Land Use Plan-1981

PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE
TOWN OF SHALLOTTE
NORTH CAROLINA
LAND USE PLAN
1981

.r
TOWN OF SHALLOTTE LAND DEVELOPMENT PLAN
Prepared by the Town Board of
Aldermen with the
Technical Assistance of
Coastal Consultants, Ltd.
The preparation of this report was financially aided through a federal
grant from the National Oceanic and Atmospheric Administration. This
grant was made through the North Carolina Department of Natural
Resources and Community Development.

LAND USE PLANS
TABLE OF CONTENTS
PAGE
1.1
Method of Assemblage
1
1.2
Major Conclusion of Plan (Executive Summary)
2
Part I: Existing Conditions
4
2.1
General Description
4
2.2
Population
5
A. Total Population and Change
5
B. Age, Race, Sex profile
7
C. Income and Employment
10
2.3
Economy: Industry and Commerce
10
2.4
Economy: Agriculture, Fishing, Forestry, Tourism
14
2.5
Seasonal Population (see 2.2)
14
3.1
Existing Land Use
15
3.2
Significant Land Use Compatibility Problems
16
3.3
Problems from Unplanned Development
16
3.4
Areas Likely to Experience Changes in Predominant Land Use
17
3.5
Areas of Environmental Concern (AECs)
17
4.1
Summary of Existing Local Plans and Policies
18
4.2
Summary of Existing Local Ordinances
23
4.3
State and Federal Licenses and Permits
25
Part.II: Constraints to Development
30
5.1
Land Suitability: Physical Limitations
30
A. Soils
31
B. Slope
34
C. Hazard Areas
35
D. Sources of Water Supply
35
5.2
Land Suitability: Fragile Areas
36
A. Coastal Wetlands
36
B. Estuarine Waters
37
C. Public Trust Waters
38
D. Estuarine Shoreline
38
5.3
Land Suitability: Areas with Resource Potential
40
A. Agriculture
40
B. Biotic Community
40
C. Parks and Recreation
42
6.1
Capacity of Community Facilities
42
A. Water
42
B. Sewer
43
C. Roads
43
D. Schools
44
E. Fire and Police
45
F. Medical
45
G.- Solid Waste
45
Part III: -Carrying Capacity Analysis 46
7.1 Population Projection 46

7.2 Future -Land Use Need
A. Land Suitable for Development
B. Methodology for Projection
C. Projection
7.3 Community Facilities Demand
Part IV: Policy Formulation
8.1
Resource Protection
A.
Areas of Environmental Concern
1. Estuarine Waters
2. Estuarine Shoreline
3. Coastal Wetlands
4. Public Trust Areas
B.
Suitable Land Uses in AECs
C.
Other Resources
D.
Water Quality & Quantity
1. Surface and Groundwater
2. Flooding
8.2
Resource Production and Management
A.
Land Utilization
B.
Agriculture
C.
Forestry
D.
Mineral Production
E.
Commercial and Recreational Fisheries
8.3
Economic and Community Development
A.
Growth
B.
Land Use
C.
Transportation
D..
Energy Facilities
E.
Tourism
F.
Historic Preservation
G.
Recreation
H.
Re -development
I.
Commitment to State and Federal Programs
8.4
Public
Participation
A.
Participation Element
B.
Attitudinal Survey Analysis
Part V: Land Classification
s
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I
1.1 Method of Data Assemblage
This land development plan represents the Town of Shallotte's
first formal attempt to prepare a land use plan. The Town has parti-
cipated in planning related activities, including the preparation of a
zoning ordinance and a housing study. The goals of this plan include
assembling and interpreting the bulk of information concerning land
use and the Town. This information includes population, economy,
housing, the environment, land use, services, facilities, growth and
the like. This information was, wherever possible, collected from
existing local, State and Federal documents, studies and records.
These include reports of the Bureau of the Census, the North Carolina
Office of Management and Budget, the Soil Conservation Service, and
the State Department of Natural Resources and Community Development,
etc. The sources also include local information from the 1976 and
1980 Brunswick County Plans, as well as data obtained from the Town,
the County Planning Department and other County agencies. It is also
a culmination of numerous interviews with Town residents and some
original research from the consultants to the project. The Town Board
of Commissioners have used.this information in developing policy alter-
natives and selecting,a course of action for shaping future land
development.

2
1.2 Major Conclusion of the Plan (Executive Summary)
The central concept for planning the future of Shallotte is the
need for jobs and moderate growth. In order to make the community
desirable both as an area -for future industrial location and as a trade
center hub for the surrounding area, the Town has been focusing on the
provision of services and good planning practices. The Town, fortunately,
has had an administration over recent years which has worked toward al-
leviating growth limiting problems. Many surface drainage improvements
have been made eliminating many of the more serious water ponding areas.
The addition of traffic lights and more off-street parking has helped
traffic congestion on US 17 somewhat, although problems still remain,
especially during the summer season. The community has worked to al-
leviate along -time problem, the inability of the area's soils to handle
on -lot sewage disposal, by providing for a public sewer system, which'is
currently in the construction phase.
Although the Town desires moderate growth, it is aware of the need
to provide necessary services, coordinate growth with good land use loca-
tion and design, and protect the environment of the Shallotte River es-
tuarine system. In the development.of the specific policies of the plan,
the community was aware of the need for positive action in accomplishing
its goals. Many of the policies will be implemented by budgetary action
(e.g. money for continued capital improvements, recreation funds for boat
ramp development),other policies will be implemented through task commit-
tee work (e.g. recreation coordination with the County), still others will
K
./

3
be implemented through police power with the zoning and subdivision
regulations representing the major tools. Weaknesses in the content
and enforcement of the regulations found during the land use planning
project will be eliminated through regulation revisions anticipated to
` be accomplished in the next fiscal year.

4
Part I: EXISTING CONDITIONS
2.1 General Description: Climate and Location
The Town of Shallotte is located on U.S. Route 17 in south-
west Brunswick County. It is located in the Coastal Plain region and
enjoys the benefits of a coastal community tempered with the rural life
style of inland communities.
The Town is buffered from the Atlantic Ocean by Ocean Isle
Beach, Holden Beach, and the Intracoastal Waterway: -The area of the
Town is 2.18 square miles. The Shallotte River flows in an east -west
direction through Town and is an interesting estuarine and coastal marsh
environment.
The environmental setting is characteristic for the tidewater
section of southeastern North Carolina. The surrounding terrain is
typical of Coastal North Carolina with an average elevation of less
than 40 feet and level to gently rolling land. The maritime location
makes the climate unusually mild for its latitude. The area receives
between 50 and 55 inches of rain each year with maximum in summer and
minimums in winter. Humidity is relatively constant throughout the
year. Winds are primarily out of the north at 9 miles per hour during
fall and winter months and out of the south or southwest at 11 miles
per hour during spring and summer months. Storm conditions occur
frequently in the area. About five storms occur yearly with winds
exceeding 45 miles per hour. These occur most frequently during winter

k,
months (northeasters). The greatest threat of a hurricane occurs
during August, September and October in any year. Hurricanes often
y
bring tides several feet in excess of spring tide as well as high
winds and destructive waves. The Shallotte River near the Town is
well protected from storm conditions, and many vessels seek shelter
in the river during periods of storms.
The Town is primarily a business (trading center) community
and serves as a hub for many residents in the southeast Brunswick
County area 1
2.2 Population
A. Total Population and Change
Planning traditionally begins with the study of the number of
people living in the geographic area. Population data is basic for
making decisions concerning the capacity of the land to support growth,
the level and timing of services and the formulation of policies to
deal with problems.
In 1979 the population of the Town of Shallotte was estimated
to be 802 people. This represented a sizeable increase over the 597
people determined to live in the Town at the time of the 1970 Census.
Preliminary numbers from the 1980 Census, however, indicate that the
Town has a population of only 683 people. During the last forty years,
the population of Shallotte has shown fairly steady increases. A
history of this growth follows:
1Henry Von Oesen and Associates, Inc., Preliminary Engineering
_Report to the Southwest Brunswick County'201 Facilities Plan, 1979.
R

0
TABLE
POPULATION OF SHALLOTTE, 1940-19802
Year Population Percentage Increase
1940 381 ---
1950 493 29.4%
1960 480 -2.6%
1970 597 24.4%
1980 683 14.4%
In terms of an annual growth rate, the Town has averaged better
than 1.5% per year since 1940; better than 1.8% since 1960. Further-
more, the differences are even more dramatic if the 1979 estimate made
by the North Carolina Department of Administration proves to be more
accurate. (The increase would be greater than 2.8% per year from 1960
to 1979.)
If we compare population changes in the Town of Shallotte with
those,of the other inland communities and the county, we can place this
growth in better perspective.
TABLE 2
POPULATION OF INLAND TOWNS IN BRUNSWICK COUNTY,
1950-19803
1950 1960 1970 1980
Town Pop. %Chg. Pop. %Chg. Pop. %Chg. Pop. %Chg.
Shallotte 493 -- 450 -2.6 597 24.4 683 14.4
Southport 1748 -- 2034 16.4 2220 9.1 2817 26.9
Bolivia 215 -- 201 -6.5 185 -8.0 250 35.1
Boiling Spr Lake 245 -- 1000 400.8
Brunswick Co. 19238 -- 20278 5.4 24223 19.5 35,344 45.9
2Source: 1976 Brunswick County Land Use Plan Bureau of the
Census.
3Source: U.S. Census.

7
Shallotte appears to reflect the same growth trends apparent in the
County, yet it appears to have a stronger growth rate than other inland
communities. The County land use plan attributes growth within the
County to new industry, the growth of beach and retirement communities
and a slowing of out -migration.
B. Age, Race and Sex Profile
The Town of Shallotte comprised three enumeration districts in
the 1970 Census. By combining information on these districts, we have
been able to obtain a profile of the age/race/sex of the Town and how
it compares with the County and State. The Town of Shallotte is almost
totally white; is heavily employed as professional and technical
workers, and as managers and 'proprietors; has a high family income and
a lower than usual percentage of persons on public assistance. The
details are presented in the following tables.
TABLE 3
RACIAL COMPOSITION (by percent), 19704
Race Shallotte County State
White 100% 69% 75%
Black 0% 31% 23%
The County's non -white population has been declining since 1960 when
it comprised 35% of the total population of the County.
w
4U.S. Census.

TABLE 4
AGE AND SEX (actual numbers), 19705
Age No. Males No. Females Total
0-4 31 27 58
5-14 66 53 118
15-24 64 48 112
25-34 61 42 103
35-44 45 56 101
45-54 21 26 47 .
55-64 14 21 35
65+ 28 27 55
TOTAL 330 300 630
Age and sex profiles are important indicators of future
natural growth rate and of certain special demands on services, such
as schools and medical care for the elderly. In 1970, 240 of the
Town's 630 people were under the age of 18 (of school age); whereas
55 out of 630 were over 65 years of age. If we make some rough calcu-
lations without accounting for deaths and in -/out -migration, we note
that the prospect for the 1980s should be a steadily solid natural
increase, with only a mild increase in the 65 years of age and over
group. (We should note that the Town has a heavier than usual male
population in the 35 and under classification.)
The County Land Use Plan in 1976 observed a heavy out -migra-
tion of young people and a heavy in -migration of the elderly county-
wide. By comparing the percentage of people for the Town and the
County, we note that the same phenomena does not appear to be
SU.S. Census.

w
happening in Shallotte.
TABLE 5
PERCENTAGE OF PERSONS IN AGE GROUPS, 19706 r
A Shallotte Brunswick County
M
0-4 9.2% 9.6%
5-14 18.7% 21.5%
15-24 17.8% 17.2%
25-34 16.3% 11.8%
35-44 16.0% 10.9%
45-54 7.5% 11.1%
55-64 5.6% 9.6%
.65+ 8.7% 8.4%
A high percentage of persons in the Town were in the 25-44 age groups
(the groups where the County experienced heavy out -migration.)
TABLE 6
PERCENTAGE OF PERSONS UNDER 18 AND OVER 65 (1970)7
Age Grouping Shallotte Brunswick State
0-18 38.0 37.4 34.6
65+ 8.7 8.4 8.1
As a generality, the average house size is a reflection of
race and income. The Census projected the average house size in
Shallotte at 3.11 persons per dwelling. This is considerably lower
than the County rate of 3.47 persons per dwelling, or the State rate
of 3.24.8
6U.S. Census.
7U.S. Census.
BU.S. Census.

