Beach Access Plan-1980

PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

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JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC

THE SURF CITY BEACH ACCESS PLAN
Clifton Howard, Mayor
Robert King
Kenneth Batts
Douglas Thomas
Donald Helms
The preparation of this study was financed in part
by a grant, provided by The North Carolina Coastal
Management Program, through funds provided by The
Coastal Zone Management Act of 1972, as amended,
which is administered by The Office of Coastal Zone
Management, National Oceanic and Atmospheric
Administration.
JOHN J HOOTON AND ASSOCIATES WILMINGTON$ NC

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FOREWORD
The Surf City Beach Access Plan has been developed in recognition of competing rights of
resident land owners desiring the quiet enjoyment of their property and the visiting public
seeking access to public lands and waters. The Federal government has recognized this
conflict as a problem of all coastal communities and has sought to resolve it by providing
funds to state and local governments for beach access planning. The Town of Surf City
applied for and received a grant through the N.C. Office of Coastal Management to develop a
plan for guiding public access to its beach and sound and this plan is the product of that
grant. ,Whether this plan is successful will largely depend on the cooperation of local
property owners, the resourcefulness of Town officials and the degree of commitment to public
access shown by State and Federal agencies. Grateful appreciation is extended to all Town
officials and employees for their cooperation and assistance in the preparation of this plan.
JOHN J HOOTON AND ASSOCIATES WILMINGTON$ NC

