CAMA Land Use Plan-1976

m

A
LAND USE PLAN
FOR THE.
TOWN OF SURF CITY, NORTH CAROLINA
Prepared in accord with
State Guidelines for Local Planning in the Coastal Area
Under -the Coastal -Area Management -Act of 1974.
To Be
Submitted to
North.Carolina Coastal Resources Commission
May 21, 1976
The preparation of this report was financially assisted by grants from the
State of North Carolina, the National Oceanic and Atmospheric Administration,
and the Coastal Plains Regional Commission.

NOTICE TO USERS
All major policy related maps and documents are either included within
the text or attached to the back of the plan. However, due to the expense
and technical limitations required for reprinting -some illustrations may
be omitted. Complete copies are available for inspection at the N. C.
Coastal Resources Commission offices in Raleigh or at the local government.
offices.
2

TABLE OF CONTENTS
Page Number
INTRODUCTION
.a
Purpose of a Land Use Plan in North Carolina Coastal
., Area Management
1-1
Method of Preparing the Plan
1-5
CURRENT CONDITIONS
SECTION I
Population and Economy
I-1
Population
I-1
Municipal Finance
1-3
Economy
I-4
Existing Land Use
I-7
Current Plans and Regulations
I-11
Current Plans Concerning Land Use in Surf City
I-11
Existing Local Regulations Affecting Land Use
in Surf City
I-13
Constraints
I-1.5
Physical
I-15
Fragile
I-18
Resource Potential
I-23
Community Facilities
I-24
ISSUES, OBJECTIVES AND STANDARDS
SECTION II
Major Issues and General Alternatives
II-1
Past Development Activities
II-2
Storm and -Erosion Protection
II-4
Visual.Quality of Development
II-5
Providing Community Facilities and Services
II-8 .
Financing Service Facilities
II-13
Objectives and Standards for Surf City
II-15
AREAS OF ENVIRONMENTAL CONCERN
I�
SECTION III
Introduction
III-1
The Estuarine System
III-2
The Beach-Foredune System
III-4
Hazard Areas
III-4
Public Trust Areas
III-6
3

TABLE OF CONTENTS
FUTURE LAND USE
The Demand for Land
Factors Influencing Growth
Accommodating Future Growth
Land Classification System
PLAN ADOPTION AND IMPLEMENTATION
Plan Adoption
Plan Implementation
Revision and Enactment Of Town Ordinances
Coordination'of Permit -Letting Authorities
Related Planning Activities
Periodic Review .and Revision of the Plan
REFERENCES CITED
APPENDICES
Appendix A: Public Participation Program
Appendix B: Population and Density
Page Number.
SECTION IV
IV-1
IV-1
IV-3
IV-9
SECTION V
V-1
V-4
V-4
V-5
V-6
V-7
SECTION VI
�F

PURPOSE OF A LAND USE PLAN IN NORTH CAROLINA COASTAL AREA MANAGEMENT
The North Carolina Coastal Area Management Act of 1974 /Chapter
1284 1973 Session Laws (G. S. 113A/ (CAMA) established "....a coopera-
tive program of coastal area management between local and State
governments" whereby "Local government shall have the initiative for
planning."
Enactment of CAMA was based upon findings by the General
Assembly that
"Among North Carolina's most valuable resources gre its
coastal lands and waters."
"the estuaries are among the most biologically pro-
ductive regions of this State and of the nation"
"an immediate and pressing need exists to establish a
comprehensive plan for the protection, preservation,
orderly development, and management of the coastal area
of North Carolina."
The CAMA established the following goals for the coastal area
management system:
"(1) To provide a management system capable of preserving and
managing the natural ecological conditions of the
estuarine system, the barrier dune system, and the
beaches, so as to safeguard and perpetuate their natural
productivity and their biological, economic and esthetic
values;
"(2) To insure that the development or preservation of the
land and water resources of the coastal area proceeds
in a manner consistent with the capability of the land
and water for development, use, or preservation based
on ecological considerations;
"(3) To insure the orderly and balanced use and preservation
of our coastal resources on behalf of the people of -
North Carolina and the nation;

"(4) To establish policies, guidelines and standards for:
(i) Protection, preservation, and conservation of
natural resources including but not limited
to.water use, scenic vistas, and fish and
wildlife; and management of transitional or
intensely developed areas and areas especially
suited to intensive use or development, as
well as areas of significant natural value;
(ii) The economic development of the coastal area,
including but not limited to construction,
location.and design of industries, port facilities,
commercial establishments and other developments;
(iii) Recreation and tourist facilities and parklands;
(iv) Transportation and circulation patterns for the
coastal area including major thoroughfareb,
transportation routes, navigation channels and
harbors, and other public utilities and facili-
ties,
(v) Preservation and enhancement of the historic,
cultural, and scientific aspects of the coastal
area;
(vi) Protection of present common law and statutory'
public rights in the lands and waters of the
coastal area."
The planning processes established by the CAMA include:
(a) State guidelines setting the objectives, policies and standards to be
followed in public and private use of land and water within the coastal
area; and (b) a land use plan for each county within the coastal area.
Following the procedures contained in the CAMA, the Mayor and
Board of Town Commissioners of Surf City declared the intent of the Town
to prepare a land use plan in accordance with State Guidelines for Local
Planning in the Coastal Area under the Coastal Area Management Act of.
1974 (Guidelines) adopted by the North Carolina Coastal Resources Commission
on January 27, 1975, as subsequently amended.
7

The Guidelines mandate that each land use plan contain:
1) A statement of Local Land Use Objectives, Policies and
Standards;
2) A Summary of Data Collection and Analysis;
3) An Existing Land Use Map;
4) A Land Classification Map;
5) Written text describing and indicating appropriate
development for Interim Areas of Environmental Concern.
A land use plan is one of many elements that constitute a
comprehensive plan for,Surf City. The land use plan expresses the way
thedemocratically elected representatives of the people think the
fikitll iand area should be allocated to best meet the hopes aAd isjiirations
of the people who live and.pay taxes in a specific jurisdiction. A land
use plan can only be thorough when health care, education, transporta-
tion, economic development, leisure time, and other components of a
comprehensive plan are tested against the people's goals and objectives
so they can be integrated into.the land use element.
Surf City's land use plan relies upon those data most readily
available and focuses upon the major emphases of the CAMA: development -
within the capability of the natural resources.. Other topics, such as
water and sewer, roads and streets, and employment are consistent with
issues raised.by the public, but are peripheral to establishing a basis
for decision -making with respect to land. .
It is Surf City's intention to utilize the plan.as a keystone
.r
for all future town activity. The land use plan is a major step in
comprehensive planning for Surf City. Matters such as zoning, building
codes,.Town appearance, and beach -maintenance can be based upon the plan;
3M

policy issues, such as annexation, taxes, maintenance of water quality,
health care and employment are preliminarily identified for later study
and decision -making as elements of the Town's comprehensive planning
process

