
information will he helpful in evaluating the results of the survey.
Your responses will he kept confidential and will not be used for any
other purpose.
15. What is your age group?
_1
18-25
3
26-35
_5
36-45
5
46-55
_3
56-65
13
Over 65
16. What is the size of your household?
5
1
person
7
2
Person
7^_
3
person
11
4
or more
17. My family income is approximately:
_11 tinder $10,000
_7 $10,000 - $19,999
_3 $20,000 - $29,999
_2 $30,000 - $39,999
0 $40,000 - $49,999
_1 Over $50,000
6 No answer
18. Sex of respondent
12 Male
17 Female
1 No answer
ADDITIONAL COMMENTS:
PLEASE RETURN OR MAIL THE QUESTIONNAIRES TO THE TOWN HALL NO LATER
THAN WEDNESDAY, JANUARY 27, 1993.
MAILING ADDRESS: Town of Navassa
Navassa, NC 28404
Is THANK YOU!

N1IVRSSR
Town -wants
' to find homes
for its youth
LE
By FRANK MALEY
Staff write.
NAVASSA — Twenty -year -old
Tyrone ONeal ticks off four names
in about as many seconds. All are
women about his age who've left
town to find homes for themselves
and their children in Wilmington.
'That's the only place they can
find housing that's low enough for
them to pay for," he said.
Navassa has about 445 people
and plenty of land, about 15 square
miles. But none of it is cheap
enough for most high school or col-
lege graduates, says Town Council-
man Eulis Willis.
There aren't many houses wait-
ing for them either. In 1990, Na-
vassa had only nine vacant houses,
about 6 percent of its housing
stock. Among Brunswick County
towns, only Sandy Creek had a low-
er vacancy rate.
When young Navassa residents
graduate from high school or col-
lege, most of them must either live
with older relatives or leave.
Mr. Willis wants to change that.
Navassa needs about 30 or 40 more
apartments and low-cost houses to
help keep its brightest young minds
in town, he says.
If it gets old and gets stagnant,
it's not long before it goes," he said.
But the town also must control
what kind of homes are built. It
doesn't need trailer parks like the
ones he sees in Leland, Mr. Willis
said. Trailers would attract new,
sometimes temporary, residents.
He's not interested in that.
"We want people who are from
here, have been here or plan to be
here for a while," he said.
He hopes to meet with county
housing officials in about a week to
find out what the town's options
are.
Brunswick County can help poor
men ano women pay their rent after
they find `euerally approved hous-
ing, but it has no money to build
'If it gets old and
gets stagnant, it's
not long before it
goes.'
Town Councilman Eulis Willis
homes or apartments, said Vonnie
Fulwood, a coordinator for Bruns-
wick County's Public Housing of-
fice.
Unlike many areas of the county,
Navassa isn't eligible for housing
assistance from the federal Farm-
ers Home Administration because it
is considered part of the greater
Wilmington area, said Ronnie Pope,
assistant district director of
FmHA's Wilmington office.
First-time home -buyers are eligi-
ble for federal low -interest loans
and tax credits through some
banks, said Margaret Matron,
manager of communications for the
N:C. Housing Finance Agency.
The agency also gives tax breaks
to developers who agree to build
rent -controlled housing, she said.
Navassa officials would have to find
a developer willing to test the
small-town market.
If they're successful, maybe
they'll have a better shot at keeping
young men like Robert Toomer in
Navassa.
Mr. Toomer, a sophomore at St.
Augustine's College in Raleigh,
wants to live in Navassa and prac-
tice law in Wilmington when he fin-
ishes school. Unlike many Navassa
youths, he's able to plan on return-
ing because his father owns a lot of
land in the area, he said.
But a boost in housing can do
more than just keep young people
at home, he said.
"If you bring more houses into
the area, that'll bring more busi-
nesses. and more businesses bring
more jobs," he said.
Wilmington L7orning Sta
Idovember 30, ''t992

B. Schools, Parks, Primary Roads, Police Fire and Medical
Navassa students attend either Brunswick County Elementary,
Junior or Senior High School, all of which are located within
five miles of Navassa. Primary roads in Navassa are state
maintained roads including SR 1430, '1432, 1434, 1435 and
1443; and all state roads have projected volumes well below
capacity. Navassa has a 10-acre park which is County owned
and operated to serve the recreational needs of Navassa.
The park includes a lighted ball field tennis court,
basketball court and open space. Town officials have
requested a CAM planning grant to design a water access
area for the community to provide a water access recreation
facility. Police protection is provided by the County
Sheriff's Department. Fire and emergency medical services
are provided by volunteers and are adequate to serve the
needs of Navassa using area hospitals.
C. Level of Utilization for Water System, Sewer System, Schools
and Primary Roads
The Navassa water system is currently utilizing approximately
40,000 gallons per day, which is well below the 108,000
gpd capacity. The 1986 completion of the 100,000 gallon
elevated tank has provided the Town with needed and adequate
storage. Septic tanks are presently being used for sewage
disposal; however, Town off
icials have set a goal to provide
plant north
the Count sewerla b utilizing
sewer service YP
Y 9
of Navassa. As discussed earlier, schools and primary roads
n
should be adequate during the planning period with local
roads now being built to DOT standards.
VI. ESTIMATED DEMAND
a municipality, there
in 1977 as
Navassa's incorporationY+ Since aP
has been one census of population taken which was in 1980. Based
on that census, Navassa had a population of 439 people, which
represented an increase of 10 people from the 1977 population.
The Office of Budget and Management has projected a 1985 population
for Navassa of 470 people, which represents an increase of 31
people over a five-year period, or a 7.1% increase in population.
Because Navassa does not have a long track record of population
projections
t have anpopulation
information and the State does no a y P J
beyond 1985 we have elected to Sh
ow two population projectionsJ
ections
using the 1980 to 1985 7.1% increase as a high estimate and a
3% growth rate per five years as a low growth rate for planning
purposes. These estimates are shown below.
Eatieeted Population G—th
600
575 5t4
550
525
501 ---514
500 - t99
475 41 ---- 4gG'��
450 4]9
t29
475
400
1977 1980 1985 199D 1995 2000
Source: 1980 — 1980 Cenaua
1985 — Office of 90-2DDO — Hora,d 7. CapBudget and Mane.en
19pe and egAasoc%F-i—te
Using the population estimate of 470 people in 1985 as a base,
n 85 an the
year for five ye
ars between 19 d
with growth ever e o tt a 3% o Y
9 Y Y
year 2000, the total increase would be 106. As shown in the
Existing Land Use section, over 82% of Navassa's land area is
currently undeveloped; and accommodating an estimated 44 to 106
more people over a fifteen -year period would not be difficult.
Town officials hope that installation of a sewer system and other
community improvements will bring about even greater growth during
this planning period, which also could be easily accommodated.
Additional growth is desired in hopes of providing more job
opportunities in the community and thereby broadening the economic
base of Navassa.
This modest anticipated growth rate can easily be accommodated
by such facilities as roads, schools and water system.
VII. POLICY STATEMENTS
A. Resource Protection
1. Areas of Environmental Concern
Navassa recognizes the primary concern of the Coastal
Management Program is to provide a means for planning
sound economic growth that is sensitive to the need
officials share
to pr
otect natural resources. Tow n of coals s a e
this concern for the protection and sound management
of these environmentally sensitive lands and waters.
In terms of developing policies, the estuarine system
Areas of Environmental Concern (AEC's), which include
coastal wetlands, estuarine waters, estuarine shorelines
and public trust areas, will be treated as one uniform
grouping since they are so closely interrelated. Another
reason for grouping these AEC's together is the fact
that the effective use of maps to detail exact on -ground
location of a particular area sometimes poses serious
limitations.
Navassa's overall policy and management objective for
the estuarine system is "to give the highest priority
to their protection and perpetuate their biological,
social, economic and aesthetic values and to ensure
m oc rin within these AEC's is
that development cu
P 9
compatible with natural characteristics so as to minimize
the liklihood of significant loss of private property
and public resources.' (15 NCAC 7H. 0203) In accordance
with this overall objective, Navassa will permit those
land uses which conform to the general use standards
of the North Carolina Administrative Code (15 NCAC
7H) for development within the estuarine system.
7 a water dependent
Generally, only those uses which ch re Ge lly, y p
will be permitted.
2. Hazardous and Fragile Land Areas
a. Freshwater Swamps
Navassa officials suPPort the CAMA program and
theU.S. which .S. Corps of Engineers 04 Program, tch
has jurisdiction of regulating development in
designated freshwater swamp areas.
b. Marshes
Development in marsh areas is regulated by the
local and State CAMA Permit Officers in addition
to Corps of Engineers regulations. Navassa's policy
is to continue support of these regulations in
an effort to protect this sensitive natural
environment.
c. Maritime Forests
Not applicable in Navassa.
d. Cultural and Historic Resources
No regulations or zoning to protect historic
structures. Navassa officials would support County
efforts to prepare inventory of historic buildings
and State efforts to identify archaeological sites.
e. Protection of Potable Hater Supply
Navassa officials supportState regulations
controlling land uses near groundwater sources
as regulated by the North Caroli
na Division of
Environmental Management through NCAC, Subchapter
2L and Subchapter 2C.
Navassa recognizes the importance of protecting
potable water supplies and, therefore, supports
the enforcement of these regulations if and when
applicable.
f. Storm Water Runoff from Agriculture, Residential
Development, Phospate or Peat Mining
Through support of the Division of Environmental
Management, Navassa officials support efforts to
regulate storm water runoff through applicable
state and federal regulations.
g. Marina and Floating Home Development
Navassa officicals would support the development
of marinas, in compliance with applicable CAMA
regulations. Floating home development has not
taken place ' in Navassa. Because of potential
environmental problems, Navassa officials would
o ental proble a ssa
not encourage or support development of floating
homes.
h. Industrial Impacts on Fragile Areas
Navassa officials will continue to support applicable
state and federal regulations as they relate to
the siting of new industry or impact of new industry
on environmentally sensitive areas such asNavassa's
rivers and tributaries.