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TABLE OF
CONTENTS
PAGE
1.0
INTRODUCTION
1
1.1 PROBLEMS AND ISSUES
1
1.2 PURPOSE AND SCOPE . . . . . . . . . . . •
• • • 2
2.0
LEGAL AND POLICY CONSIDERATIONS . . . . . . . . . . . . . .
. . . 3
2.1 FEDERAL AND STATE POLICIES . ' . . . . . .
. . . 3
2.2 LEGAL TOOLS FOR BEACH ACCESS ACQUISITION AND PRESERVATION . .
. . . . 4
3.0
GUIDELINES FOR PLANNING AND DESIGN . . . . . . . . . . .
9
3.1 PLANNING AND LOCATION . . . .. . . . . . . . .
9
3.2 FACILITIES
10
3.3 MODIFICATIONS FOR HANDICAPPED ACCESS POINTS
11
3.4 DESIGN . . . . . . . . . . . . . . . . . . . . . . . . . .
. . . . 12
3.5 LEGAL . . . . . . . . . . . . . . . ... . . . . . . . . . .
. . . . 13
4.0
SURVEYS AND PROJECTIONS
14
4.1 PHYSICAL CONDITIONS
14
4.2 LEGAL STATUS ' .
17
4.3 PARKING . . . .
19
5.0
CONCLUSIONS AND RECOMMENDATIONS . . . . . . . . . . . . .
t
. . . . 21.
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1.0 INTRODUCTION
1.1 PROBLEMS AND ISSUES
The problem of access to public land and waters arises at Surf City for the same reason it
does in other North Carolina coastal towns, or in other coastal, towns across the nation.
The first reason relates to the increasing population within easy access to the shore.
Presently over 70 percent of the U.S. population is within 70 miles of the coast (which
includes the Great Lakes) and 50 percent of the population is within 50 miles. Surf City
is no exception to this problem since it is within a few minutes driving time of residents
from Pender, Onslow, and New Hanover counties and within a half day drive of the entire
Piedmont Crescent from Raleigh to Charlotte. A second reason access is a problem in Surf
City and other beach communities in North Carolina stems from the patterns of land owner-
ship. While the public owns the beach from the mean high water mark seaward (actually it
is held in trust by the State with the public as beneficiary), the area from the mean
high water mark landward is most often owned by private individuals. The following
illustration describes the typical pattern of beach ownership in Surf City and in North
Carolina and shows how the access problem can arise. A third reason is economic. Land
prices of beachfront property have accelerated at a rapid pace and the cost of providing
access has increased accordingly. The U.S.*Department of the Interior estimated that in
1935 shorefront property could have been purchased for $9,000. per mile, in 1955 for
$110,000. per mile and in 1975 for 1.5 million dollars per mile. Today, estimates in
terms of cost per mile are meaningless because of the degree of development. Per front
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prices for beachfront property on Topsail Island range from $250. to $700. and every
indication is that prices will continue to rise. This continually escalating price of
shorefront land will make it prohibitive for local government to purchase additional access
and makes it imperative that existing access be protected. A final problem local governments
face in providing access is finding an adequate number of parking places. For many visitors
if there is no place to park their automobile, access is effectively denied. For environ-
mental and fiscal reasons the provision of large scale parking facilities on barrier islands
may be undesirable and infeasible. Not only will the amount of impervious surface be
increased with associated problems created by additional runoff but an increased number of
cars adds air pollutants and endangers foot traffic. Further, the high land costs on
barrier islands makes parking facilities extremely expensive to provide in sufficient number.
Eventually a saturation point may be reached and alternative transportation modes such as
buses, bikes, and walking will have to be used.
1.2 PURPOSE AND SCOPE
The central purpose of the Surf City Beach -Access Plan is to provide a plan for improving
and protecting existing access points in the Town. The methodology used in developing the
plan was to analyze legal and policy requirements for beach access (Section 2.0), establish
planning and design guidelines (_Section 3.0), survey and evaluate existing access points
(Section 4.0), and develop a plan and recommendations (Section 5.0).
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PUBLIC PRIVATE PRIVATE PUBLIC PRIVATE
Ocean Wet Dry Upland i Road ! I
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2.0 LEGAL AND POLICY CONSIDERATIONS
2.1 FEDERAL AND STATE POLICIES
Two major policies - one at the State level and one at the Federal level- have significance
for local governments in beach access planning. The first is the Federal Coastal Zone
Management Act of 1972 (P.L. 92-583), and the regulations promulgated thereunder. This
Act established the beginning of coastal management in the United States by providing grants
to'States to develop their own coastal programs. North Carolina's Coastal Area Management
Act is a result of this law. The Federal Act was amended in 1976 to require that each
recipient State define the term "beach" and provide a planning process for the protection
of, and access to, public beaches and other public coastal -areas of environmental,
recreational, historical, esthetic, ecological, or cultural value. The implementing
guidelines require that plans should consider the supply of existing facilities, demand
for future use, and the capability of existing areas to support increased access. In
addition consideration should be given to visual as well as physical access. In defining
the term "beach" States were directed to do so in terms of physical and public character-
istics but at a minimum the definition must be as broad as allowed under existing State laws
and constitutional provisions. To implement these regulations Section 315(2) of the 1976
amendments provided authority to make grants for up to 50 percent of the cost of land
acquisition. Unfortunately, no funds have ever been appropriated.
The Federal Act provided the impetus for the enactment of the North Carolina Coastal
Area Management Act. Generally, CAMA provides that the public's opportunity to enjoy the
physical, esthetic, cultural and recreational qualities.of the State's shorelines shall
be preserved to the greatest extent feasible. This general legislative directive was
more clearly spelled out in the "General Policy Guidelines for the Coastal Areas." These
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Guidelines defined the term "beach" as required by the Federal directive, to extend from
the mean low to the mean high water line and beyond to where (1) the growth of vegetation
occurs, (2) a distinct change in slope or elevation occurs, or (3) riparian owners have
specifically and legally restricted access above mean high water. Development shall not
interfere with the public's right of access where acquired through public acquisition.
The most significant policy statement places the major responsibility of insuring adequate
access to public trust lands and waters on local government, but to be assisted by State
and Federal governments. While, the extent of Federal and State assistance to be provided
is far from clear it is apparent that assistance for other beach projects (such as beach