10
C. Income and Employment Characteristics
Shallotte is unlike the County in several other respects. The
M average annual income of families in the Town is approximately $14,790;
this is nearly double that of the County and the State whose incomes
averaged $7,468 and $8,872 respectively.
The employment characteristics of the population are also
quite different from the County or State. See Table below:
TABLE 7
EMPLOYMENT CHARACTERISTICS, 19709
Type Employment Shallotte Brunswick State
Professional 30.2% 12.8% 11.0%
Managers 24.2% 8.1% 7.5%
Sales 9.1% 5.0% 6.0%
Clerical 11.7% 6.8% 14.0%
Craftsman 15.8% 17.8% 14.5%
Operatives 4.2% 16.9% 22.4%
Transport Equip. --- 4.4% 3.9%
Laborers --- 9.5% 5.0%
Farmers/Farm Lbrs. --- 9.9% 4.6%
Services/Private Hshd. 4.9% 9.0% 11.0%
Shallotte's residents are heavily employed in professional, managerial
and sales type employment. Professional employment includes teachers,
r technicians and health personnel. Managers include administrators.
The high salaries in these two types of employment, together with a
probability of second family income from heavy employment in profes-
sional and clerical, explains the high average family income. Average
9U.S. Census.

professional salaries in the State in 1970 were $8831.
One of the most significant indicators of employment and
health problems in the community is the number of families and persons r
below the poverty level.
TABLE 8
INCOME AND POVERTY STATUS, 197010
Status Shallotte County State
% families below 3.4% 22.9% 16.3%
poverty level
% persons below 5.1% 27.7% 16.9%
poverty level
Although it is difficult to establish working patterns at the
town level from Census data, it appears that a significant number of
persons may be employed in Columbus County and in South Carolina.
In conclusion, the Town of Shallotte is a solid growing
community. The population has grown continuously in the past; it has
not experienced (within the last 30 years) any strong out -migration;
it has a lower than normal percentage of persons who will turn 65 in
the 1980s. Shallotte is an almost all white community. I,t has a heavy
concentration of the professions and managerial occupations. It has a high
family and per capita income; a low percentage of persons below
poverty level. Due to its location and anticipated new sewer system,
it should have excellent growth prospects.
IOU.S. Census.

12
M
2.3 Economy: Industry and Commerce
The economy of Shallotte is typified by its greater than usual
employment in two fields, namely wholesale and retail trade and educa-
tional services. A breakdown of employed persons by industry shows
the following:
TABLE 9
- EMPLOYMENT BY INDUSTRY, 197011
Percentage Employed
Type Employment in Shallotte
Construction 10.9%
Manufacturing 2.9%
Transportation --
Communications, Utilities 4.7%
Wholesale and Retail Trade 28.8%
Finance, Insurance 10.6%
Professional Services 5.1%
Educational Services 18.3%
Public Administration 5.1%
Other 13.5%
TABLE 1012
SHALLOTTE AREA INDUSTRY
Brooks Seafood --Process and package all seafood
Brunswick Beacon Inc. --Newspaper
Carters Fish and Oyster House --Oysters and fish
Epting Ballenger Corp. --Paving mixtures
Grainger Ready Mix --Ready mix"concrete, gravel, sand
Greens Oyster Co. --Processing and packaging oysters
Hewett and Sons Fish House --Seafood processing
Highlander Ltd. --Ladies sportswear, piece goods
Millikens, Lloyd Oyster House --Process and package oysters
Shallotte Ice and Fuel Co. --Ice and fuel
Williams Oyster House --Process and package all seafood
11U.S. Census.
12U.S. Census of Manufacturers..

13
Commerc.ial Fisheries
Shallotte has at least six seafood processors. Over 36 people
with Shallotte addresses are licensed by the State Marine Fisheries
for seafood dealing, mostly in oysters. Based on catch information for
the past five years, we observe that shellfishing contributes signifi-
cantly to the local economy.
TABLE 11
COMMERCIAL FISHING CATCH, 197913
Species
Weight
Value
Clams
72,500 lbs.
$259,337.00
Oysters
32,800
37,310.00
Shrimp
500
140.00
Mullet, Black
300
77.00
Spot
200
57.00
Commercial
fishing contributes nearly $300,000 per year
to the local
economy.
This value represents the price fishermen
received for the
catch, i.e.
the ex vessel value.
In
terms of changes in the catch, Shallotte's
commercial
fisheries
have reported the following catches in the
last few years:
TABLE 12
COMMERCIAL FISHING CATCH, 1975-197914
Year
Weight
Value
1979
106,900 lbs.
$297,828.00
1978
131,900
267,441.00
1977
36,600
47,483.00
1976
13,700
9,378.00
1975
41,400
33,564.00
13,14N.C. Department of Marine Fisheries, DNRCD.

14
This data suggests the growing importance of the industry. It also
reflects the increasing value of clams.
2.4 Agriculture
A portion of the land in the area is in agricultural use, but
agriculture is not considered of primary importance to the economy of
the Town. In the region, however, agriculture represents a significant
source of income.
Forestry
A portion of the land in and near the Town is heavily wooded
and has been commercially timbered in the past. Future commercial
timbering operations are not anticipated to pose a major impact on
the residential community, nor will they contribute significantly to
the local economy.
2.5 Seasonal Population
Although a significant number of persons frequenting the Carolina
beaches pass through Shallotte, and although Shallotte is within a close
distance of the ocean, it does not have any significant number of season-
al visitors. The Town does serve as a trade center for the many tourists
and seasonal visitors of the region.
Tourism
Shallotte is somewhat dependent on the tourist trade attracted
to the Carolina Beach communities.
As noted in section 2.3, the Town has a relatively diverse econo-
mic base which serves as a commercial hub for the surrounding area. Al-
though the economic base of the Town is not dependent on tourism, the
Town's proximity to the increasingly popular coastal developments at Hol-
den Beach and Ocean Isle Beach enhances its commercial activity. The
Town's location along U.S. 17 also allows for some tourist related trade

15
from persons who pass through town. Popular visitor areas in addition to
the beaches are the Orton Plantation Gardens, Brunswick Town, and Eagle
Island Gameland. In Brunswick County, tourism and travel income is esti-
mated at $30,000,000 by the Brunswick County Economic Development Com-
mission.
3.1 Existing Land Use: General Description
The urbanized land uses in the Town are generally adjacent to
U.S. 17. Commercial development occurs as a strip along both sides of
the highway through town. Institutional uses are also oriented along
U.S. 17. Most of the Town's residential development occurs along local
streets which are perpendicular to U.S. 17.
The following are approximate acreages occupied by categories
of land use.
Land Use
Acres
Residential
63.2
Commercial
44.4
Institutional
31.9
Transportation, Utili-
.18.0
ties
Industrial
.2
Recreation
1.8
Total
159.5

10
3.2 Significant Land Use Compatibility'Problems
Few land use compatibility problems exist in the Town. Most
of the commercial development has occurred adjacent to U.S. 17.
Residential development is found on local streets which intersect U.S.
17. Some residential development occurs in mixed conditions and
traffic congestion is the problem of greatest concern.
Gas storage tanks exist in the Town, but only the owner lives
near the site which has vacant land use around it. It could be considered
to be however, a significant hazard, since any explosion would have the
potential of affecting many city blocks as well as heavy traffic on US 17.
A cement manufacturing operation is located adjacent to the'new
Brunswick County High School. The use is considered to be more of an
aesthetic problem than a physical hazard.
3.3 Problems Resulting from Unplanned Development
Strip commercial development has occurred with improper design
along US 17 in the central business area. In this area, commercial develop-
ment has occurred without adequate set -backs, without properly designed
entrance and exist, and without adequate offstreet parking. Although
it is customary for commercial development to occur adjacent to major
thoroughfares, inadequate planning has caused traffic congestion and
hazardous situations. The Town has made a great deal of progress in
the *past few years in helping to relieve this situation by the addition
of traffic lights and requiring more off-street parking.
Dense development on soils unfavorable for on -lot sewage dis-
posal has resulted in concern about sewage pollution as well as the
Town's future growth prospects. The Town is now anticipating, however,
the construction of a public sewer system.

17
3.4 Areas Experiencing or Likely to Experience Changes in Predominant
Cana uses
Many vacant wooded areas on U.S. 17 could become commercial
or industrial if the Town grows as anticipated upon completion of the
public sewer system. Already an area on the eastern end of U.S. 17 has
recently been developed as a shopping center.
Areas on the north side of Town which were previously in
agricultural use are beginning to have some subdivision development.
Many of these areas could experience residential growth in the future.
It is possible that many areas which are presently undeveloped due to
unsuitable soils for septic tanks could become developed when the
public sewer system is available. New residential areas to the south -
side of U.S. 17 are areas of significant growth potential.
3.5 Areas of Environmental Concern (AECs)
The Town of Shallotte has the following areas of environmental
concern:
Coastal Wetlands - coastal wetlands are found along the
Shallotte River, Charles Branch, and Bobby Branch.
Estuarine Waters - estuarine waters are those of the Shallotte
River to the U.S. 17 bridge and Charles Branch to the U.S. 17 bridge.
Public Trust Areas - the public trust areas are the Shallotte
River west of the U.S. 17 bridge, Charles Branch north of the U.S. 17
bridge, Bobby Branch, and Mulberry Swamp Branch.

18
Estuarine Shoreline - the estuarine shoreline is the shore-
line of the Shallotte River west to the U.S. 17 bridge, and the Charles
Branch north to the U.S. 17 bridge (see Part II, section 2 for a more
complete description of these fragile areas. Also see map E).
4.1 Summary of Existing Local Plans and Policies
Although the Town has a continued,interest in planning, no
formal land use plan had been undertaken up to this time. The Town
has been involved in the planning process with Brunswick County and
with the assistance of the County Planning Department has prepared the
following plans and policies:
Housing Element, 1978. The housing element was prepared as a prere-
quisite for participation in the 701 Comprehensive Planning Assistance
Program of grants-in-aid of the Department of Housing and Urban
Development. The analysis showed that 89% of the housing was in
excellent to good condition. Six percent were rated us poor and 4%
dilapidated. Total houses were 223. The count included 18 mobile
homes. The following are growth policies which arose from the study.
1. The Town of Shallotte will encourage a normal growth pattern.
2. The Town will program growth and development to occur where
services are available and will encourage compact development to pro-
vide efficiency in delivery of services. Development will be
encouraged where existing services are available before expansion into
new areas.