B. Resource Production and Management
1. Productive Agricultural Lands
The 1986 Detailed Soil Survey Report for Brunswick Count
y
Y
includes five soil types as Prime Farmland. They are
Foreston loamy fine sand Fo Goldsboro fine sandy
Y
loam (GOA), John fine sandy. loam (Jo), Norfolk loamy
fine sand (NoB), and Onslow fine sandy loam (On). Navassa
contains some Foreston loamy fine sand (Fo) east of
SR 1435 and a larger section of Goldsboro fine sandy
loam (GoA) and Norfolk loamy fine sand (NoB) in the
southwestern corner of Navassa and just north of Sturgeon
Creek. All of the areas are currently wooded areas
or open and uncultivated fields and designated as
Residential -Service areas on the 1987 Land Classification
Map.
2. Commercial Forest Lands
Based on information from the Brunswick Count Forestry es
Y Y
Service, there are no known commercial forest areas
inside the Navassa Town Limits.
3. Ekisting and Potential Funeral Production Areas
There are no known mineral production areas inside the
Town Limits of Navassa.
4. Commercial and Recreational Fisheries, Including Nursery
and Habitat Areas
Based on information from the Division of Marine
Fisheries, the Brunswick River, Cape Fear River, Davis
Creek and Sturgeon Creek are all joint waters and serve
as both a nursery and spawning area. This Upper Cape
Fear area is a primary nursery area that is sensitive
to adjacent urban or agricultural runoff and is in need
of protection from such pollution. For that reason,
Navassa officials will continue to support state and
federal efforts to protect this natural resource.
5. Off -Road Vehicles
Navassa does not contain sand dunes or other natural
environments that are subject to abuse by off -road
vehicles. The Town Council does not see a need to
regulate off -road vehicles within the Town Limits other
than applicable current motor vehicle regulations.
6. Residential and Commercial Development
Navassa officials will continue to use the adopted Zoning
Ordinance to direct future growth in the community.
7. Peat and Phosphate Mining
There are no known peat or phosphate mining sites within
the Town Limits of Navassa. Therefore, no regulation
of this type of facility is necessary.
Town of Navassa
1987 Existing Land Use Map
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C.otal Zone .-.ngerMt AR of 1974 as .we.ded,
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SCALE
LEGEND
i 1. RESIDENTIAL
All structures on Existing Land Use Map are residen-
tial in use unless otherwise noted.
• 2. COMMERCIAL
Navassa has two commercial uses. A service sta-
tion/grocery is located at the comer of SR 1435 and
I-
SR 1443. The second is located on SR 1434 near the
intersection of SR 1432.
3. INDUSTRIAL
All industrial land use is located north of SR 1432
and includes Bolivia Lumber Agri -Chemical,
Kaicham Int. Corporation, Infinger Transporation
and Davis Yard which is owned and operated by
CSX.
1 4. PUBLIC
Semi public use includes the Town Hall at the in-
tersection of SR 1434 and Quail Meadow Road and
�;�
the Town Park Site west of SR 1435.

I. INTRODUCTION
The Coastal Resources Commission has provided small coastal
1981, with Agri Chemicals facility y (vacant), Bolivia Lumber,
Davis Yard CSX and Infinger Transportation Company, Inc.,
C. Current Plans, Policies and Regulations
One natural hazard present in Navassa is the potentialfor
communities such as Navassa grant funds through a contract between
being in their same facilities. In addition to industrial
The following represents list
flooding along Davis Creek, Cape Fear and Brunswick
the own of Navassa and the Department (NRCD), Division of Coastal
facilities, Navassa has two commercial uses which include
a and brief description of
p
Rivers and Sturgeon Creek. No major problems have
Management, to prepare a Sketch Level Land Use Plan. The Sketch
a small grocery -service station at the intersection of SR
current plans, policies and regulations for the Town of
Navassa.
been caused by the location of current development;
Level Plan is an update of the August 1981 Plan and is intended
1435 and 1443 and a spetic tank business on Main Street.
c
however, as the community grows this potential hazard
to give smaller communities an opportunity to plan for the future
opportunity
As one enters'Navassa from Leland on SR 1435, the land use
1. 1930 Community
should be cache
Y considered in the future location
as part of the Coastal Management
remains predominantly marsh and open fields and wooded areas
Facilities Plan and Capital Improvements
of residential, commerical and industrial uses.
on the right side of the road as you cross the bridge and
Program
One of the basic purposes of North Carolina's Coastal Area
enter the Town Limits. The left side of the road as you
This plan provides a survey and analysis of existing
2. Soil Limitations
Management Act (hereinafter referred to as "CAIiA" or "the Act")
enter Navassa is also characterized with marsh and wooded
and needed community facilities and recommendations
is to establish a state management plan that is capable of
rational
areas as the predominant land use along Sturgeon Creek.
Approximately 800
on methods of implementation and financing. Based
Based on the U.S. Department of Agriculture, Soil
and coordinated management of coastal resources. The
Act
to 1,200 feet from the bridge and along
SR 1435
on a review of this plan, many of the major items
Conservation Service Soil Survey, over 60% of Navassa's
recognizes that the key to more effective protection and
fe
use the land
are located three radio towers, with residential
use beginning on
discussed have been accomplished, including a new Town
soils are the Leon-Rutlege-Pactolus association. As
and water resources the coast is the
development
each side of the Boulevard which is the
main access
Hall, water system and park improvements.
discussed in the 1981 Land Use Plan, the Leon and Rutlege
of a coordinated approach to resource management.
The Coastal Area Management
to Main Street. The residential area of Navassa
is located
soil types make up 75% of the association and, because
Act
g provides two principal mechanisms
to accomplish this
primarily west of SR 1435 and south of SR 1434,
and is characterized by small houses
2. Wilmington Thoroughfare Plan
of high water table and flood hazards, may have severe
p purpose: first, the formulation of local
land use plans such as Wavassa's Sketch Land Use
that in many cases
appear to be in rather poor structural condition. Many
The Wilmington Thoroughfare Plan reflects the Wilmington
9
limitations for use of dwellings with septic tanks.
Plan which
express the objectives of local citizens and translate
of the homes between Main Street and Sturgeon Creek are
"Outer Loop" which, if implemented, would extend a
The remaining 15% a made up the Pactolus type,
these
objectives into future desired land use
located on unimproved and ungraded dirt roads that are 20
freeway around Wilmington from Shipyard Boulevard with
a
which may have moderate limitations for septic tank
ti
patterns; and second,
the designation of areas of environmental concern for
feet wide or less with no public right-of-way for access.
a connect in Brunswick Count at U.S. 74-76. A portion
y P
use. The remaining associations are about equally
the
protection of areas of statewide concern within the coastal
Prior
of this proposed corridor alignment would pass through
divided. These are the Rutl association
(somewhat
area.
to the 19la Land Use Plan being prepared, Navassa
the eastern edge of Navassa near SR 1435.
poor Orly drained, with
very poorly drained, with sandy to
did not have a land use plan. The 1981 Plan did provide
ce
sandy loam surfaces and subsoils), the Marsh association
Both the development of local land use and the designation
a general map and analysis of existing land use; however,
3. 1981 Land Use Plan
(very poorly drained and subject to frequent stream
plans
and regulation of environmentally sensitive areas contribute
the map was very general in nature. One of the primary
of 1987
This Tannin document was
planning prepared under the Coastal
overflow), and the Bibb-Johnston-Lumbee association
(poor to drained
to the management by local and state governments of our limited
goals .the Land Use Plan Update was to provide a
more detailed land use map for
Area Management Act guidelines and outlines Navassa's
very poorly soils on first bottoms,
in bays and along upland draws subject to flooding).
coastal resources. Navassa citizens and local officials benefit
from this
- current and future Town
planning. To accomplish this
policy on numerous land use issues. (See Section II
This analysis should make clear that the soils in Navassa
planning process by reviewing where the community
is now and where it
goal, a base map at 1"=400'
scale was prepared using 1984
for progress in implementation of the 1981 Land Use
are typical of the rest of Brunswick County -- poorly
wants to be in five to ten years, and setting
aerial photography as a base.
This base mapping has been done in
Policies.)
drained and subject to high water tables or frequent
enough detail to show
wooded areas, residential, commercial and industrial
4. Navassa Subdivison Regulations
flooding. Thus, .moderate to severe limitations may
II. PROGRESS IN IMPLEMENTATION OF 1981 PLAN POLICY
buildings, major open space and the transportation network
be present for almost any land use on a particular
and is now available to Town officials for future planning.
These regulations establish minimum desi n standards
9
site. While this possibility does not preclude a
As part of the data collection process, the 1931 policy section
Based on this napping, we have determined that Navassa has
for residential subdivisions and include requirements
particular use, it does require that a careful site
was reviewed to determine what progress has been made in addressing
the following areas of land use as of April, 1987.
for site improvements such as streets, curbs and gutters,
investigation be conducted by competent, qualified
stated policy and goals outlined in the earlier plan. It becomes
drainage, and utilities prior to approval and recordation
persons before development begins or commitments are
apparent that substantial progress has been made in addressing
of any plat.
made.
goals since 1981. Among 16 stated goals, only two remain to
be done. They are (1) adoption of a minimum housing ordinance,
Land Use Acreage Percent of Total
5. Navassa Zoning Ordinance
3. Water Supply
and (2) improving non -state street system to DOT standards. A
third goal, to provide biennial
This ordinance divides the Town into three zoning
As
review of Town policies and
objectives, is in the
Residential 62.8 4.05
districts and establishes permissible uses, lot sizes,
discussed in the 1981 Land Use Plan h drolo i
y 9 c
process of being done.