renourishment) will be denied unless adequate access is provided. Further, this access
.shall include not only access rights but adequate identification and parking. To receive
State or Federal funds for beach access localities must also provide for protection of
the frontal dunes. Land use plans must recognize the need of providing access to all
socio-economic groups.
These two legislative acts - Federal and State - with their implementing regulations and
guidelines form the policy basis for beach access planning by local governments in North
Carolina. Their net effect is a transfer of responsibility from the Federal level to
the State level and ultimately to the local level for providing public access. Other
than the inclusion of access rights, identification, and parking little indication is
given as to how local governments will provide access or the extent of Federal and State
participation.
2.2 LEGAL TOOLS FOR BEACH ACCESS ACQUISITION AND PRESERVATION
There are three general approaches to obtaining beach access - legislative, protection
and perfection of existing access, and acquisition of new access. Within these three
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general approaches the options run from purchase in fee simple to condemnation of access
easements. There are excellent references available on this subject and only those tools
considered to be of possible use for Surf City will be considered.
acquisition of fee simple interest - Purchase of fee simple title is the most direct means
of acquiring access but may also be an expensive method depending on the location and
amount of land sought. North Carolina local governments are granted the authority to
acquire real property in General Statutes 153A-158 and 160-11. Authority to purchase
property for parks and recreation purposes is granted in N.C. General Statutes 15A-444
and 160A-353. Purchase.of a fee interest at the neighborhood scale would be most appropriate
for purchasing narrow strips for access to the beach or providing limited parking. At a
larger scale the fee simple purchase would most likely be used to acquire a relatively
large park for State or municipal use.
acquisition of less than a fee interest - easements - Easements, or the right to use
another's land in some specifically designated manner, may generally be acquired by either
purchase or prescription. Easements are most appropriate in acquiring walkways from a
public area, across a landowner's property to the beach. The primary consideration in
acquiring easements is to insure that the accessway leads from the beach to an area
accessible to the public. Thus, to be of use to the public, parking of some sort must be
available. Purchase of easements may be expensive or unavailable but landowners may be
persuaded -to sell if they are allowed a reduction in property taxes because of diminution
in value. Another type of easement is the prescriptive easement. This easement is
acquired because of the continued use of the landowner's property by some other party and
the law will recognize that party's right to continue that use. In the case of beach
access the "other party" is the public. In many beachfront communities, including
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Surf City, the public has continually used certain areas to reach the beach. If such
public use satisfies the requirements for.prescription, primarily as to duration of the
use and prescription, then the public has acquired a right to use that particular access -
way irrespective of the desires of the land titleholder. A prescriptive easement can be
acquired only when it can be shown that the use has been made by the public at large and
to be legally recognized must be established by litigation, followed by recordation of
the encumbrance upon title. The major stumbling block to establishing prescriptive
easements in North Carolina is the requirement of adverseness. Most cases have involved
use of an access road by a landlocked owner with adverseness won by a lack of overt
permission. Thus the use need not be hostile in the conventional sense, to be adverse.
However, if permission is given by the servient owner, the easement will be precluded and
use of vacant land is presumed to be with the permission of the owner.
land use controls - There are two basic tools that fall under the police power heading
available to local governments to acquire pedestrian access for the general public.
These are zoning ordinances and subdivision regulations. The simplest method is to zone
beachfront property recreational/residential with access provisions being one of the
requirements of the zone; this designation could apply to both commercial as well as
residential uses. This approach has been utilized by Currituck County since October of
1971. Under that ordinance a Recreational Residential Zone requires the provision of
public accessways of not less than 10 feet in width, from a public roadway to a recreation
area, for each development involving more than 600 feet of recreational resource (beaches
or sounds) frontage. The authority for establishing such requirements in local zoning
ordinances exists under the zoning enabling legislation for North Carolina counties,
N.C. General Statutes 153A-340. This Section states: "Where appropriate, the conditions
may include requirements that street and utility rights -of -way be dedicated to the public
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and recreation facilities be provided. The question is whether the provision of beach
access is an "appropriate" situation for the imposition of requirements relating to
recreational space and facilities. For the same reasons discussed in the Introduction,
a!substantial case can be made that the provision of access is "appropriate." The
second land use tool available to local governments is required dedication of roads to
provide access. Public access to beaches is afforded by requiring the extension of roads
or rights -of -way to the foreshore and dedication to the public. In application two
requirements are necessary: (1) extension of all roads and rights -of -way not parallel
to the beach down to the foreshore, and (2) public dedication of all such roads and
rights -of -way not parallel to the beach. The Currituck County ordinance previously
mentioned requires the extension of all roads and rights -of -way not parallel to the ocean
down to the foreshore in all developments having a minimum of 600 feet of frontage. The
land Subdivision regulations adopted by the Town of Nags Head require public dedication
of all roads in subdivisions developed within the Town - beachfront and nonbeachfront.
The authority for requiring such a dedication is contained in N.C. General Statutes
153A-331 which states: "A subdivision control ordinance may provide for ... the dedication
or reservation of recreation areas serving residents of the immediate neighborhood and
of rights -of -way or easements for streets or utility purposes." A third method directly
related to the one just discussed is the required provision of water access to lots in
new subdivisions. Generally, a municipality could not require public dedication of an
entire lot without just compensation. However, there are two possible methods of achieving