METHOD OF PREPARING THE PLAN
The Surf City land use plan was developed as an iterative process
among elected and appointed public officials, the public, and professional
resource specialists.
The iterative process: 1) Sampled public recognition of problems
and opportunities in general terms; 2) defined the known physical, social,
and institutional setting; 3) invited the public to'participate in matching
problem solutions with the setting by defining objectives and standards for
the Town;.4) projected factors consistent with the selected Town goals and
the physical restraints; 5) allocated land according to the -projected
magnitude of demand and the physical characteristics of the Town; and
6) used the inventory data developed in step_2 to delineate areas recom-
mended as areas of environmental concern with a list of suggested uses.
Coastal Resources Commission Guidelines emphasize the need to map
three sets of data: existing land use, land classified according to pro-
jected use in 1985, and areas that will be recommended as interim areas of
environmental concern. These Surf City data were mapped at a scale of
1 inch = 400 ft. The basic map medium was an aerial photograph mosaic
prepared by.Coastal Zone Resources Corporation from-N. C. Department
Transportation 1 inch - 1,000 ft photography taken in December 1974.
Existing land use was determined by air -photo interpretation and
visual inspection of structures, vegetation and water. This method of .
defining existing.conditions permitted rapid identification of hazardous,
fragile, and unique areas which, in turn constitute a major portion of'the
areas that should be of environmental concern.
X"
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0
The air -photograph maps are easily reproducible and will serve
as a useful public information tool. Additionally, the reproducible
mosaic is available for use as a base map to support other planning activi-
ties and.for implementation of the plan.
Data describing current conditions in the Town were assembled
from numerous federal, state and local government sources, as listed in
Reference Cited-(p.VI-l). Where more current or detailed information than
was available in publications was needed, personal communications with
representatives of the publishing agencies and knowledgeable Town residents
were used to complete the data collection and analysis.
Details of Surf City's public participation program are contained
in Appendix A.
Land use planning in Surf -City was complemented by a concurrent
sewerage study for Topsail Islanda conducted under the.terms of a Section
201 of the Water Pollution Control Amendments of 1972 (201 Plan).
Existing land use, dwelling -unit density, and population estimates were
jointly derived. The CAMA sponsored planning in the Town was closely
coordinated with comparable activities conducted by the Pender County
Planning Board.- No major conflicts between the county and municipal plan
have surfaced. If in the future, conflicts should arise, provisions of
the county plan shall govern, except in cases where the municipal plan
imposes greater restrictions upon land use or greater demand for -new
development.
aTopsail Island has three political entities: Town of Surf City and Town of
Topsail Beach in Pender County and an unincorporated segment in Onslow
County.
_tM6

POPULATION AND ECONOMY
Population
The population of Surf City was reported to be 166 in the 1970
U. S. Census of Population (U. S. Department -of Commerce 1973). Earlier
Surf City population information is not available because Census data
for the Town were not.separated from Topsail Township prior to 1970.
The Census -population figure of 166 reflects only,the year-round
residents of the Town. The.Corps.of Engineers estimated seasonal resi-
dency in-1963 to be 1450 (U. S. Army Corps of Engineers 1965).
Mr. Alva Ward, who -located his real-estate business rn Topsail
Island in 1949, inventoried all structures on Topsail Island in 1970 and
again in May 1975.. The counts of dwelling units were recorded according
to -single family,- multi -family and motel -unit categories, by political
jurisdiction.
As part of the 201 Plan preparation, the contractor, Henry von
Oesen and Associates, recorded and mapped the total number of structures
on Topsail Island, including mobile homes and trailers. The number of
units -in multi -family residential.and transient accommodation structures
and the use of•commercial structures, e. g., restaurant,'bank, were noted.'
In late June and early July 1975, a survey of dwelling unite
occupancy was conducted cooperatively by Coastal Zone Resources Corpora-
tion, Henry von Oesen and Associates, and the Cape Fear Council of
}
Governments.- Approximately 10 percent of -all dwelling units in the Town
were surveyed.. The primary purpose of the -survey was to determine the
average number of persons occupying the different kinds of dwelling units

on -a year-round and seasonal basis. The number of dwelling units
reported for Surf City in 1975 was multiplied by these average occupancy
rates by category to yield the average seasonal and year-round population
of -the town for 1975. Results of the survey show that, on the average,
24 percent of residential housing units in Surf City were vacant during
the summer of 1975. Peak'summer population, or the maximum number of
people that could be accommodated.in the existing units, was derived by
assuming all dwelling units were occupied at the appropriate occupancy
rges.y�
Survey results show that the average summer population in 1975
was 3,767. Year round population was 729 (up 563 from 1970, a 339 per
cent increase overall and 67.8 percent increase per year)a, seasonal
population was 3,038 (up 2,317 from 1963, a 160 percent increase overall
and 13.3 percent per year); on those days when all dwelling units were
occupied the peak population was 5,424. Sixteen percent of the summer
population was residing in motel units at the time of the survey, and
eighty-four percent in non -motel units (single-family cottages, duplexes,
mobile homes, or apartments). The data do not account for day -use visitors
or overnight visitors occupying space in campgrounds or parking lots
associated with fishing piers. Thus, on some days the total number of
persons in Surf City could be considerably greater than 5,424.
aThe year round population may not equate with the Census definition of
permanent resident. This is so because.some family units are transient;
that is, they are regularly transferred personnel, e. g., military, who
may reside one or two years in Surf City but maintain a permanent resi-
dence elsewhere. .
3W