19
3. The Town will encourage a start of duplexes and apartments in
addition to single family dwellings.
4. Growth and development will be discouraged in areas where septic
tanks will not function and sewer service is not available and in
areas where soils will not support buildings.
5. The Town will encourage some moderate expansion of commercial
activities and will encourage private development of additional office
space and laundry mat facilities.
6. The Town will encourage moderate industrial expansion emphasizing
industry, with low service demand, high value, and employing local
,people.
7. The Town will encourage a separation of commercial, industrial and
residential land uses.
In 1975, the Town Planning Board prepared a list of policies
on problems and issues. The Town has continued to work -toward
achieving the following:
I. Existing Problems and Issues Facing the Town
A. The Planning Board recognized the following as problems and
undesirab.le conditions that exist in the Town or that face
Town residents and recommends that the Town's future planning
and activities be directed towards solving or alleviating
these conditions.
1. Property Taxes
2. Sewage Disposal
3. Inadequate Adult Educational Facilities
4. Parks and Recreation for young people

20
5. Traffic congestion
6. Health Care and Medical Facilities
B. The Planning Board recommends that the Town encourage the
County and other levels of government to become involved in
and take positive action in relation to the above problems
since these problems have implications and responsibilities
beyond Town boundaries.
II. New Services and Facilities
A. The Planning Board recognizes the need for the following new
services and facilities and recommends that the Town work
toward making these services available for public use in the
Town.
1. Neighborhood Recreation - Areas and Parks
2. Sewage Disposal
3. Boat access areas to coastal waters
III. Suggested Recreational Activities
The Planning Board feels that neighborhood park facilities are
desirable and should be provided in the Town. The Board also feels
that when such facilities are provided, the following types of
activities would be utilized and the Town should consider the
following types of activities as those that may be made available.
1. Tennis Courts
2. Ball Fields
3. Volley Ball Courts
y 4.- Horse Shoes
IV. Recommended Future Growth Policies
The Planning Board recommends that the Town adopt the following

21
policy statements to guide future Town development. The Planning
Board feels that future plans, policies and decisions the Town may
make should be based upon and designed to implement these policy
statements.
1. The Town of Shallotte should not undergo a large amount of
growth nor large increase in population.
2. The Town should undergo limited and moderate growth.
3. The Town should program growth and development to occur where
services are available and should encourage compact development
to provide efficiency in delivery of services. Development
should be encouraged where existing services are available
before expansion into new areas.
4.. Growth and development should be discouraged in areas where
septic tanks will not function and sewer service is not avail-
able and in areas where soils will not support buildings.
5. Growth and development should not be discouraged in agricul-
tural lands and forest within the Town.
6. The Town should encourage some moderate expansion of commer-
cial activities and should encourage private development of
additional office space and laundry mat facilities.
7... The Town should encourage and entice doctors to locate in the
area.
8.. The Town should encourage some moderate industrial expansion
emphasizing industry with low service demand, high value and
emphasizing local people.

22
9. The Town should provide for a separation of commercial, indus-
trial and residential land uses.
The Town has been working to implement the above policies over
the past five years. Significant progress has been made in the effic-
iency of services, accomplishing the goal of a public sewer system, a
cooperative effort with the County in the establishment of a County
recreational facility near the Town, and alleviating some traffic prob-
lems by the addition of traffic lights and off-street parking.
In terms of growth and development, more work needs to be done
in attracting moderate growth in terms of new.jobs, the prevention of
sprawl development, and better land development patterns and aesthetics.
The Town continues to endorse the general concepts mentioned
above. Through this year's planning efforts, more discussion and analysis
has taken place, enabling a sharpening of ideas and more direct focus.
In order to work toward implementation of policies, implementation strat-
egies have been outlined. Policy discussion is located in Part IV of
this document.

23
4.2 Summary of Existing Local Ordinances
l: Zoning Ordinance. The Town's zoning ordinance is made up of six
zoning districts as follows: (see Map D)
R-20 Residential - this district is for low density single-
family dwellings on a minimum lot area of 20,000 square feet.
R-15 Residential - this district is a medium density residen-
tial use which allows single-family and multi -family dwellings.
Minimum required lot area is 15,000 square feet plus 4,000 square feet
for'each family over one in the same building.
RM-15 Residential - this district is a medium density residen-
tial use district which allows single-family and multi -family dwellings
as well as mobile homes on single lots. Mobile home parks are allowed,
but maximum density permitted is eight units per acre. No more than
three mobile homes may be connected to a single septic system.
Minimum required lot area is 15,000 square feet plus 4,000 square feet
for each family over one in the same building.
B-Business District - the business district is intended to
provide the entire Town and surrounding area with retail goods,
professional services, and lodging. Maximum building height allowed
is 35 feet.
C-Conservation District - any uses are permitted which are
permitted in the adjacent district; provided the proposed development
meets all applicable federal, state and local laws and regulations.
I -Industrial District - the industrial district is intended to

24
provide space solely for light industrial uses. Dwellings are not a
permitted use in this district.
The building inspector administers the zoning regulations.
Any decision of the zoning administrator may be appealed to the Board
of Adjustment.
2. Subdivision Regulations
Any proposed subdivision must comply with thoroughfare plans,
school plans and the zoning ordinance. A minor subdivision is the
division of one existing tract of land into no more than four parcels.
A minor subdivision must be approved by the Town Clerk 'and
the Mayor. A major subdivision must be approved by the Town Clerk,
Board of Aldermen, and the Mayor. The major subdivision must undergo
review by the Planning Board. In minor subdivisions all proposed
utilities must be shown on the submitted plat. No utilities are
required, however, except those which meet state and county require-
ments. Drainage must be provided, and all utilities must be designed
to minimize flood damage.
Major subdivisions must have graded streets, drainage,
recreation area (if subdivision is 10 acres or more), monuments,
connection to water and sewers if available, and permanent bench marks
if within a flood hazard area. Specific design standards are included
regarding the above requirements.
No planned unit development is provided for in the zoning or
subdivision regulations.
3. Building Permit
No building can be erected, added to or structurally altered

25
until a building permit has been issued by the building inspector. The
Town has adopted state building, plumbing and electrical codes.
The Town has no other significant land use related ordinances.
4.3 State and Federal Licenses and Permits
The following are lists of state and federal licenses and permits
which could affect projects in the coastal zone.

26
STATE LICENSES AND PERMITSI5
Agency Licenses and Permits
Department of Natural Resources and - Permits to discharge to surface
Community Development waters or operate waste water
Division of Environmental Management treatment plants or oil discharge
permits; NPDES Permits, (G.S.
143-215).
- Permits for septic tanks with a
capacity over 3000 gallonsday
(G.S. 143-215.3).
- Permits for withdrawal of sur-
face or ground waters in
capacity use areas (G.S. 143-
215-15).
- Permits for air pollution abate-
ment facilities and sources
(G.S. 143-215.108).
- Permits for construction of com-
plex sources; e.g, parking lots,
subdivisions, stadiums, etc.
(G.S. 143-215.109).
- Permits for construction of a
well over 100,000 gallons/day
(G.S. 87-88).
Department of Natural Resources and - Permits to dredge and/or fill
Community Development in estuarine waters, tidelands,
Office of Coastal Management etc. (G.S. 113-229).
- Permits to undertake develop-
ment in Areas of Environmental
Concern (G.S. 113A-229).
NOTE: Minor development per-
mits are issued by the
local government.
Department of Natural Resources and - Permits to alter or construct
Community Development a dam (G.S. 143-215.66).
Division of Earth Resources
- Permits to mine (G.S. 74-51).

27
- Permits to drill an explora-
tory oil or gas well (G.S.
113-381).
- Permits to conduct ggeoohvsi-
cal exploration (G.S. 113-391).
- Sedimentation erosion control
plans for any land disturbing
activity of over one contiguous
acre (G.S. 113A-54).
Department of Natural Resources and - Permits to construct an oil
Community Development refinery.
Secretary of NRCD
Department of Administration
Department of Human Resources
—Easements to fill where lands
are proposed to be raised above
the normal high water mark of
navigable waters by filling
(G.S. 146.6(c)).
- Approval to operate a solid
waste disposal site or facility
(G.S. 130-166.16).
- Approval for construction of
any public water supply facility
that furnishes water to 15 or
more year round residences or
25 or more year round residents
(G.S. 130-160.1).

28
FEDERAL LICENSES AND PERMITS
Agency Licenses and Permits
Army Corps of Engineers
(Department of Defense)
Coast Guard
(Department of Transportation)
Geological Survey
Bureau of Land Management
(Department of Interior)
Nuclear Regulatory Commission
- Permits required under Sections
9 and 10 of the Rivers and
Harbors of 1899; permits to
construct in navigable waters.
- Permits required under Section
103 of the Marine Protection,
Research and Santuaries Act of
1972.
- Permits required under Section
404 of the Federal Water
Pollution Control Act of 1972;
permits to undertake dredging
and/or filling activities.
- Permits for bridges, causeways,
pipelines over navigable waters;
required under the General Bridge
Act of 1946 and the Rivers and
Harbors Act of 1899.
- Deep water port permits.
- Permits required for off -shore
drilling.
- Approvals of OCS pipeline
corridor rights -of -way.
- Licenses for siting, construction
and operation of nuclear power
plants; required under the Atomic
Energy Act of 1954 and Title II
of the Energy Reorganization Act
of 1974.
Federal Energy Regulatory Commission - Permits for construction,
operation and maintenance of
interstate pipelines facilities
required under the Natural Gas
Act of 1938.

29
- Orders of interconnection of
electric transmission facili-
ties under Section 202(b) of
the Federal Power Act.
- Permission required for
abandonment of natural gas
pipeline and associated
facilities under Section 7C(b)
of the Natural Gas Act of 1938.
- Licenses for non-federal
hydro -electric projects and
associated transmission lines
under Sections 4 and 15 of the
Federal Power Act.
0
15Lists provided by the NC DNRCD.

30
Part II: CONSTRAINTS TO DEVELOPMENT
5.1 Land Suitability: Physical Limitations for Development
An analysis was made to determine the suitability for develop-
ment of all undeveloped lands in the Town.
The first part of the analysis deals with the general soil
conditions in the Town and how the natural soil properties present
certain restrictions to development. Soil scientists observe how soils
behave when used as a growing place for native and cultivated plants,
and as a material for.structures, foundations for structures, or
covering for structures, as well as the properties which relate to
the functioning of filter beds for septic tanks. For example, they
observe that filter beds for on -site disposal of sewage fail on a
given kind of soil, and they relate this to the slow permeability of
the soil or to its high water table. They see that streets, road pave-
ments, and foundations for houses are cracked on a named kind of soil
and they relate this failure to the high shrink -swell potential of the
soil material. Thus, they use observation and knowledge of soil
properties, together with available research data, to predict limita-
tions or suitability of soils for present and future uses.
The second part of the analysis deals with hazard areas,
including man-made hazards (for example, airports, storage of hazardous
chemicals) and natural hazards (for example, erodible areas, flood
hazard areas).

31
The third part of the analysis deals with sources of water
supply including groundwater recharge areas (bedrocks and surficial
and wellfields).
The fourth part of the analysis deals with fragile areas.
These are areas which could easily be damaged or destroyed by inappro-
priate or poorly planned development (e.g. estuarine shoreline and
waters, habitats, archaeologic and historic sites, wetlands).
The fifth part of the analysis includes areas with resource
potential (e.g. publicly -owned forests, parks, fish and game lands,
wildlife sanctuaries, valuable mineral sites).
A. Physical Limitations: Soils
This is an analysis of the general suitability of the Town's
soils for use as future sites for development. All of the Town's
soils are classified as having some degree of physical limitations for
development. The analysis indicates the various soils found *in the
Town and indicatesthe degree of suitability for various purposes. -The
results of the analysis are beneficial for planning purposes, however,
on -site inspections would be necessary to determine specific soil
properties for development. Although soils may be rated as having
various degrees of limitations, engineering practices and construction
techniques can alter the degree to which a particular limitation affects
a development use.
Each rating for soil types as determined by the U.S. Soil
Conservation Service is indicated below.
Slight: Soil properties are generally favorable for the stated
use, or limitations are minor and can be easily over-
come.

32
Moderate: Some soil properties are unfavorable, but limitations
resulting from the properties can be overcome or modi-
fied by special planning, good design, and careful
management.
Severe: Soil properties are unfavorable and resulting limita-
tion are too difficult to correct or overcome. Soil
will require major soil reclamation or special design
for stated uses. This rating does not imply.that the
soil cannot be used.
Very Severe: This rating is a subdivision of the severe rating and
has one or more features so unfavorable for the stated
use that the limitation is very difficult and expensive
to overcome. Reclamation would be very difficult,
requiring the soil material to be removed, replaced, or
completely modified. This rating is confined to soils
that require extreme modification and alteration, and
are generally not used for dwellings and septic tank
filter fields16
Analysis of the soil map and existing land use shows that past
development in the Town has taken advantage of the higher and dryer
soils for urbanized uses. Most development has taken place on the
Norfolk (NOB) and Baymede (BdB) soils. The.Norfolk soils are found
east of the Shallotte River, whereas the Baymede soils are.generally
found west of the River along U.S. 17. Some areas of Baymede soils are
16Soil Conservation Service, U.S.A.