access without unreasonable cost to the municipality or developer. First, dedication,
through the.subdivision control ordinance, of water access lots.could be required in any
subdivision containing interior lots; that is, access for the entire subdivision not the
.general public. While this would provide access only to lot owners in the subdivision,
the municipality could later acquire the lot through eminent domain if the need arose.
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Using the "before and after" valuation method required in condemnation proceedings, the
cost of acquisition would probably be relatively low due to the difficulty of transfer
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caused by the many owners of the lot. The Carolina Beach Subdivision regulations require
the provision of water access lots for any subdivision adjoining the sound, the Cape
Fear River, the Intracoastal Waterway, or the Atlantic Ocean if interior lots are included.
Lots must be a minimum of ten feet in width and provided at the ratio of one lot per 600
feet of frontage. Access lots must adjoin a public street and be either dedicated to the
general public or transferred in fee to interior lot owners.
The Surf City Subdivision regulations also contain such a provision. Under Article VII -
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Section 12 all subdivisions adjoining water areas are required to provide a 10 foot easement
every 1,320 .feet along shoreline adjacent to the subdivision which shall be dedicated to
the Town and accessible from a public road. This provision was recently enacted by the Town
of Surf City and should help to prevent situations that have occurred in certain subdivisions
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in the Town where access has been restricted only to owners of lots within the subdivision.
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3.0 GUIDELINES FOR PLANNING AND DESIGN
.The following guidelines are intended to provide generalized standards for location,
design, and improvements at beach access points; however, required improvements at any
particular point will depend upon site characteristics, degree of intended use, and
budgetary constraints.
3.1 PLANNING AND LOCATION
location near customary use areas - Wherever possible, access sites should be located near
or at areas that are normally used by the public.
avoid endangered species - The habitat, breeding or nesting areas of rare or endangered
plant and animal species should be avoided.
dune height - Areas where the dune height is so low that the beach is visible from the'
road should be avoided. This will encourage the use of walkovers and provide an opportunity
for low or damaged dunes to rebuild; however, lower areas may have to be used as points
selected for handicapped modifications to insure adequate ramp slopes.
connection to public areas — Access points must be provided directly from an area open to
the public such as a road or park.
sight distance - Where possible, adequate site distances should be provided between entry
or parking areas and intersections or curves - a minimum line of sight of 300 feet should
be provided in either direction.
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required points- At least one access point should be provided for each 1,000 users using
the average (not peak) seasonal population as a base.
parking and transit - All methods should be used to encourage the use of non -auto oriented
transit to access points. Mass transit, bikeways, and footpaths, are recommended as alter-
natives to conserve energy, protect air and water quality, increase access, and promote
safety. If feasible parking for 120 cars per 1,000 visitors should be provided within
100 yards of an access point.
spacing - Access points should be located every one-half mile where feasible.
points for the handicapped - A minimum of one access point with handicapped modifications
should be provided with one additional such point per 20 standard points.
3.2 FACILITIES
bike racks- One ten bike rack should be provided at every other access point and at all
points with improved parking lots. Racks should be of steel or cast concrete and should
be located out of the parking area or protected by ties or bollards.
litter receptacles.- Two 20 gallon enclosed receptacles at access entry and one 10 gallon
receptacle at steps of walkover or oceanside. Pickup should be a minimum of 3 times per
week during peak season.
identification - Signs should be placed at entry from highway at steps of walkover on
ocean and landside. Pennants on a mast or pole may be used in addition to or in lieu'of
signs on oceanside. Wooden signs are recommended for esthetics. Signs should be
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approximately 24" X 36" on 4 X 4 posts at 8' heights. Signs should be double -sided with
the faces toward the direction of foot or vehicular traffic. Information signs (concerning
safety, surfing, litter) should be posted at walkover steps.
bathroom facilities, showers, water fountains - Because of maintenance costs these
facilities are recommended only in high use areas (over 1,000 visitors per day). Showers
should be open air cold water only, with pipes protected against vandalism. Foot showers
only are recommended. Bathrooms should be located near parking areas (away from beach)
and conform to applicable environmental regulations.
sand fences - Recommended for all walkovers. Thirty feet of 4' high fencing with posts
every 100 feet on each side of walkovers. Place on dune ridge.
3.3 MODIFICATIONS FOR HANDICAPPED ACCESS POINTS
• Handicapped parking spaces should be marked with the international symbol for the handi-
capped and located immediately adjacent to a ramp or hardsurfaced walkway; spaces should be
a minimum of 12'6" in width.
• Designated public parking areas should have a minimum of 2% of the total number of spaces
reserved for handicapped parking.
• Bollards, posts or other barriers to wheelchairs or persons with walking aids should be
removed
• Dune walkovers should have maximum slopes of 12.5% (1:8) with steps eliminated or ramp
by-pass constructed. The transition from walkway to dune walkover should be smooth and
continuous. Walkovers should have a minimum of a 100 square foot covered deck at the.top
of the structure.
• Identification signs should include the international symbol for the handicapped.
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3.4 DESIGN
The illustrations that follow are intended as illustrations of designs and construction
alternatives for a typical access point and walkover structure at Surf City. Several
features (e.g. handicapped facilities) are combined which would be included at a separate
or different point. The basic concept illustrated is a system of components that respect
the integrity of the dune and its protective vegetation but is flexible enough to be moved
as changes require. The construction drawings were developed by the Florida Sea Grant
program and have been used by the Town of Topsail Beach. Figures 2-6 illustrate recommended
designs for high use areas; Figures 7-9 illustrate recommended designs for moderate to low
use areas.
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SURF CITY BEACH ACCESS PLAN JOHN J HOOTON &.ASSOCIATES