According to Ward inventory, there were in 1970, 1,027 dwelling
units in Surf City, 138 (13 percent) motel and 889 (87 percent) non -
motel; in 1975 there were 1,321 dwelling units, 208 (16 percent) motel.
and 1,113 (84 percent) non -motel.
Since 1973 the Town of Surf City has recorded the number of
building permits issued each year and submits yearly an "Annual Report
of Building Permits Issued for New Residential Buildings" to the U. S.
Department:of Commerce, Social and Economic Statistics Administration,
Bureau of the Census. The Annual Reports show that 40 permits for new
building were issued in 1973 and 78 in 1974. In 1973, 36 of the permits
weih'for single family residences, two for duplexes, and two f0k i1hnsient
housing. In 1974, 38 permits were issued for single family residences,
39 for mobile homes, and one for a 24 unit motel..
The 1975 survey of dwelling units shows that average occupancy
of vacationers was 1.5 persons per unit in motels and 4.2 persons per
unit in non -motel residences; year-round population occupancy was lower,
3.7 persons per unit. At the time of the survey, 30 percent of the non -
motel units were occupied by their owners, 46 percent were occupied by
renters, and 24 percent were vacant. -
Municipal Finance
The Surf City Town Budget for fiscal year (FY) 1974-1975 was
based on a total property valuation of $10,427,882 and a tax rate of $.81
.per $100 valuation. The property valuation in FY 1973-1974 was $5,273,537
and the tax rate was $1.35. The.98 percent increase in valuation was
substantially offset by the 66 percent decrease in the tax rate; ad
valorem taxes produced a revenue of $20,000 in 1968, $68,345 in 1973, and

$76,019 in 1974.
Ad valorem taxes accounted for 63 percent of the General Fund
revenues in both 1968 and 1974, 69 percent in 1973. State shared taxes,
such as Franchise, Intangibles and Beer and Wine, Powell Bill Allocations,
and the one percent of the four percent sales tax contribute to the
total revenues of the town. The Cash on Deposit has increased over the
years from $11,647 in 1968 to $30,971 in.1974.
The cost of general governmenta as a percent of total expendi-
tures has decreased since 1968; expenditures.for services have increased.
Table 1-1 lists the General Fund expenditures to service facilities and
g1M6k&1 government as appear in t6 tY 1968-1969, 1973-1974, and 1974-1975
Town Budgets.
Economy
The economy of Surf City is dependent on its land and water
resources. The ocean and sound waters constitute the major attractions
for the swimming, fishing, and boating enthusiasts who visit the town in
summer. It is estimated that approximately 54 persons are employed year
round in Surf City, principally in fishing pier and tackle shop operations b
Many Surf City residents work in areas off of Topsail Island, commuting
mainly to Jacksonville, Camp LeJeune, and Wilmington. Employment oppor-
tunities.in.the town increase by as much as 50 percent during the summer
vacation season, with job openings in fishing piers, motels, restaurants,
and shops.
aFor the purpose of analyzing community service finance, general government
includes all expenditures except those cited here as service facility
expenditures..
bConnie Morgan, Town Clerk; Personal Interview, May 20, 1975.
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Table 1-1. Surf City General Fund Expenditures.a
Fiscal Year
Fiscal Year
%
Fiscal Year
%
Cause of Expenditure
1968-1969 Total
1973-1974
Total
1974-1975•
Total
General Government
29,174 57
61,850
49
55,075
36
Police Department
8,815 21
30,596b,
24
40,060
26
Street and Related'
Structures
2,948 7
3,384
3
17,820
12
Health and Sanitation
6,450 15
29,858
24
32,560
22
Fire Department
6,200
4
Total Expenditures
42,387 100
125,688
100
151,715
100
aSource: Town of Surf
City.(Adopted) Budgets;_1968,.-1973,.:1974:.'
bIn 1973 includes expenditures for fire equipment.
aIncludes solid waste
collection and pest control.
dIncludes expenditures
for rescue squad.

In summer, Surf City commerce can supply the day to day needs
of vacationers, with grocery stores, tackle shops, and gift shops;
lodging, dining, and recreational facilities. Most year-round residents,
however; find -it necessary to do much of their shopping off the island.
The nearest professional services, such as doctors, lawyers, and dentists
are found in Wilmington and Jacksonville, as are specialty shops, pre-
scription drugstores and the like. As noted, property tax collections
account for 63 percent of income to the Town Government. In July, 1975,
there were 815 taxpayers listed by the Town Clerk. At a rate of 3.7
pskidAi per dwelling unit, year round population accounts for 197 tax-
payers.. Assuming permanent residents holding more than one taxable parcel
balances with non -permanent, year round residents, 618 taxpayers are
absentee owners. Thus., the majority of property tax income comes from
absentee property owners. But serious problems have already been en-
countered as a result of the great demand placed on the land and its
adjacent waters. A tremendous growth in tourism has occurred in Surf
City in.the last 20 years. The increase in disposable income, mobility,
leisure time.and access, in the two decades between 1950 and 1970, has
resulted in an increase in outdoor recreation and vacation second -home
building in the Town. Home building and real estate services are major
employers. Unfortunately no measure is available for construction, sales,
and service employment associated specifically with homebuilding in
Surf .City because the sector is made up of many small enterprises that
.operate in all jurisdictions of Topsail Island and on the mainland.
3�6

EXISTING LAND USE
The Town of Surf City is located in the southern half of
Topsail Island on the east coast of Pender County. Topsail is a
barrier island stretching for approximately 25 miles in a NE -SW
direction between New -Topsail Inlet in Pender County and New River
Inlet in Onslow County. It is bounded on the northwest by the Atlantic
Intracoastal Waterway (AIWW) and -on the southeast by the Atlantic
Ocean. The island is bisected by the Onslow-Pender County line, the.
Pender County portion being comprised of two municipalities, Surf'City
and Topsail Beach. Topsail Beach forms the southern 4.8 miles of the
island; Surf City extends for 6 miles between Topsail Beach and the
Onslow-Pender County line.
Until 1940; Topsail Island was deserted, totally undeveloped,
and inaccessible by automobile. In 1941, the U. S. Government estab-
lished Camp Davis as a temporary military reservation in the Holly Ridge
area, and leased Topsail Island for use as a missile testing range. In
order to facilitate military activities, a pontoon bridge was constructed
across the AIWW, barracks and observation towers were built, and a road
extending the full length of the island was developed: In 1948, military
activities ceased, Topsail Island facilities were abandoned, and land
that had been leased was returned to its owners, complete with roads,
buildings, and most importantly, a bridge. Prompted by its newly estab-
lished accessibility, development of the island began immediately; Surf
City was incorporated in 1948.