Commercial .8 05
height of structures and setback re
requirements. Parking
data indicates that groundwater occurs two aquifers,
III. DATA COLLECTION AND
Industrial 171.0 11.02
standards, industrial performance standards and
the unconfined and the principal. The unconfined aquifer
ANALYSIS
Institutional 1.6 .10
administrative requirements are also included.
occurs several feet below land surface, is composed
A. Present Population and Economy
Public 1.3 .
of sand, and contains water at atmospheric pressure.
Recreation g,3 54
6, Mobile Home Park Standards
It is approximately 5 to 30 feet in thickness and is
The 1981 Land Use Plan indicates that Navassa had an estimated
Public Road Right -of -Way 22.8 1.48
a satisfactory source of domestic water supply. Under
population at the time of incorporation in 1977 of 429 people.
Undeveloped 1,284.4 82.68
These standards are included in the zoning ordinance
the unconfined aquifer, and separated by low permeability
The plan also indicated that based on the 1980 census, the
(marsh, wooded, agriculture)
and establish minimum design standards for development
sediments, is the principal aquifer. It generally
Town had grown to 439 people living in 148 houses, for an
Total
of mobile home parks.
occurs between 30 to 70 feet below surface and is
occupancy ratio of 2.9 persons per household. Based on
1,533.0 100.00%
composed of sand, limestone and sandstone. The water
the Office of State Budget and Management Population for
Municipalities, Navassa
IV. CONSTRAINTS - - LAND SUITABILITY
within this aquifer will yield 65 to 140 gallons per
had a population of 470 people on
minute. Using proper managment techniques, it is
July 1, 1985, which represents an increase in population
A. Physical Limitations
expected Navassa could easily develop a public supply
of 31 people over a period of five years, or a 7.1% increase
One major problem from unplanned development observed during
well field satisfy present and future demand. As
in population.
the windshield survey was the numerous houses (24 houses)
1.
estimated 50 0 ,000 gallons per mile is available for
located alongunimproved dirt alleys with no
P Y public
Hazard Areas
use; but to improve quality, reduction in total iron
P q Y+
The estimated demand section of the plan reflects a population
right-of-way. This unplanned development will be difficult
9 y P p'
and hardness may be desirable. To assure the best
projection of between 514 to 576 people in Navassa by the
to resolve other than through programs such as the Community
As discussed in the 1981 Land Use Plan, Navassa has
o
possible quality, the public supply wells should be
year 2000.
Development Block. Grant Program where the structures can
one potential man-made hazard area in the form of local
located away from the Brunswick River and areas of
be relocated and adequate street right-of-way- purchased
industry shipping and storing chemicals in the area.
potential pollution from septic tanks or chemical spills.
B. Existing Land Use
and improvements made.
Because of the nature of these products and the
Land Use for Navassa has not experienced much change since
9
Two areas of Navassa that
production process, they are subject to spills which
can result in the pollution of surface and
B. Fragile Areas
the 1981 Plan was prepared. The two major changes in land
include
are likely a experience changes
in predominant land use are both located the
groundwater
sources.
These
use the development of Quail Meadows subdivision
and, more
on western
edge of Navassa. Both the Quail Meadows Road Lake
are areas which could easily be damaged or destroyed
inappropriate
recently, Klarbane Estates subdivision near the
western
and Shore
Drive will most likely be in transition
A second man-made hazard present in Navassa is the
or poorly planned development. There are
edge of Navassa. The industrial area north of the
from open fields
and P
extensive rail lines and potential for accidents and
se
several fragile areas in Navassa including those areas
residential portion of Navassa has remained unchanged since
wooded areas to residential use during the planning
period.
spilling of chemicals or other potentially hazardous
identified as Areas of Environmental Concern (AEC's),
material.
including coastal wetlands, estuarine waters and public
trust waters.
1. Coastal Wetlands
Coastal wetlands are defined as any salt marsh or other
marsh subject to regular or occasional flooding by
tides, including wind tides (whether or not the tide
waters reach the marshland areas through natural or
artificial watercourses) provided this shall not include
hurricane or tropical storm tides. Salt marsh or other
marsh shall be those areas upon which grow some, but
not necessarily all, of the following salt marsh and
marsh species: Smooth or Salt Water Cordgrass (S artina
alterniflora); Black Needlerush (Juncus roemerianus ;
Glasswort TsaLicornia s .); Salt -Meadow Grass S artina
Patens); Sea Lavender Limonium spp.); Bulrush Scirpus
spp•); Saw Grass (Cladium 'amaicense); and Salt Weed
Grass (Spartina cynosuroidesIncluded in this
definition of wetlands is "any contiguous land as the
Secretary of NRCD reasonably deems necessary to affect
by any such order in carrying out the purposes of this
Section." (G.S. 113-230[a]).
Navassa has jurisdiction over some wetland areas,
primarily located on the west side of the Brunswick
River and along a portion of the north side of Sturgeon
Creek.
These wetlands along our coast serve as a critical
part of the ecosystem. Estuarine dependent species
like fish and shellfish make up over 90% of the total
value of North Carolina's commercial catch; and,
therefore, it is necessary that any future adjacent
development be sensitive to this fragile environment
and meet applicable state or federal regulations for
development.
2. Estuarine Waters
Estuarine waters are defined as all water of the Atlantic
Ocean within the boundary of North Carolina and all
the waters of the bays, sounds, rivers and tributaries
there to seaward of the dividing line between coastal
fishing waters and inland fishing waters, as set forth
in an agreement adopted by the Wildlife Resources
Commission and the Department of Conservation and
Development filed with the Secretary of State entitled
"Boundary Lines, North Carolina Commercial Fishing -Inland
Fishing Waters, revised March 1, 1965" or as it may
be subsequently revised by the Legislature.
These areas are among the most productive natural
environments of North Carolina, for they not only support
valuable commercial and sports fisheries, but are also
utilized for commercial navigation, recreation, and
aesthethic purposes. Species dependent upon estuaries,
such as menhaden, shrimp, flounder, oysters and crabs,
make up over 90 percent of the total value of North
Carolina's commercial catch, .and these species must
spend all or some part of their life cycle in the
estuary. The high level of commercial and sports
fisheries and the aesthetic appeal of coastal North
Carolina are dependent upon the protection and sustained
quality of our estuarine areas.
Havassa's estuarine waters are located generally along
the Brunswick River and Cape Fear River.
3. Public Trust Waters
Public trust waters are defined as all waters of the
Atlantic Ocean and the lands thereunder from the mean
high water mark to the seaward limit of State
jurisdiction, all natural bodies of water subject to
measurable lunar tides and lands thereunder to the
mean high water mark, all navigable natural bodies
of water and lands thereunder to mean high water mark
or ordinary high water mark, as the case may be, except
privately owned lakes to which the public has no right
of access, all waters in artificially created bodies
of water in which exist significant public fishing
resources or other public resources, which are accessible
to the public by navigation from bodies of water in
which the public has no right of navigation, all waters
in artificially created bodies of water in which the
public has acquired rights by prescription, custom,
usage, dedication or any other means. Included in
public trust waters are areas such as waterways and
lands under or flowed over by the tidal waters or
naviable water, to which the public may have rights
of access of public trust rights, and areas which
the State of North Carolina may be authorized to
preserve, conserve, or protect under Article XIV, Section
5, of the North Carolina Constitution. Public trust
waters in Navassa include Davis Creek, Cape Fear River,
Brunswick River and Sturgeon Creek.
4. Archaeologic and Historic Sites
Based on a May 19, 1987 letter from the State Historic
Preservation Officer, there are no recorded
archaeological sites or historic buildings within the
Town Limits of Navassa; however, the area has never
been surveyed to determine if archaeological resources
exist or if structures of historical or architectural
importance exist. The Division of Archives and History
observes that based on their knowledge of this area,
the uplands immediately adjacent to the Cape Fear River,
Davis Creek and Mill Creek hold a high potential for
prehistoric and historic archaeological resources.
Underwater archaeological resources are also likely
to be present in the waters adjacent to the area. Upland
areas that overlook the swamp flood plains of the Cape
Fear and Brunswick Rivers and their tributaries hold
a moderate potential for containing archaeological
resources.
V. CONSTRAINTS - - CAPACITY OF COMMUNITY FACILITIES
A. Existing Water and Sewer
Navassa completed a community -wide water system in 1980.
The system consists of three wells located near Town Hall
and service lines which provide service to all areas of
Navassa. The system provides 150 gpm or 108,000 gpd over
a 12-hour pumping period. In 1986 the Torn completed
construction of a 100,000 gallon elevated storage tank which
has increased water pressure, which in turn provides better
fire protection. The Town is presently in the process of
tying the Navassa water system into the County system.
Navassa does not currently have a sewer system; however,
Town officials are interested in tying into the County sewer
treatment plant which is located to the north of Navassa
and close enough to ilavassa to make such a tie-in feasible.
The plant is in place; however, there are no distribution
lines.

VI
B. Schools, Parks, Primary Roads, Police Fire and Medical
Navassa students attend either Brunswick County Elementary,
Junior or Senior High School, all of which are located within
five miles of Navassa. Primary roads in Navassa are state
maintained roads including SR 1430, 1432, 1434, 1435 and
1443; and all state roads have projected volumes well below
capacity. Navassa has a 10-acre park which is County owned
and operated to serve the recreational needs of Navassa.
The park includes a lighted ball field , tennis court,
basketball court and open space. Town officials have
requested a CAMA planning grant to design a water access
area for the community to provide a water access recreation
facility. Police protection is provided by the .County
Sheriff's Department. Fire and emergency medical services
are provided by volunteers and are adequate to serve the
needs of Navassa using area hospitals.