Map
Septic Tank
_Soil Unit
Symbol
Filter Fields
Baymede
Bdo
Severe -Poor Filt-
ering
Blanton
BnB
Severe -Poor Filt-
ering
Craven
CrB
Severe -Wet
Foreston
FoA
Severe -Poor Filt-
ering, Wetness
Goldsboro
GoA
Severe -Wetness
Hobonny
Ho
Severe -Flooding
Leon
Ln
Severe -Wetness
Lynchburg
Ly
Severe -Wetness
Mandarin
Ma
Severe -Wetness
Marvyn
MbC
Moderate
Muckalee
MK
Severe -Flooding
Murville
Mu
Severe -Wetness
Norfolk
NoB
Moderate
Onslow
On
Severe -Wetness
Rains
Ra
Severe -Poor Filt-
ering, Wetness
17Soil
Conservation
Service, U.S.D.A.
Use Rating17
Dwellings With-
out Basements
Slight
Slight
Moderate
Slight
Moderate
Severe -Flooding
Severe -Wetness
Severe -Wetness
Moderate
Moderate
Severe -Flooding
Severe -Wetness
Slight
Moderate
Severe -Wetness
Dwellings
with Basements
Moderate
Moderate
Severe -Wetness
Moderate
Severe -Wetness
Severe -Flooding
Severe -Wetness
Severe -Wetness
Severe -Wetness
Moderate
Severe -Flooding
Severe -Wetness
Moderate
Severe -Wetness
Severe -Wetness
Local Streets
and Roads
Slight -
Slight
Severe -Load
Strength
Slight
Moderate
Severe -Flooding
Severe -Wetness
Severe -Wetness
Moderate
Moderate
Severe -Flooding
Severe -Wetness
Slight
Moderate
Severe -Wetness
Playgrounds
Severe Sandy
Slight
Slight
.Slight
Moderate
Severe -Flooding
Severe -Wetness
Severe -Wetness
Severe -Wetness
Severe -Slope
Severe -Flooding
Severe -Wetness
Slight
Moderate
Severe -Wetness
w
w

34
located in the northern section of Town (see Map C).
One area of poor soils has been used for urbanized purposes
in the center of the Town. This area of about 50 acres found directly
east of the Shallotte River Bridge on U.S. 17 is made up of Goldsboro
soils (GoA). These soils are somewhat wet, with the seasonal high
water table within 1-1 112 feet of the surface. However, these soils
do not present a substantial problem with good management techniques
when building structures or roads. They do present a problem, however,
for use as filter fields for septic tanks. The Town is beginning the
construction phase of building a public sewer system, which should
alleviate many of the problems related to on -lot sewage disposal.
The most severe soils for development in the Town are the
Hobonny soils (Ho). These are the soils which occur along the Shal-
lotte River floodplain. Furthermore, these areas are vegetated by
Cordgrass and Junkus, and are Areas of Environmental Concern (AECs),
regulated by the North Carolina Department of Natural Resources and
Community Development (see section 5.2, Fragile Areas).
B. Physical Limitations: Slope
Generally the typography of the area is relatively flat with
slopes ranging from 1 to 5 percent. The greatest slopes are the soil
transition along the Shallotte River between the Hobonny soils (Ho) and
the Baymede soils (BdB). At these areas, the land drops off at times
to twelve feet. Other high soils exist in the form of Marvyn soils
(MbC)._ These areas are of 6 to 15 percent slopes (see Map C). Such
slopes generally do not present a problem for development in the Town,
except for use as playgrounds or athletic fields. The severe slope
between the Hobonny (Ho) soils and the neighboring types do, however,

35
present a problem for use.
C. Physical Limitations: Hazard Area
Gas storage tanks exist in the Town, but only the owner lives
near the site which has vacant land around it. It could be considered,
however, a significant hazard, since any explosion would have the po-
tential of affecting many city blocks as well as heavy traffic on U.S. 17.
The natural hazard which could occur is the flood
hazard area (see Map D). This area is primarily within the floodplain
of the Shallotte River and tributaries. Presently there are only a few
residences located in the floodplain.
D. Physical Limitations: Sources of Water Supply
Beneath the Town, the "basement" rocks are crystalline
rocks. These rocks consist of beds of sand, silt, clay, and lime-
stone, and have a total thickness of many thousands of feet. The
basement rocks have been gently warped, forming an arch, called the
Cape Fear Arch. The basement is believed to be between 15,000 and
25,000 feet below the surface in the area.
The Black Creek Formation of the Cretaceaus Age, rests on the
basement rock. This formation is composed largely of marine silty
clays, clayey silts, and fine to medium silty sands.
The Peedee Formation, rests conformably upon the Black Creek
Formation. The formation consists of clayey sands and discontinuous
limestone.
The oldest Cenozoic sediment in the area is the Castle Hayne +
Limestone of middle to late Eocene Age which rests disconformably
upon the Peedee Formation. Composition of this unit consists primarily
of limestone commonly containing lenses of sands and silts. The
Castle Hayne is used by the municipal wells in the Town for water
supply. bells generally can be pumped at 300 gmp. No chlorides have

36
been found to encroach upon the Town's wells.
The water table aquifer extends throughout practically all
of the Coastal Plains region and consists principally of surficial
sands.
The Town's wells are located along S.R. 130 in the northwest
corner of Town.
5.2 Land Suitability: Fragile Areas
Since the Town of Shallotte is located in coastal North
Carolina, it recognizes areas which are environmentally fragile and for
which development is discouraged or subject to regulation. On the map
of fragile areas (see Map E) is shown areas which are -considered to be
fragile resources. The coastal marshes, estuarine waters, estuarine
shoreline, and public trust areas are considered to. be areas of Environ-
mental Concern (AECs) and are subject to permitting.
A. 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. Coastal marshes contain some, but
not necessarily all of the following marsh plant species 18
(1) Cord Grass
(2) Black Needlerush
• 18U.S. Army Corps of Engineers, Draft Environmental Statement:
Maintenance of Shallotte and Lickwoods Folly River, NC 1975.

37
(3) Glasswort
(4) Salt Grass
(5) Sea Lavender
(6) Bulrush
(7) Saw Grass
(8) Cat Tail
(9) Salt Meadow Grass
(10) Salt Reed Grass
In the Town, the coastal marsh is a mosaic of Spartina marsh,
clorn flats, oyster bottoms and submergent macrophytes under tidal
influence grading to freshwater tolerant communities dominated by
Juncus and other aquatic macrophytes. This is an area of high primary
and/or secondary production. 19 In the Town, coastal wetlands occur
along the Shal_lotte River, Charles Branch and Bobby Branch. They are
mainly found on Hobonny (Ho) soils (see Map E).
B. Estuarine Waters
Estuarine waters are "all the waters of the Atlantic Ocean
within the boundary of North Carolina and all of the waters of the bays,
sounds, rivers, and tributaries thereto 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 Natural Resources and Community Development filed with
the Secretary of State, entitled "Boundary Lines, North Carolina
Commercial Fishing --Inland Fishing Waters," revised to March 1, 1965.
In the Town, the estuarine waters are those of the Shallotte
19U.S. Army Corps of Engineers, 1975.

River west to the U.S. 17 bridge and the waters of the Charles Branch
north to the U.S. 17 bridge (see Map E).
C. Public Trust Areas
Public Trust Areas are 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
the water and lands 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; all water in artificially created
bodies of water containing significant public fishing resources which
are accessible to the public by navigation from bodies of water in
which the public has rights of navigation; and all waters in artifi-
cially created bodies of water in which the public has acquired rights
by prescription, custom, usage, dedication, or any other means.
In the Town of Shallotte, the Public Trust Areas are the
Shallotte River, Charles Branch, Bobby Branch, and Mulberry Swamp
Branch.
D. Estuarine Shoreline
Estuarine shorelines, although characterized as dry land, are
considered a component of the estuarine system because of close associa-
tion with the adjacent estuarine waters. They are those non -ocean
y shorelines which are especially vulnerable to erosion, flooding or
other adverse effects of wind and water and are intimately connected
to the estuary. This area extends from the mean high water level or

39
normal water level along the estuaries, sounds, bays, and brackish
waters as set forth in an agreement adopted by the Wildlife Resources
Commission and the Department of Natural Resources and Community
Development for a distance of 75 feet landward.
In the Town, the estuarine shoreline is the shoreline of the
Shallotte River west to the U.S. Route 17 bridge, and the Charles
Branch north to the U.S. 17 bridge.
Other fragile areas in the Town occur along the Shallotte
River west of the U.S. 17 bridge, along Bobby Branch, and along
Charles Branch on Muckalee soils (Mk) (see Map C).
Although no specific archaeological information exists
regarding sites in the Town, it is not likely that some Indians encamp-
ments are a potential along the Shallotte River.
Two historic sites exist. This is the site of the Camp
Methodist Church, site of early church revival "corps" meetings..
Bishop Francis Ashbury, 18th century Methodist missionary and leader,
held meetings here (see Map E).20 The Sunnyside School has been moved
to the Town Park Site where it has been incorporated in the Park Master
Plan as a use facility.
20U.S. Army Corps of Engineers, 1975

40
5.3 Land Suitability: Areas With Resource Potential
A. Agriculture
Many areas near the Town.are Farmed. Crops in the area.
consist of soybeans, tobacco, potatoes, and corn. In the Town, three
large farms exist.
B. Biotic Community
The Town has extensive forested areas within its boundaries.
The following are characteristic vegetative species:21
Overstory
Longleaf Pine
Loblolly Pine
Eastern Red Cedar
Understory
Turkey Oak
Sand Post Oak
Blackjack Oak
Southern Red Oak
Bluejack Oak
Sassafras
Persimmon
Winged Sumas
Characteristic animals which may occur in the habitats in the
Town uplands and surrounding area are:
Reptiles and Amphibians
Black Racer
Eastern Hognose Snake
Eastern Coachwhip
Northern Pine Snake
Southern Toad
Oak Toad
Eastern Diamondback
Rattlesnake
Mamma 1 s
Birds
Eastern Wood Pewee
Brown -Headed Woodhatch
Eastern Bluebird
Chuck -Wills Widow
Pine Warbler
Yellow -shafted Flicker
Great Crested Flycatcher
Eastern Gray Squirrel
Gray Fox
Cottontail Rabbit
House Mouse
Raccoon
White -Tail Deer
21Henry von Oesen and Associates, Inc. Preliminary Engineering
Report to the Southwest Brunswick County 201 Facility Plan;'1979.