Surf City is situated 22 road miles northeast of Wilmington and
26 road miles southeast of Jacksonville, the two population centers
closest to the Town. Access to the island from Wilmington is provided by
US 17 to NC 50 with a drawbridge connection to the mainland.. Access from
Jacksonville to the island is provided by US 17 to NC 210 with a fixed
span bridge across the waterway.
Ownership:prior to-1941 of the -majority of the island (including
some submerged land extending to the mainland) by a relatively few
individuals, development by the Army of the major -paved road close to the
fkghi al. dune system, and rapid subdivision..of_land and.sale of lots have
been and will continue to be the major determinants of land use in the
developable parts of Surf City. The military road; now NC 50, served
as the backbone for.the.division of land; the subdivisions with or with-
out deed restrictions have been officially platted and recorded. Present
subdivisions, with but one exception, consist of rectangular lots
measuring from 25 ft to 50 ft across and 60 ft to 100 ft deep. Thus,
some platted lots of 2,500 square feet (ft2) (1/16 of a commercial acre)
have been sold and built upon. Many people may have purchased more than
one lot, but the number of additional lots that were acquired to afford
protection fora large house as opposed to the number acquired to
accommodate one structure on each lot is not known.
The few large parcels that are not subdivided have remained open
and natural through the will of owners or the condition of the money
markets.
Surf City is made up of beaches, dunelands, marine forest, and
Zoo
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salt water.marshes, the distribution and extent of which vary throughout
the town. Estuarine waters and associated coastal marshes cover a large
area of.the town whose jurisdiction extends westward to the centerline
of the AIWW; throughout -most of the town, a line.of shrubs"or woodland
separates the -estuary from the higher, developed land. Between the Surf
City -Topsail Beach town line and the fork.of NC 50, the maritime forest
extends from NC 50 to the marsh. East of NC 50 in this area is a narrow
strip of"duneland with a cover of grass and low"shrub. From the fork
in NC 50, north.to the -town limits, is an area of duneland"characterized
by a foredune and nearly level grass covered land -extending to "a narrow
line of'maritime forest. In the marshland north of the causeway, west of "
New River Drive, several -linear "islands" of higher woodland are
oriented-.N-S. Some of these "islands" have been connected to the dune -
lands by causeways and are being developed for urban uses.
The NC 210 causeway (Rowland Avenue) divides the town north and
south. The.area:from Durham Avenue north to New Bern Avenue, from the
ocean-west:across the 'causeway to the town limits, is zoned for commercial
uses. The -Central Business District is within this area, extending for two
blocks on either side of Rowland Avenue, and along Rowland Avenue from the
ocean to -the third block west of New River Drive". The majority of the
shopping facilities "of"the town are found in this district, including
groceries, clothing stores, beach shops, fishing supplies, hardware, and
an ABC store. The Town Hall•and Volunteer Fire": Department are located in,
this district along with the post office and bank, barber and beauty
shops; a service station, an appliance service," motels, restaurants,
business offices, and a fishing pier. The primary use of the land

immediately adjacent to the causeway is commercial recreation, with
numerous motel units, camper -trailer parks, and boating facilities.
From New Bern Avenue north to the town limits, land use is
predominantly mixed commercial -residential. This area is characterized
by a mixture of single-family cottages, motels, trailers, apartments,
and duplexes; with a bait shop, a fishing pier, a tavern, a church,..
and several restaurants. The Del -Mar Beach subdivision in this area
has deed restrictions limiting land use to single-family residential.
The whole area from Durham Avenue south to the town limits is
zoned for residential uses, with the exception of an ocean to sound.
strip, 100 ft wide, located about 1/2 mile north of Surf City -Topsail
Beach line; this strip is zoned Commercial and permits the operatiori of
a fish house. The predominant use made of the land in this area is
single family residential, with two rows of housing, one row on either
side of NC 50.. The housing density in this area is presently very low,
but throughout most of the maritime forest, individual homesite lots are
for sale. Boat channels have been dredged along the marsh -forest interface
of much of this area, giving road -to -sound lots water frontage and access
to Banks Channel.
There'are-several mobile home parks in Surf City, located along
Rowland Avenue in the vicinity of the causeway, and in scattered locations
north of Rowland Avenue to the town line. The. Town of Surf City has an
ordinance relating to mobile homes, trailers and campers,.permitting'their
location in an area north of Dolphin Avenue to the A. S. King northern

CURRENT PLANS AND REGULATIONS
Current Plans Concerning Land Use in Surf City
Water and Sewer
1. Comprehensive Water and Sewer Program, Pender County, North
Carolina. F. T. Green and Associates, 1968.
a. Expand existing source of water supply and distribution
system to serve new customers.
b. By mid-1980, Surf City expects to have a population
meriting a system of sanitary sewage collection and disposal.
2. Water Supply System for Surf City, Henry von Oesen and Associates,
1968.
3. Town of Surf City, Capital Improvements Program 1974-1979,
Town of Surf City and Cape Fear Council of Governments, June
1974.1-Describes proposed Surf City capital improvements expendi-
tures necessary in the succeeding 5-year period in order to
implement:
a. The Surf City part.of a Topsail Island sewage collection
system.
b. Water main extensions to serve areas of the Town of Surf City
that are presently drawing their water supply from individual
wells. .
c. The Topsail Island Sewage Treatment Plant - a proposed
common facility with an estimated capacity of 1 mgd.
ism
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Transportation
1. Regional Development Guide Year 2000 - Region "O", Cape Fear
Council of Governments, June 1972.
Recommendations
a. Improvement and extension of the Coastal Corridor Highway
(U. S. 17) through Region Roost.
b. Development of a new highway from Hampstead to Topsail Beach.
c. Improvement (four-laning) of U. S. 74 from U. S. 17 to the
Intracoastal Waterway.
2. Transportation Needs Study - Region "O", Cape Fear Council of
Governments, Traffic Pl&rihing Associates, Inc., 1971.
Recommendations
a. Provide a limited access facility, generally parallel to the
coast,'serving the recreation and population centers.
b. From the above facility, provide additional connections to
the major beaches and inland recreation areas with high
type secondary roads.
3. Town of Surf City Capital Improvement Program 1974-1979, Town of
Surf City and Cape Fear Council of Governments, June 1974.
Recommendations
a. Keep paving compatible with existing municipal thoroughfare
system.-
b. Construct 4200 feet of asphalt roadway on Shore Drive in
order to improve traffic flow.
There are currently no utilities extension or open space and
recreation policies in effect in Surf City.
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Existing Local Regulations Affecting Land Use in Surf City
1. An Ordinance Providing for the Zoning of the Town of Surf City,
North Carolina
Effective Date: March 2, 1965
Application: Within the corporate limits of the
Town of Surf City
Summary of Provisions
a. Four Districts are specified in order to regulate and limit
the height and size of a building, the intensity of use of
the lot, the areas of open spaces, and the location of
trades and industries.
1. R-1 Single Family District
2. R-2 Multiple Family District
3. C-1 Commercial District
4. F-1 Fire District
b. The boundaries of Districts are established and shown on
the "Zoning Map of Surf City."
c. Each District has specified uses permitted, building site
area, and yard areas required.
d. All structures erected, extended or modified shall comply
with the North Carolina State Building Code as amended in.
1964.
e. A.Board of Adjustment is to be appointed by the Town
Commissioners for the purpose of hearing and deciding appeals
and authorizing variances in specific cases.