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Existing Parking Patterns
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Parking should not extend beyond this point
Oceanfront -�
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O Proposed Improved Parking Patterns Oceanfront
SUGGESTED OCEAN FRONT PARKING PATTERN
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Typical Beach Profile
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Fig.I TYPICAL
PLAN and
ELEVATION VIEW
Scale:
I•• = 2d

C Section I -A Landside Section I-B - Deck Section I-C - Seaside
This Dimension r/es Depending on This Dimension Varies This Dimension Varies
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Dropoff Beh nd Dune
Depending on Width
Depending on Dropoff in
of Dune
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on E'dt
8 Washers
I _ (head countersunk) ,.
5 0„
O
th
�-
tD
2 x 10 x 7' ✓olst
-
`
2 x-6 x 6Deckin
2 x 10 Splice Board
Nallod
2 Ea. 1/2" x 12"__-
_
connectlon
Hex.Bolts w1th
--- —
Nuts A Washor
2xi0x7' Stringer
O
2 x.10 Spllco Boards
0
2 x 10 x 6'
Bents • .
0
M
• . i•' ' ' .. - ' . • - - • . • w . .Y
O
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Fig-3 TYPICAL SECTION I-B DECK
Scale: I 1' - 0"

0
0
0
0
-- 0
O
U
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•
r:
`
7,_ 0„
•
Opp
_�r--
.�
N �Oec k
Stringer
Ofix 0
®`
Notch Strinqers in
Field to Rest on
l
\
Bents
____
112 x 12"
=-
2"xl0"Bent
Hex Head Bolts
w Nuts 8 Washers
1
_
2"x /0".Bents
Fig.4
TYPICAL RAMP DETAIL
Scale: II�- ���

0 O Q 0 0 p
Ali
2 x6
Deck
—_ 64" = 80" = 8 Steps /Section _
0
Tread 2 x lO
2 x lO r ,c
Stringer
2x1O O
Bents =_=__=- l0 11. p. 00
2x 14 -- - 112"x 12"
Stringer Hex. Bolts -
w/ Nuts 8.
6" 0 Pile ,� Washers
2x10
Bents
Fig.5 TYPICAL STEPS DETAIL
Scale : I 1' - 0"
• r'

0
Of i
O
O
O
O
O
0
L 7' 0" , Varies
Ramp
7, 0„
Deck/Raml
Varies
Dech
Stringor Dimensions
C
.-2_x 10 x 8-4"
D
2 x IC- x 7'- 0"
E
2x10x 7'-3"
F
2 x 14 x 9'-0" notched for ste s
G
2 x 14 x 8'- 6" notched for afops
H
2 x 14 x 8'-9" notched for slops
pon.fDimension
/ -_ 2 �
S llce Dimons/on
J 1
2 x 10 x `7'
Note.- Bill of Materials based on ramp
lengfh of 2l; deck lenggth of 28' and 2
stair sections of 6'-S'each.
Fig.6 TYPICAL STRINGER LAYOUT DETAIL
Scale: I" 5' 0"
7'- 0 "
Varies. 6'- 8"
Deck/Steps Steps
Note: All splice blocks to be nailed
to stringers to provide both lateral
support at joints and bearing support.
All pile bolted connections to be l/2►'
xl2 "hex. bolt with nut and washers.
B
Quan.
Item - Description
44
2 x 6 x 20'
dro_ssed -
9
2 x 8 x 2 0
dressed
5
2 x i 0 x 2 0' �
dressed —
19
2x10x
royah
3
2 I
rough
100
V2'kl2" hex. bolt Wth nut andrrashors

0
0
Tc
0 0 0 0 0 0
Include as many step sections as necessary to grade
from top of dune f 3 feet to base of rear dune.
Section/ -A Landside - Section /-B Deck
This Dimension Varies This Dimenslon Varles
9epending on Dune Backslope
Fig.7 ALTERNATE SECTION NoJ
Scale 1 5- 0
(Refer to details as per Figure 2)
To Ocean
0

O
O
A .. .t%
FIG.8 TYPICAL SECTION scale:I"=I'-d'

o
6'- O " Varies 6 - Oit -Varies. 6r -O Varies 610
y n
AA fir- A _ E=
° Steps Deck/Steps Deck Deck/Steps Steps
O.
O
A
2
x
12 x
8
notched for steps
B
2
x
1? x
7-9
C
2
x
12 x
6
0
2
x
/2 x
7 -8
notched for steps
E
2
x
12 x
7- 6
notched for steps
SPUCC
OLOCK
DIMESIMI
F
2
x
12 x
1-6
ILL OF m iERI Ls
QUAN •
ITEM DESCRIPTION.
/08
2x /2 StringOrs 49 5211ce*b1ocks
/6
4 x4 Posts or Polos
66
//2x /2 Hex boll w/ nut and washers
28
Note: All splice blocks to be nailed to
stringers to 'provide both lateral and
bearing support. at joints. All pile
bolted connections to be 1/2"x 12"
hex bolt twitli nut and. washers.
Bill of Materials based on 24' deck
and step lengths, 6' and 12.'
FIG.9 TYPICAL STRINGER LAYOUT
scale: I = 5
0
m

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U
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3.5 LEGAL
The best planned and designed access points will be of little use unless the public's
right to use the points is adequately established. The basic standard is that the general
public have an unrestricted right to travel from an accessible; publicly owned area (such
as a park, parking lot or public road) to the beach. The most important consideration is
that the type of right be long term or perpetual and that the public, through a public or
governmental agency, hold title to the right. The most desirable protection is fee
simple ownership through donation, dedication, condemnation or purchase. If fee owner-
ship cannot be obtained permanent or long-term (50 to 100 year) partial interests such as
easements or rights -of -way should be obtained. Where the right to access is questionable
the governmental body should take measures (access signs, maintenance and improvements)
to establish dominion and control over the area.
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 13