C. Level of Utilization for Dater System, Sewer System, Schools
and Primary Roads
The Navassa water system is currently utilizing approximately
40,000 gallons per day, which is well below the 108,000
gpd capacity. The 1986 completion of the 100,000 gallon
elevated tank has provided the Town with needed and adequate
storage. Septic tanks are presently being used for sewage
disposal; however, Town officials have set a goal to provide
sewer service by utilizing the County sewer plant north
of Navassa. As discussed earlier, schools and primary roads
should be adequate during the planning period with local
roads now being built to DOT standards.
Since Navassa's incorporation in 1977 as a municipality, there
has been one census of population taken which was in 1980. Based
cn that census, Navassa had a population of 439 oeople, which
represented an increase of 10 people from the 1977 population.
The Office of Budget and Management has projected a 1985 population
for Navassa of 470 people, which represents an increase of 31
people over a five-year period, or a 7.1% increase in population.
Because Navassa does not have a long track record of population
information and the State does not have any population projections
beyond 1985, we have elected to show two population projections
using the 1980 to 1985 7.1% increase as a high estimate and a
3% growth rate per five years as a low growth rate for planning
purposes. These estimates are shown below.
Eatiaated Popoletion Growth
600
s7s
s;6
550
sly•
525
500
503
_
_-__16
- - l99 -+5
/
475
41
450
439
129
125
400
1977 1980 1985 1990
1995 2000
Source:
1980 — 1980 Cellos
1985 — Office of Budget and Mamgeeent
1990-2000 — Novard T. Upp. and Aaaoc
Ltea Eat Late
Using the population estimate of 470 people in 1985 as a base,
with a 3% growth every year for five years between 1985 and the
year 2000, the total increase would be 106. As shown in the
Existing Land Use section, over 82% of Navassa's land area is
currently undeveloped; and accommodating an estimated 44 to 106
more people over a fifteen -year period would not be difficult.
Town officials hope that installation of a sewer system and other
community improvements will bring about even greater growth during
this planning period, which also could be easily accommodated.
Additional growth is desired in hopes of providing more job
opportunities in the community and thereby broadening the economic
base of Navassa.
This modest anticipated growth rate can easily be accommodated
by such facilities as roads, schools and water system.
VII. POLICY STATEMENTS
A. Resource Protection
1. Areas of Environmental Concern
Navassa recognizes the primary concern of the Coastal
Management Program is to provide a means for planning
sound economic growth that is sensitive to the need
to protect natural resources. Town officials share
this concern for the protection and sound management
of these environmentally sensitive lands,and waters.
In terms of developing policies, the estuarine system
Areas of Environmental Concern (AEC's), which include
coastal wetlands, estuarine waters, estuarine shorelines
and public trust areas, will be treated as one uniform
grouping since they are so closely interrelated. Another
reason for grouping these AEC's together is the fact
that the effective use of maps to detail exact on -ground
location of a particular area sometimes poses serious
limitations.
Navassa's overall policy and management objective for
the estuarine system is "to give the highest priority
to their protection and perpetuate their biological,
social, economic and aesthetic values and to ensure
that development occuring within these AEC's is
compatible with natural characteristics so as to minimize
the liklihood of significant loss of private property
and public resources." (15 NCAC 7H. 0203) In accordance
with this overall objective, Navassa will permit those
land uses which conform to the general use standards
of the North Carolina Administrative Code (15 NCAC
7H) for development within the estuarine system.
Generally, only those uses which are water dependent
will be permitted.
2. Hazardous and Fragile Land Areas
a. Freshwater Swamps
Navassa officials support the CAMA program and
the U.S. Corps of Engineers 404 Program, which
has jurisdiction of regulating development in
designated freshwater swamp areas.
b. Marshes
Development in marsh areas is regulated by the
local and State CAMA Permit Officers in addition
to Corps of Engineers regulations. Favassa's policy
is to continue support of these regulations in
an effort to protect this sensitive natural
environment.
c. Maritime Forests
Not applicable in Flavassa.
d. Cultural and Historic Resources
No regulations or zoning to protect historic
structures. Navassa officials would support County
efforts to prepare inventory of historic buildings
and State efforts to identify archaeological sites.
e. Protection of Potable Water Supply
Navassa officials support State regulations
controlling land uses near groundwater sources
as regulated by the North Carolina Division of
Environmental Management through NCAC, Subchapter
2L and Subchapter 2C.
Navassa recognizes the importance of protecting
potable water supplies and, therefore, supports
the enforcement of these regulations if and when
applicable.
f. Storm Water Runoff from Agriculture, Residential
Development, Phospate or Peat Mining
Through support of the Division of Environmental
Ftanagement, Navassa officials support efforts to
regulate storm water runoff through applicable
state and federal regulations.
g. Marina and Floating Home Development
Navassa officicals would support the development
of marinas, in compliance with applicable CAMA
regulations. Floating home development has not
taken place in Navassa. Because of potential
environmental problems, Navassa officials would
not encourage or support development of floating
homes.
h. Industrial Impacts on Fragile Areas
Navassa officials will continue to support applicable
state and federal regulations as they relate to
the siting of new industry or impact of new industry
on environmentally sensitive areas such as Navassa's
rivers and tributaries.
B. Resource Production and Management
1. Productive Agricultural Lands
The 1986 Detailed Soil Survey Report for Brunswick County
includes five soil types as Prime Farmland. They are
Foreston loamy fine sand (Fo), Goldsboro fine sandy
loam (GOA), John fine sandy. loam (Jo), Norfolk loamy
fine sand (NoB), and Onslow fine sandy loam (On). Navassa
contains some Foreston loamy fine sand (Fo) east of
SR 1435 and a larger section of Goldsboro fine sandy
loam (GOA) and Norfolk loamy fine sand (NoB) in the
southwestern corner of Navassa and just north of Sturgeon
Creek. All of the areas are currently wooded areas
or open and uncultivated fields and designated as
Residential -Service areas on the 1987 Land Classification
Map.
2. Commercial Forest Lands
Based on information from the Brunswick County Forestry
Service, there are no known commercial forest areas
inside the Navassa Town Limits.
3. Eiisting and Potential Funeral Production Areas
There are no known mineral production areas inside the
Town Limits of Navassa.
4. Commercial and Recreational Fisheries, Including Nursery
and Habitat Areas
Based on information from the Division of Marine
Fisheries, the Brunswick River, Cape Fear River, Davis
Creek and Sturgeon Creek are all joint waters and serve
as both a nursery and spawning area. This Upper Cape
Fear area is a primary nursery area that is sensitive
to adjacent urban or agricultural runoff and is in need
of protection from such pollution. For that reason,
Navassa officials will continue to support state and
federal efforts to protect this natural resource.
5. Off -Road Vehicles
Navassa does not contain sand dunes or other natural
environments that are subject to abuse by off -road
vehicles. The Town Council does not see a need to
regulate off -road vehicles within the Town Limits other
than applicable current motor vehicle regulations.
6. Residential and Commercial Development
Navassa officials will continue to use the adopted Zoning
Ordinance to direct future growth in the community.
7. Peat and Phosphate Mining
There are no known peat or phosphate mining sites within
the Town Limits of Navassa. Therefore, no regulation
of this type of facility is necessary.
Town of Navassa 1987 Existing Land Use Map
71. prep—tlon of tbia down,ar,l — Motored In part
through o pant provided by the North Caro1W CooByf
MAmMlloont Frogmn. Inr,ib road, provWnd b7 the
Coo tal Z— L•nolKogbt Art of 1974 r . a de4
rbf� is odnlnktrod b tlr Oft of Ocean and Coastal
No,00lot Molftontl a,t. Naarcaan l Ok and AtamOm le
N
o zoo Aoo Boo Izoo
SCALE
1. RESIDENTIAL
All structures on Existing Land Use Map are residen-
tial in use unless otherwise noted.
2. COMMERCIAL
Navassa has two commercial uses. A service sta-
tion/grocery 1s located at the comer of SR 1435 and
SR 1443. The second is located on SR 1434 near the
intersection of SR 1432.
3. INDUSTRIAL
All industrial land use is located north of SR 1432
and includes Bolivia Lumber, Agri -Chemical,
Kaicham Int. Corporation, Infinger Transporation
and Davis Yard which is owned and operated by
CSX.
4. PUBLIC
Semi public use includes the Town Hall at the in-
tersection of SR 1434 and Quail Meadow Road and
the Town Park Site west of SR 1435.

W
II.
III
INTRODUCTION
The Coastal Resources Commission has provided small coastal
communities such as Navassa grant funds through a contract between
the Town of Navassa and the Department (NRCD), Division of Coastal
Management, to prepare a Sketch Level Land Use Plan. The Sketch
Level Plan is an update of the August 1981 Plan and is intended
to give smaller communities an opportunity to plan for the future
as part of the Coastal Management Program.
One of the basic purposes of North Carolina's Coastal Area
Management Act (hereinafter referred to as "CAMA" or "the Act")
is to establish a state management plan that is capable of
rational and coordinated management of coastal resources. The
Act recognizes that the key to more effective protection and
use of the land and water resources of the coast is the
development of a coordinated approach to resource management.
The Coastal Area Management Act provides two principal mechanisms
to accomplish this purpose: first, the formulation of local
land use plans such as 1lavassa's Sketch Land Use Plan which
express the objectives of local citizens and translate these
objectives into future desired land use patterns; and second,
the designation of areas of environmental concern for the
protection of areas of statewide concern within the coastal
area.
Both the development of local land use plans and the designation
and regulation of environmentally sensitive areas contribute
to the management by local and state governments of our limited
coastal resources. Navassa citizens and local officials benefit
from this planning process by reviewing where the community
is now and where it wants to be in five to ten years, and setting
goals and policies to reach those objectives.