f. Each application for a Building Permit from the Building
Inspector is to be accompanied by a plat drawn to scale.
g. The Town Commissioners may amend, supplement, change or
repeal the regulations, restrictions or district boundaries
set out in this ordinance.
2. Ordinance of the Board of Commissioners of the Town of Surf
City, North Carolina, Relating to Mobile Homes, Trailers and
Campers, Etc.
Effective Date: December 9, 1974
Application: Within corporate limits of the
Town of Surf City
Summary of Provisions
.A. Trailers and mobile homes shall be permitted to remain where
located and now in use.
b. Mobile home trailers and campers may be located in specified
areas. of Surf City.
c. Trailer and mobile home courts now in existence may replace
a unit only when a clearance of 15 feet on each side is left.
d. A mobile home trailer may not be connected with lights or
water until a permit has been issued by the Building Inspector.
e. The Building Inspector shall be the sole judge of what is
ample and adequate concerning storage for garbage and other
facilities.
-Local land use regulations are limited to those listed above.' There
-are currently -no subdivision or nuisance regulations,-floodway, historic
district, or environmental impact statement ordinances in effect in Surf City.

CONSTRAINTS
There are certain areas of Surf City where development would-be
either especially costly.or likely to cause undesireable consequences
because of the inherent characteristics of the land and water. The perme-
ability of soils, their susceptibility to flooding, and their biological
productivity can and have exerted influence upon the choice of land areas
that can most economically, and with the least risk and uncertainty, be
put to various uses.
Physical
Flooding
, r
The U. S. Geological Survey (USGS) is mapping Flood Prone Areas
of Surf City. The purpose of these maps, as stated on each map, is to
"show administrators, planners, and engineers concerned with future land
developments, those areas that are subject to flooding." The Flood Prone
Areas shown on these maps have a 1 in 100 chance on the average of being
inundated during any year.
Flood Prone Area maps have been.completed.by USGS to date at
1"=2000' scale for only parts of Surf City; flood areas mapped to date
indicate a flood elevation of between 10 and 15 ft msl. Virtually all of
the land surface of -Surf City, with the exception of some high foredunes,
would fall within the Flood Prone Area.
Soils .
According to the U. S. Soil Conservation Service (SCS) "General
Soil Map for Pender County," the only soil association present in Surf
City is the Capers-Newhan Association. This association is made up of the
Capers and Newhan soils, each with different physical characteristics and

suitabilities for various purposes. The Capers soils are found mainly in
the marsh areas of the town, where the dominant vegetation is salt marsh
grasses such as Spartina.and rushes. This soilis characteristically
very poorly drained and subject to frequent storm and tidal overflow. It
was formed by both the deposition of silts, sands, and clays in the slowly
moving waters of the estuary, and by the build-up of organic debris that
is entrapped by vegetation growing in it. It is the wetness and regular
flooding of the Capers soils that render them generally unsuitable for
septic tank fields; the Capers soils also tend to -have low traffic sup-
porting capacity and are poorly suited to supporting buildings, roads,
and stfeets.
The Newhan soils are found on the dune and beach areas along the
coast. Deposited by both existing and past wind and water action, this
soil is often found forming inland sand dunes and ridges as well as
foredunes. It is a fine to coarse sand, excessively drained, with
varying amounts of marine life deposits. The sands of the Newhan soils,
characteristically excessively drained, are classed as having moderate to
severe limitations for septic tanks because of their inability to filter
wastewater in large quantities, as required in areas of high population .
density. Further limitations of these soils are usually associated with
their proximity to the ocean and susceptibility to flooding.
Between the foredune and marsh, underlying both dunelands and
woods, are soils that have a combination of the characteristics of Newhan
and Capers soils. The principal factor limiting the use of the soils in this
area is depth to the water table which on Topsail Island tends to be rela-
tively shallow, but can vary substantially locally. The action of trees
—2e

growing on these soils, by their transpiration of large amounts of moisture,
can keep the water-table;at.lower levels than -would :be found were the trees
removed; the water table'may change seasonally as well, being.highest in the
winter months.
A factor sometimes limiting the use of the soil underlying sparse
herbaceous or shrub vegetation is its stability. Close to the ocean, the
vegetation type is often dictated by a tolerance for both salt and wind;.a
lack of vegetative cover here may be indicative of moving sands:'
The suitability of all three of these soils for developments.
in which septic tanks are used as the sewage disposal method.is dependent
primarily .on population density.
Sources of Water Supply —Recharge Areas
Ground water -comprises the sole source of water supply for both
public and private systems in Surf City. Pender County is underlain by -a.
vast aquifer system, two strata of which are important in the Surf City
area as sources of ground water.
Pleistocene and Recent surficial sands cover the beach areas
of the county and constitute the principal water source for most private
wells. In the surficial sands, water usually occurs under water table
conditions within 15 ft of the land surface, but may be partially confined
by.clay.in the lower part of the aquifer (Layman 1965). The productivity
of this aquifer is limited primarily by its thickness; it is recharged
directly by rainfall and easily subject to contamination.
The Castle Hayne limestone is not extensively used for water
supply in the beach area, but is potentially valuable as a large, long term
supply.. The formation begins at 35 ft below msl where its waters occur
q�9