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4.0 SURVEYS AND PROJECTIONS
4.1 PHYSICAL CONDITIONS
All points of public access in the Town were surveyed to evaluate the area for conformance
to the planning and design guidelines set out in the previous section. The results of
this survey by, access point is described in -the following maps and pages.
SURF CITY BEACH ACCESS SURVEY
Signs and
Access Point
Identification
Improvements
Parking
1 - Broadway
none
dune walkway
2-4 spaces on
street
2 - Neptune
access apparently
lost due to replatting and construction
3 - Pender
access impaired by
sand fencing
4 - Lenoir
15 hour parking
dune walkover
and deck
5 - Jones
none
none
none
6 - Craven
15 hour parking
dune walkover
2 spaces
7 - Mecklenburg
15 hour parking
dune walkover with deck
2 spaces
litter barrels
sand fencing
8 - Barnacle
fishing pier open
to public
100 spaces
Bill's Pier
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 14

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Signs and
Access Point
Identification
Improvements
Parking
9 -
Stevens
access restricted by fence
10 -
Unidentified
crosswalk
litter barrels
15 spaces
•
15 hour parking
dune walkover
11 -
Wilmington
none
none
none ,
12 -
New Bern
15 hour parking
dune walkover
30 spaces
litter
lifeguard station
litter barrels
parking lot
13 -
Goldsboro
15 hour parking
dune walkover
12 spaces
gravel parking lot
litter barrels
14
— Greensboro
none
none
none
15
- Roland
adequate
picnic benches
gravel parking lot
litter barrels
for 15 cars
boardwalk
lifeguard station
16
- Surf City Pier
fishing pier open to public
75 spaces
across street
17
- Kinston
15 hour parking
gravel ramp
gravel lot for
litter barrels
15 cars
18
- High Point
none
dune walkover
gravel lot for
sand fencing
10 cars
19
- Raleigh
none
none
none
20
- Durham
none
dune walkover
gravel lot for 10
cars under
construction
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 15

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SURF CITY BEACH ACCESS PLAN
0 ACCESS SURVEY MAP 2 OF 7
1' = 400' JULY 1980

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Signs and
Access Point
Identification
Improvements
Parkin
21
— Charlotte
access apparently lost due
to construction of motel
22 -
Unidentified
access apparently lost due
to construction of house
23 -
Unidentified
none
none
none
24 -
Unidentified
none
none
none
25 -
Unidentified
none
none
none
26 -
Unidentified
none
none
none
27 -
Unidentified
none
none
none
28 -
Unidentified
none
none
none
29 -
Unidentified
none
none
none
30 -
Unidentified
none
none
none
31 -
Unidentified
none
none
none
32
- Private access
point - closed to public
33
- Hispaniola
none
dune walkover
1 car on street
litter barrels
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JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 16

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SURE CITY,QEACH ACCESS PLAN
ACCESS SURVEY MAP 7 OF 7
1" 400' JULY 1980

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4.2 LEGAL STATUS.
In the area from Broadway north to Charlotte Street, shown on Sheets 1-3 of the Access
Survey Maps, access is provided at the ends of public streets. However, in several cases
access has been obstructed or lost. In the area from the junction of Topsail and Shore
Drive south to the Town limits there is only one improved point of access at the end of
Hispaniola Drive (see Access Survey Maps, Sheets 5-7). These points are platted but are
not improved or marked to any extent. The following summarizes the legal status of each
of these points as shown on the plat maps in the Town Hall.
This point is part of the Winter Haven Subdivision recorded in Book 12,
Point 1 Page 34 and is split by the Onslow County and Pender County lines. The
Survey Map 1 access walkover was constructed by Onslow County.
This point was originally established in the same plat as Point 1, above.
Point 2 However, this area was apparently replatted in August, 1973, Book 12,
Survey Map 1 Page 34. Neptune Avenue and the access point were deleted in this plat
and a house has been constructed at the street end.
Points 3-7
Survey Map 1
Del Mar Beach Subdivision #1, Book 3, Page 86 recorded September 25, 1950.
This plat shows 20 foot drives at street ends extending to the Atlantic
Ocean. There are no restrictions on public access shown on the plat.
There is some question at Point 3, Pender Avenue, that the adjoining
house to the south may have blocked access.
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 17

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Point 8 is Barnacle Bill's Pier open to the public year round. Point 9
Points 8-9 is recorded in Plat Section II Surf City, N.C. Book 3, Page 33, September
Survey Map 2 8, 1950. It appears that the property owner to the south may have
infringed on the access way. There are no restrictions on public access
shown on the plat.
All of these points are recorded on Subdivision #1, Surf City, N.C.,
Book 3, Page 45 and show 60 to 75 foot extensions of public streets to
the "east edge of dunes." The plat shows no restrictions on public
Points 10-21 access. Point 16 is the Surf City Pier open to the public. However, at
Survey point 19 it appears that the Southwinds Motel parking lot has been
Maps 2-3 constructed in the accessway and a sign is posted prohibiting access for
anyone except motel guests.
Point
22
This is
an unidentified
street not shown
on any available
plat and it
Survey
Map 3
appears
that access has
been blocked by
construction of a
house.
J.B. Washburn Plat, Mapbook 14, Page 84, recorded September 25, 1976.
Point 22A The plat shows Fairytale Lane as private but a 3' walk to the ocean is
platted with no indicated restrictions on public use.
Point 23 Ruth King Plat, Mapbook 3, Page 99. A 10 foot walk is shown with no
restrictions on public use.
White Hills #1, property of Bell and Warren. Twelve foot accessways
Points 24-25 to the ocean are shown with no restrictions on public access.
0
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 18