PROGRESS IN IMPLEMENTATION OF 1981 PLAN POLICY
As part of the data collection process, the 1931 policy section
was reviewed to determine what progress has been made in addressing
stated policy and goals outlined in the earlier plan. It becomes
apparent that substantial progress has been made in addressing
goals since 1981. Among 16 stated goals, only two remain to
be done. They are (1) adoption of a minimum housing ordinance,
and (2) improving non -state street system to DOT standards. A
third goal, to provide biennial review of Town policies and
objectives, is in the process of being done.
DATA COLLECTION AND ANALYSIS
A. Present Population and Economy
The 1931 Land Use Plan indicates that Navassa had an estimated
population at the time of incorporation in 1977 of 429 people.
The plan also indicated that based on the 1980 census, the
Town had grown to 439 people living in 148 houses, for an
occupancy ratio of 2.9 persons per household. Based on
the Office of State Budget and Management Population for
Municipalities, Navassa had a population of 470 people on
July 1, 1985, which represents an increase in population
of 31 people over a period of five years, or a 7.1% increase
in population.
The estimated demand section of the plan reflects a population
projection of between 514 to 576 people in Navassa by the
year 2000.
B. Existing Land Use
Land Use for Navassa has not experienced much change since
the 1981 Plan was prepared. The two major changes in land
use include the development of Quail Meadows subdivision
and, more recently, Klarbane Estates subdivision near the
western edge of Navassa. The industrial area north of the
residential portion of Navassa has remained unchanged since
1981, with Agri Chemicals facility (vacant), Bolivia Lumber,
C. Current Plans, Policies and Regulations
Davis Yard CSX and Infinger Transportation Company, Inc.,
being in their same facilities. In addition to industrial
The following represents a list and brief description of
facilities, Navassa has two commercial uses which include
current plans, policies and regulations for the Town of
a small grocery -service station at the intersection of SR
Navassa.
1435 and 1443 and a spetic tank business on Main Street.
As one enters'Navassa from Leland on SR 1435, the land use
1. 1930 Community Facilities Plan and Capital Improvements
remains predominantly marsh and open fields and wooded areas
program
on the right side of the road as you cross the bridge and
enter the Town Limits. The left side of the road as you
This plan provides a survey and analysis of existing
enter Navassa is also characterized with marsh and wooded
and needed community facilities and recommendations
areas as the predominant land use along Sturgeon Creek.
on methods of implementation and financing. Based
Approximately 800 to 1,200 feet from the bridge and along
on a review of this plan, many of the major items
SR 1435 are located three radio towers, with residential
discussed have been accomplished, including a new Town
use beginning on each side of the Boulevard which is the
Hall, water system and park improvements.
main access to Main Street. The residential area of Navassa
is located primarily west of SR1435 and south of SR 1434,
2, Wilmington Thoroughfare Plan
and is characterized by small houses that in many cases
to be
The Wilmington Thoroughfare Plan reflects the Wilmington
appear in rather poor structural condition. Many
of the homes between Main Street and Sturgeon Creek are
"Outer Loop" which, if implemented, would extend a
located on unimproved and ungraded dirt roads that are 20
freeway around Wilmington from Shipyard Boulevard with
feet wide or less with no public right-of-way for access.
a connect in Brunswick County at U.S. 74-76. A portion
of this proposed corridor alignment would pass through
Prior to the 1981 Land Use Plan being prepared, Navassa
the eastern edge of Navassa near SR 1435.
did not have a land use plan. The 1981 Plan did provide
3. 1981 Land Use Plan
a general map and analysis of existing land use; however,
the map was very general in nature. One of the primary
This planning document was prepared under the Coastal
goals of .the 1987 Land Use Plan Update was to provide a
Area Management Act guidelines and outlines Navassa's
more detailed land use map_ for _ current and future Town
policy on numerous land use issues. (See Section II
planning. To accomplish this goal, a base map at 1"=400'
for progress in implementation of the 1981 Land Use
scale was prepared using 1984 aerial photography as a base.
Policies.)
This base mapping has been done in enough detail to show
wooded areas, residential, commercial and industrial
q, Navassa Subdivison Regulations
buildings, major open space and the transportation network
and is now available to Town officials for future planning.
These regulations establish minirium design standards
Based on this mapping, we have determined that Navassa has
for residential subdivisions and include requirements
the following areas of land use as of April, 1987.
for site improvements such as streets, curbs and gutters,
drainage, and utilities prior to approval and recordation
of any plat.
5. Navassa Zoning Ordinance
Land Use Acreage Percent of Total
This ordinance divides the Town into three zoning
Residential 62.8 4.05
districts and establishes permissible uses, lot sizes,
Commercial ,8 .05
height of structures and setback requirements. Parking
Industrial 171.0 11.02
standards, industrial performance standards and
Institutional 1.6 .10
administrative requirements are also included.
Public 1.3 .OS
Recreation 8.3 .54
6. Mobile Home Park Standards
Public Road Right -of -Way 22.8 1.48
These standards are included in the zoning ordinance
Undeveloped 1,284.4 82.68
and establish minimum design standards for development
(marsh, wooded, agriculture)
of mobile home parks.
Total 1,533.0 100.00%
IV. CONSTRAINTS - - LAND SUITABILITY
A. Physical Limitations
One major problem from unplanned development observed during
the windshield survey was the numerous houses (24 houses)
1. Hazard Areas
located along unimproved dirt alleys with no public
right-of-way. This unplanned development will be difficult
As discussed in the 1981 Land Use Plan, Navassa has
to resolve other than through programs such as the Community
one potential man-made hazard area in the form of local
Development Block. Grant Program where the structures can
industry shipping and, storing chemicals in the area.
be relocated and adequate street right-of-way purchased
Because of the nature of these products and the
and improvements made.
production process, they are subject to spills which
Two dreas of Navassa that are likely to experience changes
can result in the pollution of surface and groundwater
sources.
in predominant land use are both located on the western
edge of Navassa. Both the Quail Meadows Road and Lake Shore
A second man-made hazard present in Navassa is the
Drive will most likely be in transition from open fields
extensive rail lines and potential for accidents and
and wooded areas to residential use during the planning
spilling of chemicals or other potentially hazardous
period.
material.
One natural hazard present in Navassa is the potential
1. Coastal Wetlands
high water mark to the seaward limit of State
for flooding along Davis Creek, Cape Fear and Brunswick
jurisdiction, all natural bodies of water subject to
Rivers and Sturgeon Creek. No major problems have
Coastal wetlands are defined as any salt marsh or other
measurable lunar tides and lands thereunder to the
been caused by the location of current development;
marsh subject to regular or occasional flooding by
mean high water mark, all navigable natural bodies
however, as the community grows this potential hazard
tides, including wind tides (whether or not the tide
of water and lands thereunder to mean high water mark
should be carefully considered in the future location
waters reach the marshland areas through natural or
or ordinary high water mark, as the case may be, except
of residential, commerical and industrial uses.
artificial watercourses), provided this shall not include
privately owned lakes to which the public has no right
hurricane or tropical storm tides. Salt marsh or other
of access, all waters in artificially created bodies
2. Soil Limitations
marsh shall be those areas upon which grow some, but
of water in which exist significant public fishing
not necessarily all, of the following salt marsh and
resources or other public resources, which are accessible
Based on the U.S. Department of Agriculture, Soil
marsh species: Smooth or Salt Water Cordgrass (S artina
to the public by navigation from bodies of water in
Conservation Service Soil Surve over 60% of Navassa's
y'
alterniflora); Black Needlerush (Juncus roemerianus ;
which the public has no right of navigation, all waters
soils are the Leon-Rutlege-Pactolus association. As
Glassw rt Salicornia s ); Salt -Meadow Grass S artina
in artificially created bodies of water in which the
has by custom,
discussed in the 1981 Land Use Plan, the Leon and Rutle a
9
�aten�s); Sea Lavender Limonium spp.); Bulrush Scirpus
'amaicense);
public acquired rights prescription,
soil types make up 75% of the association and, because
s .), Saw Grass (Cladium and Salt Weed
��
usage, dedication or any other means. Included in
of high water table and flood hazards, may have severe
Grass (Spartina cynosuroird� Included in this
public trust waters are areas such as waterways and
limitations for use of dwellings with septic tanks.
definition of wetlands is any contiguous land as the
lands under or flowed over by the tidal waters or
The remaining 15% is made up of the Pactolus type,
Secretary of NRCD reasonably deems necessary to affect
naviable water, to which the public may have rights
which may have moderate limitations for septic tank
by any such order in carrying out the purposes of this
of access of public trust rights, and areas which
use. The remaining associations are about equally
Section." (G.S. 113-230[a]).
the State of North- Carolina may be authorized to
conserve, or under Article XIV, Section
divided. These are the Rutlege-Pluck-Leon association
Navassa has jurisdiction over some wetland areas,
preserve, protect
5, of the North Carolina Constitution. Public trust
(somewhat poor to very poorly drained, with sandy to
sandy loam surfaces and subsoils), the Marsh association
primarily located on the west side of the Brunswick
waters in Navassa include Davis Creek, Cape Fear River,
(very poorly drained and subject to frequent stream
River and along a portion of the north side of Sturgeon
Brunswick River and Sturgeon Creek.
overflow), and the Bibb-Johnston-Lumbee association
Creek.
(poor to very poorly drained soils on first bottoms,
in bays and along upland draws subject to flooding).