under artesian conditions. Recharge to the Castle Hayne would, therefore,.
not be expected to occur in the immediate beach area and its waters would
not be as vulnerable to contamination as those of the.surficial sands.
The quality -and quantity -of water from the Castle Hayne vary
locally. In the Surf City Area, it is generally high in iron, low in
chlorides, with a pH of 7-8; at Holly Ridge, indications are that a specific
capacity of 50-70 gpm per ft drawdown can be obtained (Laymon 1965). Most
attempts to obtain good water from the Castle Hayne in the immediate beach
area have proved unsuccessful thus far.
Fragile
Coastal Wetlands
Estuarine tidal marshes and mud flats.are found covering all but
the high sand ridges, dunelands and maritime forests of Surf City along the
entire length of the Towns sounds, creeks and bays. The dominant soil
found in these marsh areas is the very poorly drained Capers soil, subject
to daily and frequent tidal flooding; the dominant vegetation is salt marsh
grass.
For the purpose of better defining their significance, tidal
marshes can be divided into two categories: low tidal and high tidal
marshes. Low tidal marshland is defined as that consisting primarily of
Spartina alterniflora and usually subject to inundation by the normal rise
and fall of lunar tides (N. C. Coastal Resources Commission 1975). The
particular significance of the low marsh is based on its high yield to the
estuarine waters.of organic detritus, which serves as a primary food source
for various species of fish and shellfish, such as menhaden, shrimp, flounder,.
oysters, and crabs. The roots and rhizomes of the Spartina alterniflora

serve as waterfowl food, and the stems as wildlife nesting material. Low
tidal marshes also help to retard shoreline erosion.
High tidal marshland is subject to occasional flooding by tides,
including wind tides, and is characterized by a variety of marsh grasses,
including Juncus roemerianus and various species of Spartina. The high
marshes also contribute to the detritus supply of the estuarine system and
support a diversity of wildlife types; they function as effective sediment
traps and as a further deterrent to shoreline erosion.
Much private development has already occurred along the tidal
marshes of Surf City, particularly in places adjacent to higher land north
of the Causeway and west of New River Drive. The Intracoastal Waterway is
used extensively for water transportation, fishing, and related water
sports; the adjacent marshland has been used as sites -for homes, piers and.
recreational facilities supporting the Waterway activities.
The once common practice of channel dredging and adjacent marsh
filling has recently come under closer scrutiny. of State and Federal authori-
ties; as a result, there is currently little development of the marshland
in Surf City.
Estuarine Waters
The estuarine waters that surround the coastal wetlands in Surf
City are one of the most productive natural environments in the county,
supporting many fish'and shellfish species for part of all of their life
cycles. According to the statuatory definition /G.S: 113-229(n)(2)/ `
estuarine waters in North Carolina include all of the waters of the Atlantic
Ocean within its boundaries, and all the waters of the bays, sounds, rivers
and tributaries thereto seaward of the dividing line between Commercial
Fishing Waters and Inland Fishing Waters; the dividing line between these

waters has been established for each body of water by agreement between
the N. C..Department of Conservation and Development (now DNER) and the N. C.
Wildlife Resources Commission. All of the surface waters.within the juris-
dictional boundaries of Surf City are classified Commercial Fishing Waters
and, as such, are designated estuarine waters of North:Carolina.
Public Trust Areas
The State of North Carolina supports the traditional public
rights of access to and use of lands and waters designated Public Trust
Areas for purposes including navigation, fishing and recreation. Public
Trust_4reas include estuarine waters, navigable water bodies to their
ordinary high water marks, and all lands beneath these waters. The State
allows appropriate private development within Public Trust Areas, pro-
vided that the development not be detrimental topublic trust rights.
Ocean Beaches and Sand Dunes
Surf City has approximately 6 miles of barrier island ocean
shoreline characterized by wide and sandy beaches with moderately high
foredunes. The ocean beaches consist of unconsolidated soil material with-
out vegetative covering; they are characteristically of a larger soil
particle size and lower slope than the adjacent sand dunes into which they
grade. The character of the sand deposits on ocean beaches is dynamic in
nature, responding to fluctuations in the forces which cause their deposi-
tion and erosion. Tidal action, littoral currents, and storms cause a
continual movement of sand both along the beach and between the dunes and
deeper ocean waters. The resultant changes in beach morphology cause the
shoreline, theoretically demarking the confluence of land and water, to,
shift to the point of being virtually undefineable.

The ocean beaches are the most valuable.natural recreational
resource in Surf City, and are extensively utilized as such. .Their dynamic
nature, however, precludes safe and cost effective structural development on
them without the use of sound engineering practices established for coastal
hazard areas.
The foredunes in Surf City have an average elevation of about 20 ft
msl. From the northern town limits south to Barnacle Bill's Pier the
duneline is virtually solid, with only isolated spots broken or built upon.
From the pier south to the vicinity of High Point Road, the duneline has
been damaged and in some cases obliterated. From the High Point Road
vicinity -to about 3/4 of a mile soiAl 6f the fork in NC 50 the duneline is
again in good condition, its condition varying from good to damaged the
rest of the distance south to the town line.
Sand dunes are valuable both for their aesthetic appeal and for the
protection they afford the land behind them. Where stabilized by vegetation,
a foredune can act as a temporary buffer to the erosive effects of storm
wave action. For the most part, however, dunes are relatively unstable
land features over time and as such, are hazardous areas for the location of
permanent structures.
Excessive Erosion Areas
"Storm erosion of beaches and dunes of the North Carolina coast
has always occurred, but it has not been a serious economic problem until
recently when increased development of beach front property has taken place"
(Knowles;.et al..1973). Knowledge of the patterns of coastal erosion is
essential to the safe and productive development of a coastal region.
The continual erosion and acretion occurring along a beach result
in a gradual change in the location of both the high water and dune lines