41
Characteristic plant and animals which occur in the lowland
areas of the Town and surrounding area are important organisms in the
Spartina marsh community. These include the oyster, nematodes, clams,
crabs, barnacles, the ribbed mussel, marsh periwinkel, and mud snails.
The marsh also provides cover for many wading birds, waterfowl,
raccoons, rice rats, nutria and small birds. Clapper rails and king
rails nest in these areas. Other marsh found in various zones are
Sistichlis spicata, Pluchea penoscens, Glasswort, and Juncus marsh.
The fauna in the Shallotte River channel conprise a variety
of estuarine fishes and invertebrates and freshwater fishes tolerant
of salinity. These include: squid, shrimp, menhaden, mullet, sea -
trout, anchovy, cookers, and others. Benthic organisms are poly-
cheates and aquatic insects.
Much of the floodplain area is covered with a forest type
with primary members of this community being sweet gum, red maple,
water oak, ash, loblolly pine, water alder, and tulip poplar. -
In the drier soils are found the forest areas of pine and
mixed hardwoods. Loblolly is the principal pine, sharing dominance
of the community with numerous deciduous species including various
oaks, black gum, tulip poplar, sweet gum and hickories.
The mixed pine -oak forest supports typical mammals such as
the eastern grey squirrel, the flying squirrel, eastern cottontail,
and white-tailed deer. Numerous raptorial birds include the sharp-
shimed hawk, Cooper's hawk,: redshouldered hawk, great horned owl, and
screech owl utilize these forests.
The Shallotte lower estuary is -an important nursery for shrimp,
blue crabs, and a variety of fish. The estuary is a spawning area for

42
certain species of anadromus fishes including the American shad, the alwife,
hickory shad, the striped bass and white bass.22
C. Parks and Recreation
Four recreational facilities exist in the Town. Shallotte Municipal
Park is used as a community park and is located at the intersection of US 17
and NC 130. This park is operated by the Town and is about two acres in
size. A picnic shelter and picnic tables and swing sets are located at the
park, as well as the Sunnyside School, which was moved to the site as part
of the recreational and historic facility presently being implemented from
the Park Master Plan. White's Landing is a privately owned boat launch
ramp on the Shallotte River at SR 1291. Martin's Landing is another boat
access area on the Shallotte River south of the US 17 bridge. Playfield
areas are found at the three school sites in Town.
The Town has worked closely with Brunswick County in the development
of a large county park near the western border of the Town. This facility
will have many active and passive recreational opportunities for the Town
of Shallotte and the surrounding area.
6.1 Capacity of Community Facilities
A. Water System
The Town currently has an existing water system which serves
all areas of the Town. Two wells, fifty feet deep into the Castle
Hayne aquifer, are located along NC 130 in the northwestern part of
Town. These wells are connected to pumps which pump directly into
the Town watermains. Chlorine and water softeners are added to the
water at the pumps. The capacity of the system is .18 mgd.
The Town has a 100,000 gallon elevated storage tank on Baley
Street which provides water storage for the system. The principal
limiting factor is the need for treatment of the water to eliminate
iron and other minerals. The Town's water treatment plant on the
22 U.S. Army Corp of Engineers, 1975.

43
location of the Iold wells near the water tower, is presently not being
utilized. It is anticipated that it would be desirable to hook on the
treatment plant sometime in the future. The water system is currently -
utilized at about 50% capacity (about 108 mgd).
The system serves the area within the Town limits and a
few additional houses on the Town boundary.
B. Sewer System
The residents of the Town currently use on -site sewage dis-
posal. Due to poor filtering capacity of soils and wetness, filter
fields for on -site sewage disposal has caused frequent problems in the
Town.
The Town has received a grant for a public sewer system and
is currently working on implementation of public sewer construction.
The proposed wastewater system has a design flow of .148 mgd, and is
anticipated to serve a design population of 1582 (1998 service popula-
tion). The system will be a pressure sewer system with a lagoon pre-
treatment system which will discharge to a land application system.
The area of land application is anticipated to be located just north-
east of Town.
C. Road System
Primary roads in the Town consist of U.S. 17 and NC 130.
These are two-lane roads with a design capacity of about 7500 vehicles
per day. Although capacity on NC 130 is rarely exceeded, U.S. 17 is
a consistent problem. Vehicles per day using the road often exceed
twice the capacity of the road. It is often almost impossible for
local traffic to enter the highway because of the steady stream of
vehicles.

44
NCDOT 1980 traffic counts of annual average daily traffic
on U.S. 17'through Shallotte are as follows: North of the business
district, 7800 vehicles per day; business area, 13,500 vehicles per
day; south of the business district, 6,500 vehicles per day. These
figures would indicate that considerable local traffic is adding to
congestion on U.S. 17. Traffic figures for NC 130 are 2800 vehicles
per day.
Although the U.S. 17 By -Pass has been in the planning stage
for some time, current projected work on the By -Pass is scheduled ten-
tatively for FY 1984.
D. School System
Three schools are located in the Town of Shallotte. These
schools accomodate grades K-12 and service students from the Town and
surrounding area. The schools and 1980 enrollments are as follows:
West Brunswick High School 1008
:Shallotte Middle School (located in 938
Shallotte)
Union Primary School 734
Total Enrollment 2680
The total enrollment represents about a 10% increase over the
past twenty years. The West Brunswick High School is only 5 years old
and the Shallotte Middle School is a new building. The Union Primary
School is an older building, but has recently had additions and renovations.

45
E. Fire and Police
The fire protection in the Town is by voluntary service made
up of twenty-six members. The department has two large pumpers, one a
1974 and one a 1954 model. The department also has a smaller water
tank truck for backup. Ambulance service is by a voluntary ambulance
corps with these units.
The police department has four full-time policemen, with two
available on a part-time basis. The police department has two
vehicles.
F. Hospitals and Medical Services
The Town has three doctors in private practice. Brunswick
County Hospital is located in Supply, about seven miles away.
G. Solid Waste
The Town operates its own trash collection with residential
pick-up twice a week. The Town takes its solid waste to the county
landfill near Cedar Grove Beach.23
The Cedar Grove Beach facility is 10 acres. Currently, about
3 acres are used, representing about 33% of capacity. A transfer
station has also been located in the area, and increased compaction
resulting from use of the transfer station should increase the land-
fill lifetime somewhat. County officials were unable to estimate when
the remaining capacity of the landfill would be used. Rough estimates
indicate, however, that capacity could be used within the next eight
years.
23Data for Facilities provided by Town of Shallotte.

46
Part III: Capacity Analysis
7.1 Population Projections
Population projections approved by the State and Federal
governments for public sewer facility design show an annual growth
rate for the Town of 4.3%.24 Using this growth rate, the estimated
projection for Shallotte for 1990 is 1040.
1000 Graphically, the population growth curve is as follows:
900
800
700
600
500
400
300
200
100
1960 1970 1980 -i + 1900
7.2 Future Land Use Needs
In projecting the future land use need, our projections con-
sider the distribution of existing population, the current structure
of the economy, the areas existing and future investments in sewer and
water facilities, its transportation system, its community facilities
(ie. schools, medical facilities, public services), and the growth
24N.C. Office of Environmental Management.

47
policies of the Town. Since these factors have shaped and attracted
land development in the past, they will probably do so in the future.
Our approach to develop land use projections has included these con-
siderations and, at the same time, they give an estimation of what
our future needs for land will be.
Finally, one word of caution. Projection land use needs is
a'very inexact science. Such projections are presented to provide
decisionmakers with more insight then certainty into what is most
likely to occur in the future. They should be used as guidelines,
not constraints, and should be used as benchmarks in making land
development decisions.
A. Land Suitable for Development
In order to determine land suitable for urbanized uses, we
must examine the land already used for such purposes, as well as
vacant land which is not constrained. For this analysis, we have
cemoved the following land uses and constraints from the available
vacant land for development: Existing residential use, existing
commercial use, existing institutional use, existing transportation,
utilities and communication use, existing industrial use, existing
recreational use, coastal marsh, estuarine and public trust waters,
estuarine shoreline seventy-five feet from mean high water, wetlands,
steep slopes, and areas of flood hazards. Removal of these areas
from the total land area of the Town leaves about 900 acres of
unconstrained land for development.
B. Methodology for Land Use Projections
Land use standards were prepared for five urbanized land uses

which include residential, commercial, industrial, institutional, and
recreational uses. Except for residential uses, these standards were
derived from land requirements based on standard land use analysis
planning models and adjusted for towns the size of Shallotte.
The residential category was treated differently from the
other four urban categories due to the difficulty in allocating land
requirements by housing type or density. An average land area per
unit population is used as a standard to calculate residential land
requirements. This area was calculated using the 1980 population and
existing residential use. The average is then applied asa constant
to the 1990 projection.
The land use requirements were determined using the following
equation.
L90 = (P90 P80) (Kh + Kc + Ki + Kp + Kr)
where L90 = land required to accomodate the 1990 population
P90 = 1990 population
P80 = 1980 population
Kh = standard land requirement for residential use
KC = standard land requirement for commercial use
Ki = standard land requirement for industrial use
Kp = standard land requirement for institutional use
Kr = standard land requirement for recreational use
The following are standards applied to the land use needs
projection:
Standard for Residential Land = .079 acres
Standard for Commercial Land = .005 acres
Standard for Industrial Land = .010 acres
Standard for Institutional Land = .001 acres
Standard for Recreational Land = .007 acres

49
C. Land Use Projections
L90 = 357 (.079 + .005 + .010 + .001 + .007)
L90 residential = 28.z0 acres
L90'commercial = 1.79 acres
L90 industrial = 3.58 acres
L90 institutional = .38 acres
L90 recreational = 2.50 acres
Total 36.45 acres
We may see that through the above analysis, a considerable
amount of land remains available for urbanized uses within the Town.
The point of this exercise is that the Town can, through good planning
practices, grow and accomodate development while protecting resources
and avoiding hazardous areas.
7.3 Community Facilities Demand
Analysis of existing facilities based on 1990 population
projections and land use needs indicate that existing facilities will
be adequate to serve the 1990 population.
Until the public sewer system is completed (mid 1980s) there
will continue to exist problems related to inability of soils to
handle on -lot sewage. However, due to the relatively slow growth rate,
this should not cause insurmountable problems until the public sewer
system is operational.
The water system will need to be upgraded in the near future
by connection and operation of the existing filtration plant which is
currently not being utilized. However, the system will continue to
provide adequate quantities of water with a limited degree of water

50
quality problems (mostly due to iron and minerals). Both systems
should function adequately through the planning period.
The limitations of the traffic on U.S. 17 should be alleviated
by the completion of the U.S. 17 By -Pass, projected for tentative comple-
tion in FY 1984. Until then, additional off-street parking will be
needed, as well as more intersection traffic lights to allow for easier
and safer exit -entry on to U.S. 17 from local roads and streets.
The schools, fire service, police, and medical facilities are
considered to be adequate throughout the planning period.
i
i

51
PART IV: POLICY FORMULATION
This section provides the rationale for and statement of Town policies.
Where feasible, implementation plans are included. Policies are grouped
according to land use categories of
- Pesource Protection
- Resource Production and Management
- Economic and Community Development
- Continuing Public Participation
A summary of selected policies is contained on page
8.1 RESOURCE PROTECTION
A. AREAS OF ENVIRONMENTAL CONCERN
The term Area of Environmental Concern, or AEC, is used in North Caro-
lina's Coastal Area Management Act (CANA) to identify important natural re-
sources, both on land and water, which could be damaged if subjected to
incompatible development activity.
The Coastal Resources Commission (CRC) has identified thirteen different
types of AECs -- in four general categories -- spelling out the significance
and the basic management objectives for each, and has encouraged local govern-
ments to recommend those types of development, or use, which they consider
appropriate in the AECs within their jurisdiction.
Shallotte's AECs fall into one general category, the Estuarine Sys-
tem.
The Estuarine System
1. Estuarine Waters
All three of the individual AECs falling under the general classification of

Ufa
the estuarine system are to be found or connected with the Shallotte River.
By agreement, the Wildlife Resources Commission and the Department of Natural
Resources and Community Development have determined that the estuarine waters
are those of the Shallotte River west to the U.S. 17 bridge and the waters of
the Charles Branch north to the U.S. 17 bridge (See Part II, 5.2 for a more
complete discussion).
The Town recognizes the importance of estuarine waters as the dominant
component and bonding element of the entire estuarine system. The waters
support the valuable commercial and sports fisheries of the coastal area
which are comprised of estuarine dependent species. The Town recognizes its
responsibility as a land intensive development along the Shallotte River and
Charles Branch to prevent unnecessary further degradation of these waters
which flow to the Ocean. Although much policy consideration has been given to
protect these resources, alternative points have been made which suggest that
these waters are no longer particularly productive due to regional contaminants
and siltation from other activities such as farming, forestry, erosion, septic
tank leachate, etc. Some concern has been expressed over whether the Town
should express any policy supporting protection of such waters since some feel
that the "damage has been done," that there is no real regional policy to deal
with the problem, that degradation of these waters is partly a natural occur-
rence, that CAMA is sufficiently protecting the waters or at least as far as is
practicable, and that the Town is willing to trade off some 'further degradation
for more development, especially job intensive and tax base improving operations.
Through discussion of the above alternatives, the following policy has been.
selected:
POLICY I: THE TOWN WISHES TO PREVENT SIGNIFICANT DETERIORATION OF THE
ESTUARINE WATERS.
Implementation: The Town supports the CAMA permitting procedure which