These wetlands along our coast serve as a critical
This analysis should make clear that the soils in Navassa
part of the ecosystem. Estuarine dependent species
4. Archaeologic and Historic Sites
are typical of the rest of Brunswick County -- poorly
like fish and shellfish make up over 90% of the total
drained and subject to high water tables or frequent
value of North Carolina's commercial catch; and,
Based on a May 19, 1987 letter from the State Historic
flooding. Thus, moderate to severe limitations may
therefore, it is necessary that any future adjacent
Preservation Officer, there are no recorded
' be present for almost any land use on a particular
development be sensitive to this fragile environment
archaeological sites or historic buildings within the
9� 9
site. While this possibility does not preclude a
and meet applicable state or federal regulations for
Town Limits of Navassa; however, the area has never
particular use, it does require that a careful site
development.
archaeological
been surveyed to determine if cal resources
Y 9�
investigation be conducted by competent, qualified
exist or if structures of historical or architectural
persons before development begins or commitments are
2. Estuarine Waters
importance exist. The Division of Archives and History
made.
observes that based on their knowledge of this area,
Estuarine waters are defined as all water of the Atlantic
the uplands immediately adjacent to the Cape Fear River,
3. Water Supply
Ocean within the boundary of North Carolina and all
Davis Creek and Hill Creek hold a high potential for
the waters of the bays, sounds, rivers and tributaries
prehistoric and historic archaeological resources.
As discussed in the 1981 Land Use Plan, hydrologic
there to seaward of the dividing line between coastal
Underwater archaeological resources are also likely
to be in the to the area. Upland
data indicates that groundwater occurs c two aquifers,
fishing waters and inland fishing waters, as set forth
9 9
present waters adjacent
areas that overlook the swamp flood plains of the Cape
the unconfined and the principal. The unconfined aquifer
in an agreement adopted by the Wildlife Resources
Fear and Brunswick Rivers and their tributaries hold
occurs several feet below land surface, is composed
Commission and the Department of Conservation and
a moderate potential for containing archaeological
of sand, and contains water at atmospheric pressure.
Development filed with the Secretary of State entitled
It is approximately 5 to 30 feet in thickness and is
"Boundary Lines, North Carolina Commercial Fishing -Inland
resources.
a satisfactory source of domestic water supply. Under
Fishing Waters, revised March 1, 1965" or as it may
the unconfined aquifer, and separated by low permeability
be subsequently revised by the Legislature.
sediments, is the principal aquifer. It generally
occurs between 30 to 70 feet below surface and is
These areas are among the most productive natural
environments of North Carolina, for they not only support
Y. CONSTRAINTS - - CAPACITY OF COMMUNITY FACILITIES
composed of sand, limestone and sandstone. The water
within this aquifer will yield 65 to 140 gallons per
valuable commercial and sports fisheries, but are also
minute. Using proper managment techniques, it is
utilized for commercial navigation, recreation, and
A. Existing Water and Sewer
expected Navassa could easily develop a public supply
aesthethic purposes. Species dependent upon estuaries,
well field to satisfy present and future demand. As
such as menhaden, shrimp, flounder, oysters and crabs,
Navassa completed a community -wide water systera in 1980.
estimated 500,000 gallons per mile is available for
make up over 90 percent of the total value of North
The system consists of three wells located near Town Hall
use; but to improve quality, reduction in total iron
Carolina's commercial catch, .and these species must
and service lines which provide service to all areas of
and hardness may be desirable. To assure the best
spend all or some part of their life cycle in the
Navassa. The system provides 150 gpm or 108,000 gpd over
possible quality, the public supply wells should be
estuary. The high level of commercial and sports
a 12-hour pumping period. In 1986 the Tom completed
located away from the Brunswick River and areas of
fisheries and the aesthetic appeal of coastal North
pp
construction of a 100,000 gallon elevated storage tank which
potential pollution from septic tanks or chemical spills.
P P P P�
Carolina are dependent upon the protection and sustained
has increased water pressure, which in turn provides better
quality of our estuarine areas.
fire protection. The Town is presently in the process of
B. Fragile Areas
Navassa's estuarine waters are located generally along
tying the Navassa water system into the County system.
These are areas which could easily be damaged or destroyed
the Brunswick River and Cape Fear River.
Navassa does not currently have a sewer system; however,
by inappropriate or poorly planned development. There are
Town officials are interested in tying into the County sewer
several fragile areas in Navassa including those areas
3. Public Trust Waters
treatment plant which is located to the north of Navassa
identified as Areas of Environmental Concern (AEC's),
and close enough to llavassa to make such a tie-in feasible.
including coastal wetlands, estuarine waters and public
Public trust waters are defined as all waters of the
The plant is in place; however, there are no distribution
trust waters.
Atlantic Ocean and the lands thereunder from the mean
lines.

Notes for Legend
1. Residential - All structures shown on Existing Land Use Map are residential in use unless operwise noted.
2. Commercial - Nevassa has two commercial uses. A service station/grocery is located at theicorner of SR 1435 and SR 1443.
The second is located on SR 1434 near the intersection of SR 1432.
3. Industrial - All industrial land use is located north of SR 1432 and includes Bolivia Lumbe� Agri -Chemical, Kaicham Int.
Corporation, Infinger Transportation and Davis Yard which is owned and opera eel by CSX.
4. Public - Public land use includes the Town Hall at the intersection of SR 1434 and Quat Meadow Road and the Town Park
Site west of SR 1435.
5. Semi Public - Semi public use includes two churches on the north side of SR 1434 and two loiges, one located on the north side
of SR 1434 and one north of the Town Park.
0 200 400 Boo 1200
SCALE
wn of
1987 Existing Land Use Map
L� Residential
T Commercial
EE Industrial
CK Public
0 Semi Public
Proared by
HOWARD T. CAPPS dam? ASSOCIATES
Landscape flrchaect • Land Planner
321 North Front Street
Wilmington, North Carolina

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Industrial —Commercial
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HOW'ARD T CAPPS 0 ASSOCIATES
Landscape : 4rchitect • Laud Planner
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Wilmington, North Carolina
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Q:7 SCALE
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Town of Navassa
Possible Road Improvements
IrWl ad by
HOWARD T, CAPPS T ASSOCIATES
Landscape.4rchmecr - Land Planner
321 North Front Street
Wilmington, North Carolina

LEGEND
Residential
� Commercial
_ Industrial
EXISTING LAND USE MAP
1976
Government &
Institutional
Cultural,
Entertainment,
& Recreation
XX\14_4
�~
/ TOWN OF
- R,9�NOKF S(JbA/0 NAGS HEAD, N.C.
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ATLA A'70 OCEAA/
Forestland
Water
Wetland
� Barren (BEACHES)
�] Undeveloped
Land
Transportation
Communication,
& Utilities
LAND CLASSIFICATION
The Coastal Resources Commission has adopted a five -
category classification system for use by local governments to
identify the general use of land, to guide population growth to
areas which can best be served by necessary utilities, and to
conserve natural resources by guiding development.
The Town of Nags Head has been designated as a growth area
as part of the Dare County Land Use Plan. The County Develop-
ment Plan has placed Nags Head in the transitional classifica-
tion with the exception of some conservation areas.
More detailed allocations of land uses are determined by the
Town's development codes. Since Nags Head is limited to its
present geographic size (the municipal limits of Kill Devil Hills
lie to the north, the Atlantic Ocean to the east, and Roanoke
Sound and National Park Service lands to the west), the use of
land must be carefully coordinated to allow for the orderly
development of a well-balanced community and to preserve the
unique characteristics of the Town to the greatest extent
possible.
The five categories are:
Developed lands: Which can range from small communities to
large incorporated cities, where population density is moderate
to high, and where there are a variety of land uses which have
the necessary public services and utilities.
Transition lands: Which comprises areas suitable for moderately
intensive development, and expansion of predominantly resi-
dential character. These areas are also capable of accommodat-
ing other uses compatible with such development. The level of
public services and utilities in these areas is less intense than in
developed lands.
Community lands: Which include areas capable of low intensity
residential development. Public services and utilities in these
areas will be available at a lower level than in the developed and
transition lands.
LAND CLASSIFICATION
1976
LEGEND
MAP
Rural lands: Which comprise areas with little or no urban
development. They are characterized by low-lying lands suited
primarily for carefully managed programs such as forestry,
agriculture or passive recreation. The lands used for these
purposes will help stabilize the seasonal fluctuation of the local
economy. Public services and utilities in these areas will be
limited. Rural lands could also provide open spaces to serve as
buffer zones or to be held in reserve for future uses as yet
unanticipated.
Conservation lands: Which are areas where development must
be restricted. These lands are incapable of supporting urban
development because of their fragility or hazardous nature; or
because their use as natural, agricultural or forestry resources
holds a higher value than does development. Conservation
lands will protect areas representing potential sources of public
water supply or as water supply recharge areas. Privately owned
wildlife refuges, wilderness areas and passive recreation areas
are classified conservation lands. In addition, large publically
owned or controlled tracts are classified as conservation lands
to protect historic, cultural and natural resources.
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1

GOALS AND OBJECTIVES
A. The citizens have indicated their concern with the quali-
ties of living in Nags Head which are most important to
them, and which seem most threatened if present trends
continue. These qualities are:
1. The slow pace of life in Nags Head.
2. Freedom from pollution and the pressures of urban
populations.
3. The natural environment of the Outer Banks and the
recreational activities associated with it.
4. The inaccessibility of Nags Head and the privacy
available here.
The overall goal of the Nags Head Land Use Plan will be to
preserve and enhance these qualities which are unique so that
the Town will continue to be a pleasant place to live for
permanent residents, and remain attractive to the visitors who
are vital to the economic well-being of the Town.
B. The citizens of Nags Head indicated general agreement
with the Goals of the 1972 Land Development Plan, but
suggested some alternative objectives and policies for
achieving those goals. The concepts which most people
agreed upon are the assumptions on which the develop-
ment policies and standards will be based.
1. Effective planning can minimize the potential con-
flicts between the sound economic development of
Nags Head, and the natural environment which is
the major attraction of the area.
2. Nags Head should give a high priority to improving
community services and utilities to accomplish the
objectives of the Land Use Plan.
3. Industry, or other large scale development, should
provide local officials with an assessment of the pri-
mary and secondary impact that such development
will have upon the natural and cultural environment
of Nags Head.
4. The natural resources of the area must be con-
served to maintain their attractiveness and pro-
tective functions.