over time; excessive erosion and acretion, as accompany large storms, can
affect a change in the location of these lines very rapidly. In the course
of a large storm, great quantities of beach and dune sand can.be eroded
from a site and replaced by subsequent acretion, with no net erosion re-
sulting. Structures situated on these sands, however, once removed, are
seldom replaced intact. Planning for safe development of beach front property
must take into account both long term erosion trends, established from
historical records, and the probability of extensive shorter term erosion
losses predictable by scientific study.
A comparison of mean annual erosion and acretion rates Ocoukring
along Surf City beaches between 1938 and 1972 reports relatively minor
changes taking place annually in the dune and high water lines of the town.
over the 34 year.period,.the high water line in Surf City has been eroding
at a rate of .1 ft per year and the dune line has accreted at the rate of
.5 ft per year (Wahls 1973).
The amount of dune erosion that will take place during a storm of
a given frequency depends on several factors, primarily the storm surge
level, the height and massiveness of.the dune, and the distance of the dune
from the mean water line (Knowles et al. 1973) Along Surf City beaches,
the calculated recession from the toe of the dune during a storm with an
expected frequency of once_in twenty-five years is approximately 112 feet
(Knowles et al. 1973).
Erosion and acretion occur normally along the watercourses of
estuarine marshland in Surf City, but generally to a much lesser degree than
along its beaches. Erosion in the sound and along the Intracoastal Waterway

is often accelerated by the wake of motor boats; accretion in these
waters is accelerated when sands and silts, carried by streams from the
mainland, settle out in the calmer waters of the sounds. Costly bulk -
heading of sound front property and maintenance of navigation channels
are often required for developments in these areas.
Resource Potential
Archeologic
Two types of archeological resources have been recognized on
the North Carolina sea coast: remnants of earlier dwellers and sunken
vessels bffshore.
Remains of prior cultures may be on dry land; the most common.
are the shell mounds marking the scene of major fishing expeditions.
There is always the possibility that people of the area during the
pleistocene period occupied areas now beneath the sea. There has been
no systematic inventory of such sites or indications of areas where
there is a high probability of finding evidence of ancient settlement.
The second resource is the wrecks of vessels sunk naturally
or by acts of War. Recent sub -surface exploratory work located a
blockade runner; the Phantom, off New Topsail Inlet. No evidence of
valuable wrecks is indicated in the uniform sea bottom off Surf City.a
Historic
Topsail Island was the scene of early rocket test facilities.
The test range was constructed and operated by the military establish-
" ments. Work conducted from Camp Davis and the missile range on Topsail
aGeorge Feehney, Personal Communication, October 28, 1975.

Island was the forerunner of National Aeronautics and Space Administra-
tion's widely acclaimed achievements at Cape Canaveral.
Many of the key facilities were located in what is now Surf
City -- the island terminus of the pontoon bridge to the mainland_. The
remaining evidence of the missile test range are an historic resource
of state and national importance.
Community Facilities
Community facilities in Pender County are operated some on a
county -wide basis, and some by individual communities and municipalities.
Massy of the facilities and services that are offered on a county' -wide
basis are operated out of the town of Burgaw, located centrally in
Pender County. Road networks in the part of the county west of the
Northeast Cape Fear,River are integrated and distributed in such a
manner as to make the delivery of services out of Burgaw efficient for
that area. A "rule -of -thumb" is that all of this part of Pender County
is within a 30 minutes drive.of Burgaw.. Surf City, however, located on
the east coast of Pender County, is well beyond a 30 minute drive from
Burgaw, being isolated from the bulk of the county by the vast Holly'
Shelter swamplands with their complete lack.of throughroads. As a
result, some of those services offered by the county, including the
rescue squad and solid waste collection, do not serve the Town of Surf
City. Other County services, such as the health clinics, hospital, and
library, while available to Surf City, are little used by town residents.
By virtue of U. S. 17's N-S orientation many services can be obtained
more readily by Surf City's residents in Wilmington or Jacksonville.
36

Health Service
Health services in Pender County are maintained primarily by the
Pender County Health Department, with headquarters in Burgaw. Health
services include Pender Memorial Hospital and Pender County Health Clinics.
However, most residents of Surf City, when in need of medical facilities,
use those,facilities in New Hanover or Onslow County. There are.no
doctors or dentists operating medical practices in Surf City.
Under the direction of -a non-profit organization, the Penslow
Foundation, a new health center complex is being planned for the coastal
area of the County. 'The plans call for completion in 1976 of a health clinic
in Holly Ridge to house three doctors offices, one dentist office, a .
pharmacist, waiting room, six treatment rooms, an X-ray room, and a labora-
tory. The clinic would be operated on a 24-hour basis to serve residents
of the area from the.Ocean west to Maple Hill and from Hampstead north to
Verona in Onslow County.
The Town of Surf City operates its own rescue squad equipped
with one ambulance and all volunteer personnel. Rescue squad vehicles
presently take emergency patients to hospitals in either Wilmington.or
Jacksonville, but will in the future use emergency facilities of the Penslow
Clinic.
Fire Protection
Surf City has a 25 member volunteer fire department, equipped
with two trucks and one 750 gpm tanker. Fire calls from Surf City and
throughout the county go to a central dispatcher in Burgaw who activates an
alarm button to alert that fire department closest to the endangered area.

The Surf City Volunteer Fire Department has been given a fire pro-
tection insurance rating of 8 by the North Carolina Insurance Rating Bureau.
A rating of 8 indicates that the department equipment is in excellent condi-
tion, personnel are adequately trained, and the water supply and fire
hydrant systems are reliable.
Education
Pender County has a consolidated school system with 12 schools lo-
cated throughout the County.. Surf City. resident school children attend grades
:K-3.. at Topsail - High . School. in. Hampstead, 4-47 .at Topsail Middle. School in
Annandale, and 8-12 at Topsail High School. Both of these schools are
located on U. S. 17 and require an eleven to thirteen mile trip each way
from Surf City. A county school bus system is available for all students
grades K--12.
Solid Waste Disposal
There are at present two solid waste collection and disposal
systems in operation in Pender County. The whole inland area of the county
is provided with garbage pickup and disposal by a county system begun in
February, 1973. There is one landfill for the area, located on SR 1640, 4
miles west of Burgaw. Garbage collection trucks, operated by the County,
make collections at designated locations, with subsequent deliveries to the
landfill.
The Topsail Township Landfill opened on July 7, 1975, to provide
a waste disposal site for the Beach areas of the county. Garbage collec-
tion in Surf City is operated by the municipality; the landfill is operated
by the county. Garbage is collected 4 times each week in Surf. City. The
collection equipment is small, consisting.of one dump and one pickup truck,
low