53
specifies compliance with use standards under 15 NCAC 7H, Section .0208.
The Town will amend its zoning ordinance and subdivision regulations to
include more specific requirements for land uses which could affect water
quality in either a primary or secondary manner. The construction of the
anticipated public sewer system is another measure which should remove the
existing problem of on -lot sewage disposal and leachate entering the estuar-
ine system.
2. Estuarine Shoreline
Estuarine shorelines, although characterized as dry land, are considered
a component of the estuarine system because of close association with the
estuarine waters. In the Town, these areas are the shorelines of .the Shallote
River west to the U.S. Route 17 bridge and the Charles Branch north to the U.S.
17 bridge. The same alternative discussions that resulted for estuarine waters
also pertain to the shoreline. Development within the estuarine shorelines in-
fluences the quality of estuarine life and is subject to the damaging processes
of shorefront erosion and flooding. The Town generally considers the CAMA per-
mitting procedure to sufficiently protect the estuarine shoreline. An alternative
consideration is the requiring of additional setback distances on the estuarine
shoreline and more stringent development standards for development near the
estuarine shoreline.
POLICY 2: THE TOWN DESIRES TO ENSURE THAT SHORELINE DEVELOPMENT DOES NOT
SIGNIFICANTLY HARM THE ESTUARINE SYSTEM.
Implementation: The Town supports the CAMA permitting procedure which
specifies compliance with use standards under 15 NCAC 7H, Section .0209. The
Town will amend its zoning and subdivision regulations to include more specific
requirements for land uses which could cause stream -bank erosion or affect
water quality.

54
3. Coastal Wetlands
The unique productivity of the estuarine system is supported by
decayed plant material and nutrients that are exported from the coastal
marshlands. The value of marshlands in the animal food chain, as nesting
areas, as nutrient and sediment traps, and as barriers against flood hazards
has been well documented. In Shallotte, areas of coastal marsh can be found
in the Shallotte River and Charles Branch (See PP. 33, 34 and Map E).
Although some of the marsh species specified in 15 NCAC 7H, Section
.0205 as those which are found in coastal marshes can be found in the Shal-
lotte River and Charles Branch, the productivity of these particular marsh
areas is questionable. Through the years, these marshes have absorbed nutrients
and pollutants and upstream siltation. They are no longer as viable and pro-
ductive as they once were. Although some consider them of little use, they
still provide protection of the estuarine shoreline and perhaps serve as con-
tinued nutrient traps, thereby saving the marshes in the lower river areas.
An alternative to supporting the state permitting system and/or Town policy
protecting the marshland is ignoring the marshlands as valuable resources. How-
ever, the Town is generally in agreement with federal and state policy in at-
tempting to protect them from significant damage.
POLICY 3: THE TOWN RECOGNIZES THE ENVIRONMENTAL VALUE OF COASTAL MARSHES
AND DESIRES TO PROTECT THEM FROM SIGNIFICANT DAMAGE.
Implementation: The Town supports the CAMA permitting procedure which
specifies compliance with use standards under 15 NCAC 7H, Section .0208. The
Town will amend its zoning and subdivision regulations to include more specific
requirements for land uses which could cause significant harm to coastal wetlands.

55
4. Public Trust Areas
The public trust areas are all of the estuarine waters mentioned pre-
viously, as well as the waters of the Shallotte River west of the U.S. Route
17 bridge, waters of the Charles Branch north of the U.S. 17 bridge, and wa-
ters of the Bobby Branch and Mulberry Swamp Branch. (See P. 35 for a more
complete description of Public Trust Areas). In these waters, the public
has rights of navigation and recreation. Generally, it is federal and state
policy to protect these areas from uses which would interfere with the pub-
lic right of navigation in these waters, as well as uses which would signifi-
cantly harm the biological and physical functions of these waters. Wetlands
are often found in these areas which do not qualify as coastal marsh, yet
have,significant value as freshwater wetlands serving similar biological and
physical functions.
The Town is less inclined to be as protective of these areas as it is
the estuarine system. Many landowners have expressed an unwillingness to
have regulations interfere with their use of these areas or of uses which
may affect them. The Town recognizes, however, that the public trust waters
are connected to the estuarine system. Furthermore, federal and state policy
has allowed for regulation of these areas.
POLICY 4: THE TOWN WILL CONTINUE TO SUPPORT THE PUBLIC'S RIGHT TO NAVIGATION
IN PUBLIC TRUST WATERS AND�-lE WISHES TO PERPETUATE THEIR BIOLOGI-
CAL VALUE.
Implementation: The Town suggests the CAMA permitting procedure which
specifies compliance with use standards under 15 NCAC 7H, Section .0208. The
Town will amend its zoning and subdivision regulations to include more specific
standards regarding land uses adjacent to the public trust areas.

56
B. Suitable Land Uses in the AECs
Generally, suitable land uses will be those uses which are consistent
with the CAMA permitting procedure with highest priority being uses which
foster conservation of the resources and second priority to uses which are
water dependent. In the coastal wetlands and estuarine waters, the state
would not permit nor the Town support development such as restuarants and
businesses; residences; apartments; motels; hotels; trailer parks; parking
lots and private roads and highways; and factories. The state may permit
and the Town may support such uses as utility easements, fishing piers,
docks, and agricultural uses such as farming and forestry drainage, as per-
mitted under North Carolina's Dredge and Fill Act and/or other applicable
laws. Any use permitted would have to comply with the state regulations and
conditions imposed in the Town's zoning and subdivision regulations.
On the estuarine shoreline, the uses permitted are those which are per-
mitted under the zoning ordinance for the zoning district. However, the use
standards under CAMA permitting procedure must be followed. Furthermore,
special. requirements for these areas specified in the zoning ordinance and
subdivision regulations must be followed. The Town has no specific policy
regarding bulkheading other than that all regulations must be followed, and
the following:
POLICY 5: THE TOWN DOES NOT SUPPORT THE USE OF PUBLIC FUNDS FOR BULKHEADING
OF SHORELINE.
Implementation: In the Public Trust Areas, the state may permit and,the
Town may support uses such as navigational channels or drainage ditches, the
use of bulkheading to prevent erosion, and the building of piers, wharfs,
or marinas. CAMA use standards for these areas must be followedialongwith
specific regulations under the Town's.zoning and subdivision regulations.

57
C.OTHER RESOURCES
The Town has not identified any unique or especially valuable natural
areas within its borders. The people of the Town are concerned about the
destruction of vegetated areas and habitats of various species indigenous
to the area. Although some consideration was given to more stringent pro-
tection of environmental resources in the estuarine areas, it was determined
that present CAMA regulations sufficiently protected these areas.
POLICY 6: IT IS THE POLICY OF THE TOWN TO ENCOURAGE THE RETENTION OF FOREST
GROWTH AND NATURAL PLANT COMMUNITIES, AND TO DISTURB THE NATURAL
TERRAIN AS LITTLE AS POSSIBLE.
Implementation: The Town will modify its zoning and subdivision regu-
lations to include more stringent standards regarding open space and surface
drainage during development. A program of informing and educating citizens
with regard to such resources will be developed with the help of variouscivic
groups.
No specific archaeologic sites have been located in the Town, and little
Potential exists for finding any. The Camp Methodist Church and the Sunnyside
School are historic structures which the Town wishes to protect.
POLICY 7: THE TOWN WISHES TO PROTECT HISTORIC SITES.
Implementation: The Camp Methodist Church will be analyzed for the pos-
sibility of being placed on the National Register of Historic Places. The
Sunnyside School, in danger of being destroyed, was rescupd by the Town and
moved to a park facility. The Town will continue to review the fate of'bdild-
ings in the Town through the assistance of civic groups and attempt to pre-
serve and use buildings which it considers valuable.
D. WATER QUALITY AND QUANTITY
Three issues are involved in the assessment of water quality in the Town.
i
The first issue is the availability and quality of water for the Town's water

58
system. The second issue is the effect of individual septic systems on
ground water and surface water. The third issue is the potential for flood-
ing.
1. Surface and Groundwater
F �
Presently, the Town serves water from the public water system to all
residents. The Town's wells are located near S.R. 130.in the northwest
corner of Town. Two wells, fifty feet deep into the Castle Hayne Aquifer
serve the Town. Water quantity and quality are sufficient to serve the
present and future needs of the Town (See PP.39 and 40). The Town continues
to be concerned about the quality of the groundwater. Although growth is
desired, the protection of the groundwater and surface waters from contamina-
tion is of great concern..
POLICY 8: THE TOWN WILL NOT PERMIT DEVELOPMENT OR LAND USES WHICH WILL DE-
GRADE THE QUALITY OF SURFACE WATERS, THE GROUNDWATER OR SIGNIFI-
CANTLY LOWER THE WATER QUANTITY IN THE AQUIFER.
Implementation: The Town will review all development proposals care-
fully to determine its effect on groundwater. The Town will not permit the.
development of any landfills or disposal of hazardous wastes. The Town is
in the process of constructing a public sewer system to remove the negative
effects of leachate from individual on -lot sewage disposal systems or surface
waters and groundwater.
2. Flooding
The Town is currently participating in the National Flood Insurance Pro-
gram. Presently, there are no structures in the flood hazard area. During
heavy rains and storms, some ponding and surface drainage problems do occur.
Although the Town continues to attempt to alleviate problems on a priority
basis, no comprehensive surface drainage plan has yet been developed. Many

59
of the problems are state responsibility as they occur along state owned
roads.
POLICY 9: THE TOWN WILL CONTINUE TO ATTEMPT TO ALLEVIATE SURFACE DRAINAGE
PROBLEMS AND FLOODING.
Implementation: The Town's administration has continued to place a
high priority on surface drainage and flooding and has over the years
eliminated the more serious problems. The Town continues to work closely
with state DOT officials to eliminate specific problem areas. The Town
will amend its zoning and subdivision regulations to include more stringent
and specific standards regarding surface drainage. The Town will continue
to enforce the regulations under the Flood Insurance Program to insure that
structures are protected against flood damage.

60
8.2 RESOURCE PRODUCTION AND MANAGEMENT
A. LAND UTILIZATION
Generally the Town's resources are linked with the residential and com-
mercial trade center aspects of its development. Other than the Town's
commitment to manage its environment and man-made improvements, the community
development, limited area, and lack of extensive developable natural re-
sources precludes any consideration of extensive resource production and
management issues.
However, the Town has some limited agricultural activity, forest re-
sources, and access to commercial and recreational fishing areas. These
issues will be discussed below.
B. AGRICULTURE
In the Town's past, a considerable amount of farming occurred within
the Town.boundaries. Today, farming is a less significant land use in terms
of the Town's economy. Much of the land that was farmed has either been
turned over to development, or now lies unused. There is still, however,
about 100 acres of land within the Town which could be considered of agri-
cultural use.
Farming is generally carried out on the following soils within the Town;
Baymeade, Craven, Foreston, Goldsboro, Norfolk and Onslow (See Section 5.1 A).
Although most of the soils are of agricultural capability II and have some
wetness, good yields can be obtained on most of them. Corn yields are 60 to
100 bushels per acre, with the Craven and Norfolk soils giving higher poten-
tials of over 100 bushels per acre. Soybeans can range from 20-40 bushels
per acre. Tobacco on the Foreston and Norfolk soils can yield 3000 lbs.per
acre.