5. The growth of Nags Head should be controlled in
accordance with plans for the provision of the nec-
essary services to accommodate that growth.
Goal
Provide for the development and expansion of tourism as
the major industry of Nags Head.
Objectives
1. The "Family Beach" atmosphere is the attraction which
brings most visitors back to Nags Head. This image should
be reinforced and encouraged.
2. The seasonal fluctuations of the tourist oriented economy
should be stabilized by extending the season to make more
economical use of facilities and services.
3. Public access to the beach should be provided for land -
docked property owners.
4. A commercial services park for the location of wholesale
warehousing and distribution activities should be develop-
ed. This would help to retain a larger share of the recrea-
tion income in Nags Head, as well as provide a wider range
of job diversification.
5. The construction of vacation homes will be encouraged.
This will increase private investment in Nags Head and help
extend the tourist season.
-v
O
tad T
LS
Goal
Coordinate the future growth and development of the Town
of Nags Head with adjacent municipalities and with Dare
County.
Objectives
1. This plan, under the guidelines of the Coastal Area Man-
agement Act, represents a joint effort between the Plan-
ning Boards of Nags Head, Dare County, Kill Devil Hills and
Manteo. Further cooperative planning efforts should be
encouraged for the periodic review and revision of policies
affecting all of the local governments.
2. The development of an adequate water and sewer system to
serve the needs of this growing community is imperative.
Coordination of each unit of government involved is re-
quired for the successful achievement of this objective.
3. The joint Thoroughfare Plan prepared for the Town of Nags
Head and Kill Devil Hills by the N.C. Department of
Transportation should be adopted as part of the overall
planning program, along with the specific recommenda-
tions for implementation included in it.
Goal
Conserve air, water, and land resources and preserve the
natural environment to the extent possible.
Objectives
1. Proposed development should not destroy or irretrievably
alter:
A. Wetlands
B. Frontal Dunes
C. Beaches
D. Estuarine or Impounded Surface Waters
E. Prime Wildlife Habitat
F. Unique natural areas, historic or archeological sites
2. Proposed development should not encroach upon or be
endangered by:
A. Areas of special flood hazard
B. Ocean front erosive areas
C. Inlets and areas within range of their migration
D. Estuarine erosive areas
3. Proposed development should not significantly affect the
quality or reduce the value of:
A. Public or privately owned forest, park, game lands,
sanctuaries or other non -intensive recreation areas.
B. Aquifers, or aquifer recharge areas, or public water
supply watersheds or water supply areas.
Goal
Provide for the orderly growth and development of Nags
Head as a community for year-round family living as well as
as a family ocean resort community.
Objectives
The development of land and water areas within Nags Head
should be undertaken in accordance with sound resource
management principles. This will allow for the most economic
use of public funds invested in services, and enhance any
private investment in the long-term future of the Town. The
standards expressed in the Town codes will guide the location of
development to appropriate areas; and identify certain mea-
sures necessary to insure safety and convenience for residents
of, and visitors to Nags Head.
F COMMISSIONERS
and
CITIZENSIA1111a
WHAT DEMANDS WILL BE MADE
The following table depicts the desired population changes
for Nags Head based on the stated objectives of orderly growth
and development:
Permanent
Seasonal
Total Peak
Year
Population
Population
Population
1975
512
11,488
12,000
1980
607
14,273
14,880
1985
717
16,993
17,710
1990
828
20,264
21,092
2000
1148
28,477
29,265
2025
1419
35,197
36,616
Since the present water supply for Nags Head is inadequate,
the voters of Nags Head and Dare County have taken the first
step to accommodate this growth by passing a bond referendum
to provide a dependable water supply. With that supply, the
growth which is expected to occur during the next ten year
period can be accommodated in the Transitional lands estab-
lished by this Plan. This classification comprises around 75% of
the total land area of the Town.
Over 25% of Nags Head is in the Conservation category
which is preserved from urban development.
Within the area of Nags Head that has been classified
Transitional, there will be individual sites which cannot be
developed due to the constraints mentioned in this Synopsis.
Growth will, of necessity, be at a low density because it will
be governed by the Dare County Septic Tank Regulations. These
help to prevent pollution of estuarine waters and contamination
of the ground -water supply. The desired growth for Nags Head
will yield a gross population density of around five people per
acre in the Transitional land classification. That would be a
peak tourist weekend in July or August of 1985 when all the
visitor accommodations are full.
The effect of previously platted sub -standard lots on the
population growth desired for Nags Head will be minimized by
the Zoning Ordinance, and by the Dare County Septic Tank
Regulations. These prohibit the development of such lots until
an approved community water supply or sewage disposal sys-
tem is available. The Nags Head Subdivision Regulations require
developers to install the necessary utilities and streets so that
the cost of these additional services should not increase the
general tax burden.
To achieve the goals of protecting the vital shellfish waters
and shallow ground -water supply of Nags Head, a central
sewage collection and treatment system is required. Nags Head,
Dare County and the other municipalities have joined together
to examine this problem and to propose a solution to it. The
cost of the system which results from that study will require a
Bond Referendum and a commitment from the voters. Engineer-
ing studies indicate that such a system might cost in excess of
$11 million. Due to the fact that it is impossible to accurately
predict future changes in Federal and State loan and grant
programs, it would be unwise to anticipate any funding assist-
ance for such a project. Any available assistance would, of
course, reduce the cost of the facilities to the local govern-
ments. The expenditures for treatment plans, pumping stations
and major collection lines may be covered by a bond referen-
dum or similar funding. But collection lines to serve existing
individual homes and businesses in Nags Head must be justified
by the need and willingness of the users to finance such
services.
HOW AND WHY IT ALL BEGAN
The Town of Nags Head has maintained an active planning
program since its incorporation in 1961. Over the years, it has
adopted and periodically updated a Land Development Plan to
guide the growth of the town in an orderly manner.
Ordinances have been passed to enforce the standards set by
the Plan. These have been implemented by the Planning Board
and Town Commissioners.
In 1974, the North Carolina General Assembly passed the
Coastal Area Management Act requiring coastal communities to
adopt land use plans which ref lectthe desires and needs of coast-
al residents; and insure the protection, preservation, orderly
development, and management of the Coastal Area. The Town
Commissioners designated the Nags Head Planning Board as the
responsible agency for assuring that the Nags Head Land Use
Plan was in compliance with the Act.
To insure the maximum amount of participation in the
planning process and to assist them in necessary revisions of the
existing land use plan, the Planning Board appointed a Citizens
Advisory Committee on Land Use Planning. The responsibilities
of the Citizens Advisory Committee were:
(1) To advise the Board of Commissioners and Planning Board
during the preparation of the Land Use Plan required by the
Coastal Area Management Act of 1974.
(2) To secure the views of a wide cross section of citizens on
possible goals and policies to be included in the Land Use
Plan; assuring that not only different geographical areas of
the Town, but the varying economic, social, and cultural
interests were represented.
(3) To make sure that individuals in the community understand
the problems and procedures involved in land use plan-
ning; and to get individuals to take an active part in evalu-
ating present land use, and planning for the future.
The Planning Board and the Citizens Advisory Committee
held public meetings for the northern, central, and southern
areas of the Town. These sessions worked to inform the citizens
of the requirements of the Coastal Area Management Act and to
receive their input for the preparation of this Statement of
Objectives and Policies which will become the basis for guiding
the future development of the Town.
Members of the Nags Head Planning Board participated in
forming a questionnaire which was used to help define the
objectives and concerns of the citizens of Nags Head.
Personal door-to-door and face-to-face contact of residents
by members of the Planning Board and Advisory Committee was
responsible for getting large numbers of local citizens involved
in the planning process. Local newspaper articles and radio
interviews were also used to increase awareness of the program.
Over 30% of the permanent population responded to the
questionnnaire, and over 27% of the questionnaires mailed to
non-resident property owners were returned. The large number
of additional written comments on the questionnaires indicated
a real interest in the direction the Town was taking. The
response of the participants at the community meeting was well
thought out, and generated some meaningful direction for
revisions in the existing Nags Head Land Use Plan.
This process resulted in the identification of the major land
use issues and problems as perceived by the citizens of Nags
Head, and the development of long-range goals and policies
which reflect these concerns.
The intent of this Plan and the regulatory ordinances based on
it is to control the growth of Nags Head to a level acceptable to
its citizens, and within the limits of their willingness to support
it.
The continued development of the town will be carefully
monitored to insure that the standards and policies of this Plan
are maintained and that the most economical use is made of
public funds to supply the required services.
STEPS REQUIRED FOR IMPLEMENTATION
A. Land Use Policy
The very publication of a document such as the Nags
Head Land Use Plan can have an influence on the way
the community develops in the future, provided that it
is well publicized and understood by the citizens. For the
Plan to have a real impact on development, however, it
must be recognized as a formally adopted statement of
public policy -a public commitment to the goals which
are considered most desirable for the future of Nags
Head. The Land Use Plan must become a factor in the
decisions made by the Town Board. It must influence
choices between alternative courses of actions which oc-
cur daily. The Land Use Plan must also generate other
programs which will be necessary in order to achieve the
goals outlined in it.
B. Regulatory Ordinances
Probably the most commonly used and most familar of
the regulatory methods of implementing the Land Use
Plan is the zoning ordinance. In the legislation passed by
the N.C. General Assembly to enable towns to enact zon-
ing ordinances (N.C.G.S. 160A-383), there is the require-
ment that "such regulations shall be made in accordance
with a comprehensive plan...". Thus, it is mandatory
that the zoning ordinance and the Land Use Plan be in
harmony and lead to the achievement of the stated goals
for community development. Interpretations of the zon-
ing ordinance by the building inspector and Board of
Adjustment should also reflect the influence of the Land
Use Plan as the ultimate statement of public policy on
land use.