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White Hills #2, twelve foot accessways are shown with no restrictions
Points 26-28 on public access.
Grady Moore Beach, Mapbook 4, Page 8. Twelve foot walks are shown
Points,29-30 with no restrictions on public access.
Point 31 This point could not be located on the ground or on a plat.
This accessway is specifically restricted to the property owners in the
Point 32 Channel Bend Subdivision.
Treasure Cove Subdivision, Mapbook 7, Page 11. A 9 foot walk with no
Point 33 restrictions on public access is shown. In addition a public walk has
been constructed and is maintained by the Town.
4.3 PARKING
Parking at Surf City is less of a problem than at more urban centered beaches such as
Wrightsville Beach where there is large influx of day -visitors who must use public parking
facilities. For residents or overnight visitors parking is provided at the place of
residence or lodging; thus the parking problem associated with beach access is directly
related to the number of day -visitors. Although there is insufficient data at Surf City
to mathematically project the day -visitor population, based on surveys conducted at other
beach communities in southeast North Carolina the number of day -visitors is approximately
equal to the peak population at any time. In 1975 the peak population was estimated to be
5,424 persons and this figure has certainly increased to over 6,000 since that time.
0
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 19

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Thus, the day -visitor peak population would be about 6,000 persons. This does not mean
that an additional 6,000 persons would be in the Town at once, but that on a peak day
about 6,000 day -visitors would come to the beach sometime during the day. Further, it
is assumed that at least 2 persons would come in each car, thus about 3,000 cars would
have to be accommodated at some time during the day at a public parking place. However,
if the average visiting day is estimated to be 12 hours and the average visit is 2 hours
each parking place can accommodate 6 cars per day. Thus, an estimated 500 public parking
spaces are necessary to accommodate the day -visitor population. At present there are an
estimated 260 public spaces available at the identified points of public access. This
indicates a shortage of almost 250 available spaces at any time. Undoubtedly these
spaces are being found in illegal parking zones and on private property.
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 20

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5.0 CONCLUSIONS AND RECOMMENDATIONS
Based on the surveys of physical conditions and degree of legal protection of the beach
access points in Surf City, it appears that a good but somewhat unsystematic approach
to providing access has been initiated by the Town. Of the four criteria for evaluating
beach access - number of access points, availability of parking, degree of legal
protection, and physical improvements - only the latter two are deficient to a degree.
There are 32 points of public access available along Surf City's 5.5 miles of shoreline
or more than twice the number of points required. While parking facilities are less than
adequate to meet the demand by day -visitors, this problem can only be mitigated but not
eliminated by the Town. While a limited number of additional spaces can be provided,
to accommodate all existing and projected parking demand would require large land areas.
Development of such areas (estimated at approximately 4 acres) would not only be
prohibitively expensive for the Town but inconsistent with the environmental values
inherent in barrier islands. The long range solutions to increased demand for parking
will be alternative modes of transportation combined with parking facilities provided at
remote points off the beach where the cost of land is less and the environmental impacts
of increased runoff, pollution, congestion, and hazard to pedestrians are reduced.
However, at the present the most practical solution for the Town will be to provide what
additional spaces are possible at existing points of access. With regard to physical
improvements and degree of legal protection afforded several improvements are urgently
needed. The existing walkover structures, while serving a much needed purpose, were not
constructed so as to accommodate heavy traffic. These should be rebuilt in accord with
the furnished designs for high use areas and for moderate use areas. Further, there are
no facilities for handicapped persons. While these facilities need not be numerous or
elaborate, at least one access point should be designed and constructed so that persons
JOHN J HOOTON AND ASSOCIATES WILMINGTON. NC 21

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with physical disabilities will not be prevented from enjoying the beach experience.
In addition, almost all access points require signs, litter barrels, parking improvements.,
or sand fencing. The specific improvements required for each point are shown on the maps
which follow. Of even greater concern is the possibility of a reduction in the number of
available access points due to encroachments by adjoining property owners. Several points
of access appear to have been lost in this manner as shown in the legal conditions survey.
To prevent further losses the Town should immediately begin to establish some degree of
control over remaining points by erection of signs, maintenance and formal recognition
of these points as access points available to the public. This type of protection is
particularly critical in the southern area since there is little access available to
property owners on the western side of N.C. 50. However, each of the physical improve-
ments, and legal protection, provided at a particular point should be integrated into a
comprehensive plan that will provide protection to adjoining property owners and maximum
access to visitors and residents. Such a plan.must recognize that certain areas because
of their existing surrounding land use should be designed and improved for different levels
of intensity of use. It is recommended, therefore, that the access points be zoned into
low, moderate, and high use access zones. The moderate use access zone will include
access points 1 through 7 or the area from Broadway to Mecklenburg Avenue. The high use
area includes points 8 through 22; the low use area includes points 22A through 33. The
following recommendations summarize the policies, purposes, and recommended.improvements
for each type of area.
LOW USE ZONE
This zone is intended primarily to provide access for pedestrian traffic originating on
the west side of N.C. 50. It is not intended to provide additional parking. Additional
improvements should be minimal and only sufficient to establish the public's right of
JOHN J HOOTON AND ASSOCIATES WILMINGTON$ NC 22