61
Thus we may say that though farming is not a major land activity for
a Town such as Shallotte, it could remain a valuable resource over time,
and carefully controlled does not necessarily present a detrimental con-
flict to residential and commercial land use. In terms of managing such
a resource, the Town has considered alternatives such as increasing mini-
mum lot sizes in agricultural areas, allowing significant tax reductions
for lands kept in agricultural use, adding specific management controls
to the zoning regulations, not attempting to manage agricultural use,
restr.icing water line size to agricultural use areas to limit possible
densities.
POLICY 10: THE TOWN CONSIDERS AGRICULTURAL USES IN AND NEAR THE TOWN
TO BE A VALID AND VALUABLE LAND USE, WHICH, WHEN CARRIED OUT
PROPERLY, DOES NOT INTERFERE WITH OTHER LAND USES NOR WILL
REDUCE SIGNIFICANTLY THE LAND SUPPLY OF THE TOWN NEEDED FOR
FUTURE GROWTH.
Implementation: The Town will add specific management measures to
the zoning ordinance which will reduce any detrimental effects of increased
agricultural activity on other land uses. The Town will amend the zoning
classification of agricultural areas to allow for larger minimum lot sizes.
C. FORESTRY
Over 4 of the Town still is covered by treed areas. However, commercial
timbering operations are not anticipated to be carried out to any significant
degree within the Town and therefore forestry will not be a source of re-
source production for the Town. Treed areas are part of the open space re-
sources of the Town. (See Policy 6.)
D. MINERAL PRODUCTION
No existing or potentially valuable mineral resources are believed to

62
exist within the Town.
E. COMMERICAL AND RECREATIONAL FISHERIES
Although no significant commercial fishing is done within the Town
limits, the Town continues to be a focal point for commercial fishing
(especially shellfish) which takes place further downstream and in
coastal waters. Commercial catches reported are in excess of 100,000 lbs.
with an ex -vessel value of $300,000. Shallotte has at least six seafood
processors. Over 36 people with Shallotte addresses are licensed by the
State Marine Fisheries for seafood dealing, mostly in oysters. (See Sec-
tion 2.3). The Shallotte River is navigable from the Town of Shallotte to
the Ocean, not only providing a waterway for commercial vessels, but also
for recreational use. Often the River provides a means of safe refuge dur-
ing times of storm. The River is.a valuable recreational fishing resource..
Generally, the Town's concerns center around water quality and access. In
terms of water quality, alternatives open to Town government center on pre-
venting land uses, especially on -lot sewage disposal from residential use,
from causing significant deterioration of water quality (See Policy 1).
Although private boat -ramps and marinas have provided some public access,
the Town feels that not enough public access is available for recreational
use. Alternatives considered have included requiring any subdivision of
land on shorelines to provide public access, the Town using revenues to
purchase land or seek easements along the shoreline and develop a.Town boat
ramp or marina,.access shoreline owners by the foot so that a fund can be.
established for public access, increase general taxes to set up a special
fund to use for the development of shoreline access.

63
POLICY 11: THE TOWN CONSIDERS COMMERCIAL AND RECREATIONAL FISHING TO
BE OF SIGNIFICANT IMPORTANCE TO THE ECONOMY AND THE GENERAL
CHARACTER WELFARE OF THE COMMUNITY. THE TOWN WILL WORK
TOWARD PROTECTING AND DEVELOPING COMMERCIAL AND RECREATIONAL
FISHERIES. THE TOWN WILL WORK TOWARD DEVELOPMENT OF A PUB-
LIC BOAT RAMP ON THE SHALLOTTE'RIVER.
Implementation: In terms of protecting water quality so that com-
mercial and recreational fisheries can continue to thrive, see Policy 1.
The Town does not consider the present location of seafood processors to
be in conflict with other land uses. The Zoning ordinance regulations
presently in effect allow for expansion of such operations, and provide
for necessary strategies to prevent use conflicts.
For recreational access to the shoreline, the Town will revise its zon-
ing and subdivision regulations to provide for public access when shore-
line areas are developed. Other shoreline protective measures can be found
in Policies 2, 3 and 4. The Town will study the ends of streets which
face the Shallotte River to determine potential boat access sites.
The Town will use recreation budget moneys as they come available to
develop boat access sites.

64
8.3 ECONOMIC AND COMMUNITY
DEVELOPMENT
A. GROWTH
The Town desires a moderate growth rate so that employment op-
portunities can be developed and the tax base expanded to pay for
additional services such as the new sewer system and needed improve-
ments to the water system. Residents are concerned, however, that
the community could grow too fast and be burdened with environmentally
degrading commercial or industrial enterprises. Although growth is
generally desired, the community wishes to carefully control the size
and type of growth. Policies considered: 1) Increase growth rate to
8% or more per year; 2) Keep growth rate to the rate of the 1970's,
namely 3%; 3) Limit the growth rate by control measures (e.g. limiting
building permits, high hook-up fees for new structures); 4) Adopt a
no growth policy; 5) The Town wishes a moderate growth rate, matching
services and budget to the growth.
POLICY 12: THE TOWN WISHES TO INCREASE ITS GROWTH RATE. THE ANTICIPATED
SEWER SYSTEM WILL ACCOMODATE A MODERATE GROWTH RATE OVER THE
PLANNING PERIOD. THE WATER SYSTEM, WITH MINOR IMPROVEMENTS.
WILL ALSO BE SATISFACTORY. OTHER SERVICES WILL BE BUDGETED
FOR IMPROVEMENTS AND ADDITIONS TO MATCH THE GROWTH.
THE TOWN IS INTERESTED IN ACHIEVING GROWTH IN ALL TYPES.
OF URBANIZED LAND USE. ESPECIALLY IMPORTANT IS GROWTH
IN JOB INTENSIVE INDUSTRY. COMMERCIAL AND RESIDENTIAL
GROWTH IS PREFERRED IN THE EXISTING TOWN LIMITS.. IN-
DUSTRIAL GROWTH SHOULD OCCUR ON THE OUTSKIRTS OF TOWN, SUCH
AS ALONG NC 130. THE -TOWN WILL CONTINUE TO PURSUE ITS AN-
NEXATION POLICIES WHEN NECESSARY. MANAGEMENT TOOL MODIFI-
CATIONS ARE ANTICIPATED DURING FY 1982 TO ASSIST IN MANAG-
ING AND DIRECTING GROWTH.

65
Implementation: The Town is in the process of constructing a public
sewer system and is planning necessary improvements to the water system.
During the next fiscal year, the Town will revise its zoning ordinance
and subdivision regulations to insure additional control over anticipated
growth. The Town is in the process of forming a development committee
to seek out lands and financial arrangements for commercial and industrial
development. The Town will seek methods to protect water wells from
use by an easement or purchase of land.
B. LAND USE
The Town has developed as primarily a residential area with a
large commercial area which serves as a commercial hub for the sur-
rounding rural areas and the Ocean beach communities. Most of the com-
merical area is along US 17, and residential use has in recent years
begun to spread out to the limits of Town in scattered subdivisions
(see Map A). Discussions of growth and land use have centered around
the degree of intensive residential development, commercial growth,
multi -family units, and industrial development and location. All of
the urbanized uses, of course, must be considered in relation to the en-
vironmental aspects of the Shallotte River system. Policies considered:
1) Restrict future development to residential single-family development
• emphasis; 2) Continue the past patterns of residential and commercial
development; 3) Foster more multi -family unit development and commercial
uses, with strict limits on industrial growth; 4) Develop an open door
policy of growth with active seeking of all kinds of development includ-
ing an aggressive industrial posture.

POLICY 13: THE TOWN WISHES TO INCREASE ITS GROWTH RATE AND PROVIDE AN
ATMOSPHERE OF OPEN GROWTH OF ALL TYPES OF LAND USES INCLUD-
ING INDUSTRIAL DEVELOPMENT. IT IS EMPHASIZED, HOWEVER, THAT
ALL DEVELOPMENT WILL BE CAREFULLY MONITORED AND REGULATED
USING TOWN AND STATE REGULATIONS SO THAT SERVICES ARE PRO-
VIDED, THE HEALTH,SAFETY AND WELFARE OF THE PEOPLE ARE
PROTECTED, AND THAT NO SIGNIFICANT ENVIRONMENTAL DEGRADATION
OCCURS.
THE TOWN WISHES TO EMPHASIZE.ITS DESIRE TO ATTRACT INDUSTRIAL DEVELOPMENT,
WHETHER IT BE HEAVY, MEDIUM OR LIGHT. ESPECIALLY IMPORTANT ARE INDUSTRIES
WHICH ARE JOB INTENSIVE. DESIRED LOCATIONS ARE ALONG NC 130.
Implementation: The Town will set up a development task committee_
to pursue commerce and industry. The Town's zoning ordinance and sub-
division regulations, along with other Town regulations will be updated
in the next fiscal year and necessary revisions made.

67
C: TRANSPORTATION
Traffic on US 17 through Town continues to be a major problem.
Although the provision of traffic lights and more off-street parking
have served to reduce some of the hazards and problems of commercial
traffic entering and exiting US 17, further steps are necessary. The
Town has for some time been anticipating the construction of the pro-
posed US 17 By -Pass. Policies considered: 1) Continued support for
the By -Pass; 2) Seeking of additional traffic lights for US 17; 3) us-
ing public funds for the construction of a parking lot or parking garage;
4) Asking for a slower speed limit through Town; 5) Allowing no new com-
mercial development without substantial off-street parking lots; 6) Con-
struction of a parallel road; 7) Making US 17 three lanes.
POLICY 14: THE TOWN WILL CONTINUE TO PRESS FOR THE CONSTRUCTION OF THE
PROPOSED US 17 BY-PASS. IN ADDITION THE TOWN WILL CONTINUE
TO SEEK MORE TRAFFIC LIGHTS, AS WELL AS REQUIRE SUFFICIENT
OFF-STREET PARKING AREAS FOR NEW COMMERCIAL DEVELOPMENT.
THE TOWN WILL STUDY THE POTENTIAL FOR A PARALLEL STREET TO
US 17 TO ALLOW LOCAL TRAFFIC TO MOVE MORE FREELY.
Implementation: The Town continues to keep in contact with state
representatives regarding the By -Pass. The Town continues to seek ad-
ditional traffic lights, and when the zoning ordinance is updated,
stricter off-street parking regulations will be instituted.

D. ENERGY FACILITIES
Although the Town is primarily a residential and commercial com-
munity, industrial development is a use which the Town will be pur-
suing in the future. Furthermore, the Town considers major facilities
such as energy facilities and utilities to be suitable growth inducing
land uses, providing, of course, that environmental standards are met.
Although little liklihood exists for such facilities to locate within
the Town, the Town would consider doing its share to assist such develop-
ment. Policies considered: 1) Designating areas suitable for pipelines,
substations or possibly a powerplant; 2) Requesting the State to require
power lines and other transmission lines to be placed underground; 3)
The Town adding its voice to other communities opposing major facilities
in the area.
POLICY 15: THE TOWN DOES NOT OPPOSE THE LOCATION OF MAJOR FACILITIES
SUCH. AS REFINERIES.OR POWER PLANTS IN THE AREA PROVIDED THAT
ALL REASONABLE SAFEGUARDS ARE USED TO PROTECT THE PEOPLE AND
THE ENVIRONMENT.
E. .TOURISM
Although many travelers and tourists pass through the Town on their
way to other places, especially the nearby beach communities, the Town
itself is not tourist oriented. The Town, rather, serves as a commercial
center for summer residents of the beach communities and the surrounding
rural areas. The Town has noted that its need for services does not in-
crease substantially during the summer season. Policies considered:
1) Seek attraction of tourist oriented commercial/recreational activi-
ties; 2) Enforce strict standards to reduce opportunities for tourists
to trade in town; 3) Continue to allow opportunities for tourists and