The regulation of subdivisions provides an opportunity
to insure that new development will occur in an orderly
manner. The provisions for review of subdivision plats by
the Planning Board should insure that such development
is coordinated with the appropriate utility and thorough-
fare systems, and that the development is of a quality
and at a density that will further the goals of the Land
Use Plan.
The North Carolina Building Code, the Dare County
Dune Protection Ordinance, and the Flood Hazard Ordi-
nance are important regulatory tools to implement the
Land Use Plan. Nags Head also intends to act as a permit -
letting agency for minor developments in future Areas of
Environmental Concern as authorized by the Coastal
Area Management Act.
MAJOR LAND USE ISSUES AND TRENDS
A. Population and Economic Trends
The permanent population of Nags Head is estimated to
have increased over 20% in the five years since the last
census. The statistical profile of Nags Head residents in-
dicates an increasingly older population with an average
family size of only 2.6, significantly smaller than other
communities in the region. The attraction of Nags Head
for retirees is evident in these trends.
An increasingly older population places specialized de-
mands on a community. Additional health care and
other community services will be necessary, and the
buying power of these individuals' fixed retirement in-
comes will be directly affected by fluctuations in the
national economy.
The economic and physical impact of seasonal visitors
to Nags Head must also be carefully measured and taken
into account for planning municipal facilities and serv-
ices. Summer visitors in 1975 had the effect of increasing
the population of the Town by more than 1,500%,
almost overnight. In spite of a general slowing of the
economy of the entire nation, visitation to this area
actually increased in 1975.
The needs and desires of permanent residents seeking a
retirement haven, and the requirements of the tourist -
oriented economy of the Town must be balanced. It is
also important to try to achieve stabilization of the high-
ly seasonal economy through programs designed to ex-
tend the tourist season, and to increase local supply
and service industries.
B. Housing and Community Services
The most urgent issue identified by the residents of
Nags Head was the lack of readily available medical and
health care services. This problem will become even
more critical as the population increases.
The inadequacy of the present municipal water supply
is also recognized as a pressing problem. This serious
situation is most evident when the peak demand is plac-
ed on the system by seasonal visitors. For it occurs at the
same time that the fresh water recharge, through rain-
fall, is at its lowest rate. Septic tanks are no longer a
satisfactory solution to the problem of sewage disposal
when population densities begin to increase as they have
in Nags Head. A modern sewage disposal system has
become necessary to prevent the pollution of the highly
productive sounds, and to eliminate the potential health
hazard of a contaminated water supply.
Methods for the disposal of increasing amounts of trash
and garbage pose a fundamental question. The solid
waste problem is compounded by the fact that suitable
sites for disposal are also areas which have the greatest
attractiveness for development.
While there are some recreational attractions for tourists
in the Town, the recreation needs of permanent resi-
dents have not been recognized. As the community
develops, expanded cultural and recreational facilities
will be required to meet the increasing demand. Other
community programs including police and fire protec-
tion, education and social services must also take into
account this dual nature of the populace of Nags Head.
C. Public Investment
The most direct means of implementing the Land Use
Plan is through the preparation of a Public Improvements
Program and Capital Budget. This process is a com-
mitment of public resources and facilities to the goals
of the Land Use Plan. A thorough examination of each
municipal department is necessary to detemine the
projects and facilities which will be required over the
twenty year planning period. Careful consideration of
needs, as related to objectives, should result in a priority
listing of the major items of expense. Then, with a re-
view of the fiscal resources available through general
revenue, bonding capacity, taxation, and possible state
and federal assistance, a specific budget for a six year
program of public expenditure may be prepared.
The capital budget process is intended to provide a
vehicle through which the community can most eco-
nomically relate public expenditures to the Land Use
Plan. This will allow for the necessary and desirable pub-
lic improvements to occur with the lowest cost to the
taxpayer.
POTENTIAL AREAS OF ENVIRONMENTAL CONCERN
There is sufficient land suitable for development in Nags
Head to accommodate projected and desirable future growth
without infringing upon areas unsuited for development. In
addition to those areas included in the conservation classifica-
tion, there are some areas which, because of their over-
riding importance, their fragility, or the hazard they represent,
should either be protected from development or developed only
with special precautions. Before any management action con-
cerning these areas is taken by the Coastal Resources Commis-
sion, a public hearing will be held in the county. This will
enable you to voice any opinions you may have about fragile
areas.
Within Nags Head those areas which are under examination are:
A. Coastal Wetlands:
1. Description
The marsh areas along the causeway and in scattered
locations on the shoreline of Roanoke Sound.
2. Permissible Uses
Erosion control, fishing piers, docks, bulkheads (on
upland side), utility easements, limited dredging for
access to navigable waters, and such other develop-
ment requiring water access which do not significantly
alter the natural function of the marsh.
B. Estuarine Waters:
1. Description
Those Roanoke Sound waters which are classified S-A
for the taking of shellfish.
2. Permissible Uses
Propagation of marine life, navigation, fishing, swim-
ming, water skiing, boating, fishing piers and docks.
C. Resource Areas -Watersheds or Aquifers:
1. Description
The water impoundment and immediate area around
the Fresh Pond.
2. Public water supply, recreation, and other develop-
ment only when provided with public waste water
disposal system.
Unplanned commercial and industrial developments
have appeared in residential neighborhoods, creating an
incompatible situation. The residents of Nags Head see
this, along with the over -commercialization of the
beach, as a problem. These could destroy the "family
beach" atmosphere that is a major attraction for many
visitors. Overcrowded subdivisions with small lots and
structures which are out of scale with the low profile
of vegetation and land features, also threaten the style
of living valued by Nags Head residents.
C. Productive Natural Resources
Nags Head is located at the edge of some of the world's
most productive breeding grounds for shellfish and fin -
fish. Commercial fisheries have long been a mainstay of
the local economy. In recent years, sport and recreation-
al fishing, with its related tourism, have overshadowed
commercial fishing as the basis for economic well-being.
The use of land for the varied recreational ex-
periences available here is part of the natural wealth of
the area. The interdependence of these two most valued
productive resources, the water and the land, make it
imperative that their use be carefully managed to con-
serve their productivity. Soil erosion by wind and water,
and pollution of the sounds and ocean are problems
which threaten to destroy the very things which make
Nags Head attractive.
D. Important Natural Environments
Nags Head is the site of two areas which have been
designated as Registered National Historic Landmarks.
Jockey's Ridge, which has been acquired as a State
Park, is recognized as the highest natural sand dune on
the east coast of the United States. Nags Head Woods is
a unique example of maritime forest which harbors an-
cient dunes, fresh water ponds and bogs.
Their conservation is necessary to insure that future
generations of coastal residents and visitors have the
opportunity to participate in an important part of the
coastal experience.
E. Cultural and Historic Resources
Jockey's Ridge and Nags Head Woods are only two of
many cultural and historic resources of this area. The
vicinity also includes the site of the first English settle-
ment in America, and the site of man's first powered
flight. This rich natural, cultural and historic heritage
constitutes one of the greatest assets of the area; an as-
set which is important to preserve so that it continues to
attract visitors to the Outer Banks.
The first residents of the Nags Head area selected their
home sites with care. They worked on the beaches and
in the sounds, but they built their homes in sheltered,
stable locations; well -protected from the winds and
storms. This proven example of how to live in a fragile
and sometimes hostile environment is part of the cul-
tural heritage of Nags Head. It should serve as a guide for
future development.
D. Fragile, Historic or Natural Areas:
1. Jockey's Ridge State Park, Nags Head Woods and the
Cape Hatteras National Seashore to the west and south
of town.
2. Permissible Uses
On publicly owned land only those uses consistent
with the objectives for which the area was established.
On privately owned land only such limited develop-
ment as would preserve areas susceptible to environ-
mental damage from more intensive development.
Such development should be undertaken only after
approval of a complete development plan which shows
that the proposed development will not destroy or
significantly alter the natural topography, vegetation,
surface waters or other unique natural features.
E. Areas Subject to Public Rights:
1. Description
The waters of the Atlantic Ocean and Roanoke Sound
under the jurisdiction of the Corps of Engineers.
2. Permissible Uses
Propagation of marine life, navigation, fishing, swim-
ming, boating, fishing piers, docks, bulkheads for
erosion control.
F. Natural Hazard Areas:
1. Description
The ocean front and barrier dunes within one hundred
and fifty feet (150') of the high water mark of the
Atlantic Ocean, the portions of the Roanoke Sound
shoreline with a recent history of erosion problems,
and those areas of the town that have an identified
special flood hazard with velocity (V5) as designated
by the Department of Housing and Urban Develop-
ment Flood Insurance Administration.
2. Permissible Uses
(a) Ocean front and barrier dunes: erosion and storm
protection, beach and ocean access.
(b) Erodible areas of Roanoke Sound Shoreline: ero-
sion prevention devices, piers, docks, bulkheads.
(c) Flood hazard areas: residential, commercial, in-
dustrial, public and semi-public uses which are
developed according to the standards of the Fed-
eral Insurance Administation.
SUMMARY
The preparation of this plan represents a cooperative effort
between the Nags Head Planning Board, the Planning Boards of
Dare County, Kill Devil Hills and Manteo. It includes the
representative ideas and opinions of the entire citizenry of Nags
Head. The Nags Head Planning Board will continue this process
of cooperation to provide for periodic review and revision of
these policies in the light of changes in the life-style of the area,
changes in the environment and economic pressures. Nags
Head will control development within its jurisdiction according
to the policies and standards of this plan.
Your opinions are a vital part of the planning process. If you
have any comments or questions on this Plan or any other
aspect of planning, please feel free to contact the Town Hall.
This report was financed in part by the National Oceanic and Atmospheric
Administration, the Coastal Plains Regional Commission, and the State of North
Carolina; and meets the requirements of the North Carolina Coastal Area
Management Act of 1974.