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access and to provide safe and reasonable access to the public without interfering with
adjoining property owners' right to the quiet enjoyment of their homes.
Recommended improvements: (1) one small (one foot square) public access sign;
(2) vegetation removal and construction of path with foot ramp;
(3) litter barrel on ocean side.
MODERATE USE ZONE
This zone is intended to accommodate a moderate flow of pedestrian oriented traffic from
adjoining residences and day -visitors without interfering with adjoining property owners'
right to the quiet enjoyment of their homes.
Recommended improvements: (1) erection of public access signs on land side at all points;
(2) construction of dune walkovers in accord with designs 7
through 9 as shown in the design criteria;
(3) litter barrels on ocean and land side;
(4) firm road shoulders where possible to provide additional
parking;
(5) provide sand fencing on both sides of walkover;
(6) construction of one handicapped point in accord with design
standards at point 4, 6, or 7.
HIGH USE ZONES
The primary purpose of the high use zones is to encourage the majority of automobile
oriented traffic to designated points where the maximum parking and other facilities are
available. The purpose of this zone is to divert traffic away from residential areas and
9
JOHN J HOOTON AND ASSOCIATES WILMINGTON, NC 23

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MODERATE USE ZONE
RECOMMENDED IMPROVEMENTS: public access signs at entry of all: points
construction of dune walkovers .in accord•,with-designs.7-,9"'in design criteria
litter barrels on land 'and ocean side'at dune..
• firm road shoulders where -possible to provide additional parking
• erect sand fencing on "botti.sides: of walkover
• construction.of one handicapped access'facility inaccord-with design
standards at points.4, 6, or 7

O
HIGH USE ZONE
RECOMMENDED IMPROVEMENTS: • directional signs at street intersections
O • public access signs or pennants with masts at access points
• litter barrels on ocean and land side of dunes
• construction of dune walkovers in accord with designs 3-6 in
design criteria
O provision of bike racks
• lifeguard services, umbrella and chair concessions
• foot showers where water supplies are available
• sand fencing on both sides of walkover
O pedestrian crosswalk signs
❑s
V

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HIGH USE ZONE
RECOMMENDED IMPROVEMENTS: • directional signs at street intersections
o_
• public access signs or pennants with masts at access points
• litter barrels on ocean and land side of dunes
• construction of dune walkovers in accord with designs 3-6 in
design criteria
• provision of bike racks
• lifeguard services, umbrella and chair concessions
• foot showers where water supplies are available
• sand fencing on both sides of walkover
• pedestrian crosswalk signs
uL
C�1�111111�
C�1 1111�11 .
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�I�li� ' ■.111:. 111101 � ��111■■ CI�111..
= �1�1�11=1i11■ 1
• public access signs or pennants with masts at access points
• litter barrels on ocean and land side of dunes
• construction of dune walkovers in accord with designs 3-6 in
design criteria
• provision of bike racks
• lifeguard services, umbrella and chair concessions
• foot showers where water supplies are available
• sand fencing on both sides of walkover
• pedestrian crosswalk signs
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= �1�1�11=1i11■ 1

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LOW USE ZONE
RECOMMENDED IMPROVEMENTS: one small -public access sign (one foot aquare, 4 feet high)
• vegetation removal and construction of minimum foot ramp
• litter barrel on ocean side

A
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LOW USE ZONE
RECOMMENDED IMPROVEMENTS: one small public access sign (one foot square, 4 feet high)
• vegetation removal and construction of minimum'foot!ramp
litter barrel on ocean side

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toward commercial areas thus providing protection to permanent property.owners.
Recommended improvements: (1) public access signs at street intersections;
(2) public access signs or colored pennants on masts at access
points;
(3) litter barrels on ocean and land.side of dune;
(4) construction of dune walkovers in accord with design standards
for high use areas (see designs 3-6);
(5) bike racks;
(6) lifeguard services, umbrella and chair concessions (already
provided at some,points);
(7) foot showers where water supplies are available;
(8) sand fencing on both sides of walkover.
These recommendations for each use zone are summarized on the following maps.
In conclusion, the preceding evaluation and recommendations have been intended to identify
potential problems both the Town and the public may encounter in providing and seeking
access to the beach, and to provide standards for solving these problems within a frame-
work that will maximize the public's right to enjoy the beach while minimizing the inter-
ference with the land owners' right to enjoy their property.
0
JOHN J HOOTON ANC] ASSOCIATES WILMINGTON, NC 24