• 0
summer residents to make use of the trade center concept of the Town.
POLICY 16: THE TOWN WILL CONTINUE TO FOSTER THE TRADE CENTER CONCEPT
OF THE TOWN.
Implementation: The Town will continue to allow visitors week-
end opportunities to trade in town by continuing to disallow restrictive
trade ordinances.
F. HISTORIC PRESERVATION
The Town has two historic sites, the Camp Methodist Church and the
Sunnyside School. The Town does not have a substantial historic inven-
tory, but what it does have is generally recognized as valuable to the
community. The Sunnyside School was moved from its original site to
the Town Park, so that the structure could be preserved and used as
part of the recreation complex. No other archaeological or historic
sites are known to exist in the Town.
POLICY 17: THE TOWN RECOGNIZES THE VALUE OF HISTORIC SITES AND WISHES
TO PROTECT AND PRESERVE THEM.
Implementation: The Town Board and volunteer groups continue to
monitor development in the Town and will continue to protect and pre-
serve historic and archaeologic sites discovered.
G. RECREATION
The Shallotte Municipal Park has continued to see an implementation
of its Master Plan. The Park has picnic facilities, swing sets, and the
recent moving of the Sunnyside School to the Park site has added a historic
facility.
The Town has been working closely with Brunswick County in the de-
velopment of the County Park adjacent to the Town. The County Park

70
construction is currently underway and will offer many active and pas-
sive recreational opportunities. The Town anticipates the Municipal
Park and the County Park will work in conjunction to provide excellent
recreational opportunities. Policies considered: 1) Construct another K
Town Park; 2) Continue to work closely with Brunswick County in terms
of future development of the County Park as well as coordination of the
Shallotte Municipal Park development; 3).Concentrate on development of
boat access on the Shallotte River.
POLICY 18: THE TOWN WILL CONTINUE TO WORK WITH THE COUNTY IN DEVELOPMENT
CONCEPTS OF THE COUNTY PARK. THE TOWN WILL CONTINUE TO IM-
PLEMENT THE SHALLOTTE MUNICIPAL PARK MASTER PLAN. THE TOWN
WILL CONCENTRATE ON THE DEVELOPMENT OF BOAT ACCESS SITES ON
THE SHALLOTTE RIVER.
Implementation: The Town will set up a recreation committee to
continue the County coordination, Shallotte Municipal Park Master Plan.
implementation, and selection and development of boat access on the Shal-
lotte River.
H. REDEVELOPMENT
Few dilapidated residential or commercial structures exist in the
Town. Although many structures are in need of aesthetic improvement,
the Town has generally considered this to be a private property problem.
No substantial redevelopment is seen as needed. Many residents, have,
however, indicated a desire to see a beautification program instituted.
Some volunteer groups instituted tree planting and other beautification
projects. The Town, in cooperation with the State road cleaning project,
provides extra trash removal service from time to time.

71
Since redevelopment is not considered to be a significant issue
in the Town, no specific policy has been developed.
I. COMMITTMENT TO STATE AND FEDERAL PROGRAMS
The ongoing state and federal projects in Shallotte are: maintenance
of highways, dredging of the Shallotte River, proposed US 17 By -Pass, fed-
eral assistance for the new sewer system, state and federal grants to
the community for various program, North Carolina CAMA permitting program.
POLICY 19: THE TOWN CONTINUES TO EXPRESS ITS SUPPORT FOR THE ABOVE PRO-
GRAMS WHICH AFFECT THE TOWN. THE TOWN EXPECTS TO WORK CLOSE-
LY WITH THE COUNTY, STATE AND FEDERAL GOVERNMENTS TO INSURE
THE HEALTH SAFETY AND WELFARE OF THE PEOPLE OF THE TOWN AND
THE PROTECTION OF THE ENVIRONMENT.

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8.4 PUBLIC PARTICIPATION
A. PARTICIPATION ELEMENT
During the planning process, the Town attempted to include the
public in the process by letting it be known through newspaper ad- '
vertisement that land use plan work sessions would occur as part of
the regular monthly Town Board meetings. Although few citizens actual-
ly attended the sessions, the Town relied on continual newspaper
articles to inform the citizens on the Plan's progress and content.
Copies of the sections of the Plan as completed and maps related to
the Plan were on file at the Town Hall for citizens to read and comment
upon.
An attitudinal survey was conducted of all of the property owners
of the Town to understand how residents felt about items closely re-
lated to planning. This information, analyzed in the following sec-
tion, assisted the Town Board in the formulation of the Plan's poli-
cies. Policies considered: 1) Encourage public participation; 2) No
policy.
POLICY 20: THE TOWN WILL ENCOURAGE THE PUBLIC TO PARTICIPATE TO THE
MAXIMUM EXTENT POSSIBLE IN THE GOVERNING OF THE TOWN.
Implementation: The Town directs the Planning Board to set aside
regularly scheduled meetings to discuss land use issues. The Planning
Board will continue to advise the public on the nature of items being
considered by the Town Board. They will cooperate with the press and
prepare releases for bringing the public up-to-date on government
activity.
B. ATTITUDINAL SURVEY ANALYSIS
During the planning process for the land use plan the consultants

73
conducted an attitudinal survey of the residents of the Town. The pur-
pose for the survey was to understand how local residents felt about
items that were closely related to planning. However, because the
Census information was still not available, the survey also attempted
to preliminarily gather some of this information.
The attitudinal survey was conducted through a random sample mail -
out under controlled conditions. Based on the number and quality of
the responses, we judge the confidence rate at approximately 85% on
most answers.
Some of the conclusions from the survey are as follows: (1) the
major problems facing the Town of Shallotte are the need for a public
sewer system and for a by-pass to Route 17 business traffic; (2) there
is a strong support for zoning ordinance amendments and probably for
building codes and local health and environmental ordinances; (3) there
is a strong pro growth attitude (tempered by limiting certain types of
growth, especially commercial, industrial, and non -single family housing).
Of the 46 persons who completed the survey, all but three were males.
The respondents showed a broad span of the age spectrum. They indicated
that a large percentage of the homes in the Town were inhabited by a
family consisting of grandparents, parents and children. In many in-
stances there were four or more full-time employed persons in the house-
hold. About 35% of the households had incomes exceeding $35,000 a year,
yet the employment would not be considered to be principally from pro-
fessions, or high paying occupations. The average size for the family
was 3.18 persons. 36% of the respondents had moved into the area within
the last 5 years.

74
In rating the adequacy of services and facilities, 54% of the
respondents judged the inadequacy of septic systems and the need for
public sewers as the most critical problem; 42% felt that they were
fully dissatisfied with recreational opportunities (69% were more
dissatisfied than satisfied with this service); a significant num-
ber of persons were very dissatisfied with roads and thoroughfares
'and surface drainage. Many of the respondents appear to be willing
to pay an additional amount in local taxes to attain relief from
the services or facilities they judge as inadequate. Typically,
the residents appear willing to pay about $100 per year for sewer;
$25 or more for recreation; and $10 for some other services. Only 15%
of the people responding indicated an unwillingness to back new facili-
ties or services because they were already being taxed too much:
Ironically, the dissatisfaction index was higher among those unwilling
to pay than those willing to pay.
92% of the respondents back a public sewer system. They typically
view their costs at about $100/year in 1980 dollars. This is a healthy
attitude since the residents appear to strongly favor a pro growth at-
titude. Only 8q.of the residents were for decreasing the existing
growth rate, which is best described as above average for the State.
35% of the respondents desired to significantly increase the rate of
growth. Probably in recognition of this pro growth attitude, the
respondents seemed concerned about the amount of certain kinds of devel-
opment and its timing and location. 77% of the respondents desire to
restrict or prohibit future mobile home growth; 58% want to restrict
low income housing; 54% desire to restrict industrial development; and
35% want to restrict multi -family. Most of these restrictions could
n

75
be addressed through a zoning ordinance. Several of the respondents
even commented that a zoning ordinance was needed to address this and
other problems.
The respondents were extremely heavily in favor of taking local
action to protect environmental features, including aquifer recharge
areas, wooded areas, steep slopes and scenic areas (Most answers were
in the 70% and above percentile). This problem can typically be ap-
proached through regulating densities and dealing with clearing and
cutting in a zoning ordinance). Over 50% of the respondents would
have the locality adopt regulations to protect the environment even
where the State or Federal government has already taken regulatory.
action.
30% of the respondents did not find the Town's visual appearance
attractive. Frequently, these respondents drew attention to the num-
ber of dilapidated houses in the Town. The enforcement of a building
code would probably alleviate this problem.
62% of the respondents complained about the adequacy of parking in
the Town. This rated comparably to problems with traffic flow.
The consultants note that there may be at least one indicator of
future problems that bears watching. From the survey, it is noted that
26% of the work force appears to be commuting over 25 miles to work
(some as. many as 50 to 60 miles). Inevitably this group has made a value
judgment that they would rather live in a small town and commute than
live in the bigger city. With gas prices approaching $1.50 per gallon,
we may reach a point at which the costs of traveling to work are operat-
ing as a dissincentive to working. Presumably these people will move

76
rather than function with continually smaller real incomes. If this
happens, there could be a sizable out -migration. Thus, although the
people were convinced that the Town's position concerning future em-
ployers could be selective, the consultants are concerned that this
attitude may change drastically in the near future.
In conclusion, in terms of planning needs the survey seems to
indicate the need to progress with sewer plans, make some arrangement
with the -State Department.of Transportation to create a north -south
by-pass, and to enact zoning ordinance amendments (.building codes,
subdivision regulations) to protect the environment and limit or re-
strict unacceptable uses.
IV]

WA
PART V: LAND CLASSIFICATION
The land classification system has been developed as a means of
assistance in the implementation of the Plan. By delineation of land
classes (see Map B), the Town has indicated where growth is expected
to occur and where they want to insure conservation of natural and
conservation resources.
Although specific areas are outlined on the land classification
map, land classification is merely a tool to help implement policies
and is not a regulatory mechanism in itself.
Trancitinn-
The purpose of the transition class is to provide for future in-
tensive urban development within the ensuing ten years on lands that
are most suitable and that will be scheduled for provision of neces-
sary public utilities and services.
A central theme through the policies is the desire of the com-
munity for growth and development with appropriate services and controls.
The Town has used its zoning and subdivision regulations to regulate
growth and insure development opportunity. The Town has, however, recog-
nized the limitations of its natural environment. The Shallotte River
estuarine system represents an area not suitable for transitional ur-
v banized uses. The soils of most of the community are not suitable for
on -lot -sewage disposal, a factor which has not limited the Town's growth
potential.
The Town has, however, embarked on a course to make it a growing
trade center in the region. The community presently provides public water,

fire, police, street maintenance and solid waste removal to the resi-
dents. The Town is presently in the process of constructing a public
sewer system to serve all areas of the community. The Town continues
to work at improving the traffic flow on US 17 by pressing for more
off-street parking, traffic lights, and perhaps a parallel street to
help with local traffic flow. The US 17 By -Pass is a major project
which the Town continues to support.
It is the Town's intention, through the implementation of the
policies in the Plan, to assist in protecting the AECs by considering
those lands to be conservation by classification, and the remaining
lands in the Town to be transition. The transition lands, once pub-
lic sewer is available, will be suitable for community growth with
careful enforcement of zoning and subdivision regulations. Suitable
uses will be residential, commercial, institutional, transportation,
and industrial. All uses as to location and density will be regulated
by the zoning map and land regulations. The development rate and den-
sities will also be matched by the provision of services.
Conservation:
The purpose of the conservation class is to provide for effective
long-term management of significant limited or irreplaceable areas.
Such management is needed because of its natural, cultural, recrea-
Im
tional, productive or scenic values. In the Town, these areas include
the AECs (e.g. estuarine water, estuarine shoreline, coastal wetlands,
and all surface waters. The Shallotte Municipal Park is included in
this category, since it serves as a recreational and historic center.
it is anticipated, however, that public sewer could be extended to the
park in order to provide users with a facility.

79
The Town supports CAMA regulations in applying standards for
AEC areas. The Town may permit uses which do not significantly harm
the environment and which are permitted by the CAMA program (see sec-
tion 8.1 for further discussion). As discussed in section 8.1, the
Town will do its part in terms of permitted uses and regulation of
activities in or near the AECs to protect the environment. The Town's
zoning standards affecting the conservation zone will be revised dur-
ing the next fiscal year to better define the protective concept
afforded to the conservation zone.