as the town cannot afford a large compactor type truck. Personnel include
3 men. In the winter months when the population is low, few trips to the site
west of the Surf City Bridge on N. C. 50 are needed each collection day. In
summer, however, with the greatly increased tourist population, facilities
and manpower are required to work long hours in order.to keep up with the
increased loads.
Water.and Sewer
As of June, 1973, there were a total of nine public Fater systems
in operation in Pender County; three of these systems are municipally owned,
the remaining six serving mobile home parks (Wiggins -Rimer and Associates.
1973). Of the three municipal systems, only two, in Burgaw and Surf City,
actually have wells. The third, Topsail Beach, buys its water from Surf
City, but operates its own distribution system.
The Surf City water system was established in May, 1968, with the
financial assistance of the Federal Housing Administration. At the time of
the new system's installation, there were waterlines running N-S along
NC 50, and a storage tank located in the center of town, left from former
military activities. The new system, wherever feasible, incorporated the
existing lines and storage, adding new lines, drilling two new wells, and
installing an underwater pipeline across the AIWW. The water system was
designed to have an ultimate capacity of 2.5 mgd by the addition of up to
four more wells.
The two existing wells are located on NC 50-210 just west, (one,
about 1/2 mile, the other, about 1 mile) of the AIWW; the wells have a
combined rated capacity, based on State Board of Health criteria, of 516,000

gallons per 12 hour pumping day.a According to Mr. Benson, there are ap-
proximately 500 customers connected to the system in each of the two towns
(Surf City and Topsail Beach), with a combined peak use of about 375,000
gallons per day in summer; peak use averages 140,000 gallons per day in Top-
sail. Beach and 235,000 gallons. per day in Surf -City.' The greater amount of
commercial activity in Surf City, including trailer parks, motels, and
restaurants probably accounts for the Town's larger water consumption per
customer.
Waterlines in Surf City are located along the three N-S streets
with additional lines on major E-W streets. Anywhere in the developed part
of town, connection to the water system .is economically feasible, and few
private wells remain in use. In the southern maritime forest area of town,
where there are no major.E-W streets, a single N-S waterline runs along
NC 50. Future development in the maritime forest may require more extensive
line installation, which should be planned so as to destroy as little of.the
forest resource as possible.
In 1973, approximately 93% of the population of Pender County
was served by private waste water disposal systems, most of which serve
individual single-family residences and rely on subsurface disposal methods.
The problems with waste water disposal in Surf City are widespread, and
relate to three major characteristics of the area: a high water table,.
poor soil conditions in some areas, and a population density which cannot
support public waste water collection and disposal systems.
aRobbie Benson, Henry von Oesen and Associates, Personal Communication.
y-D

In Surf City, the development on small lots has created over-
. crowded conditions for the septic tanks in use. The Town of Surf City, in
cooperation with Topsail Beach and Onslow County, is presently sponsoring a
201 Plan to determine the feasibility of developing a waste water treatment
facility to serve all Of Topsail Island.
Because of limited data,'no other types of area with resource
potential, fragile or hazard areas, or other physical constraints on
development have been identified at"this time.
In general, land uses -now present in Surf City have not resulted
in problems of compatability; residential/recreational land use is sup—
ported by commercial and institutional facilities. There are no
agricultural, industrial or forestry activities.in conflict with the above.
uses nor are any foreseen in the near future. Rather, land use.problems
`beginning to surface in the town and likely to be augmented�in the future .
involve more the intensity of various uses and the accommodation of
future growth on the limited amount -of developable land in the town.
Z4

MAJOR ISSUES AND GENERAL ALTERNATIVES
Since 1963, the Surf City summer population has increased by 160
percent; the year-round population increased by 339 percent between 1970
and 1975. Land prices have escalated accordingly. Ocean front lots that
in the early 1950's sold for $1,500 are now asking $15,000.a
As vacation homes have increased in number, so have commercial
support facilities such as restaurants, motels and shopping areas. Through-
out the town and adjacent jurisdictions, single-family detached dwellings
abound, each utilizing sub -surface sewage disposal methods in soils with
moderate to severe limitations for septic tanks. The closing of Virginia
and Bekkie Creek shellfish waters to harvesting, traffic congestion, and
more crowded living conditions have already resultedf.threatening the
quality of those resources on which the town is based. Yet the demand for
living space, water,, and services continues to rise.
Responses to a questionnaire sent to all property owners (see
Appendix A) indicate that the open space and abundant natural recreation .
resources of Surf City,providing a variety of outdoor activities,are the
primary atractions of the Town for both permanent and vacationing popula-
tions. The quality of the beaches and waterways and their high recreation
value warrants the high price of beach area land. Existing employment
opportunities, public services, indoor entertainment, and cultural and
shopping facilities of the area do not offer sufficient incentive for either
permanent location or vacationing in the Town.'
a Mr.. Alva'Ward, Personal Interview, October.21, 1975.

There is some division in Surf City as to whether future growth
in the Town should occur slowly or rapidly. Tabulations of the question-
naire show that 45 percent of those responding desire slow growth of the
tourist trade and seasonal residents in the future, 42 percent want
rapid growth. There.were 66 responses to the questionnnaire received
from permanent residents and 113 from absentee property owners;:60 percent
of the permanent residents opted for rapid growth, 57 percent of the
absentee owners for slow growth. The majority of permanent residents,
many of whose livelihoods depend upon the tourist trade,.could benefit
financially from increased commercial activity in the Town, including
an increase in shopping areas open year-round.,- Many absentee property
owners; as well as some permanent residents, see rapid growth as a
threat to the uncrowded living conditions and.clean air and water that
drew them to the town in the first place. Both resident and non-resident
property owners agreed that the main problem in the Town at present is
unsightly development; over 80 percent of both segments stated that
future growth of commercial activity in the town should be regulated. The
lack of shopping areas, septic tank problems, poor construction, and lack
of beach access were cited as the next four major problems.' (Tabulated
results of the questionnaire survey are shown in Appendix A.)
'Past Development Activities
The demand for land, particularly ocean and sound waterfront
land, continues to increase, but the supply remains constant. The develop
ment industry of Surf City has responded to the increases in demand'over
=_L

the years by increasing the intensity to which the existing land is
used. Most land use problems that have occurred in Surf City such as
the closing of shellfish waters to harvesting, extensive hurricane
damage, and the degradation of the scenic value of the land are the
direct result of attempts to develop the existing land surface beyond
its inherent capacity for that development. Development does not cause
hurricanes,pollution, erosion or siltation; but inappropriate develop-
ment activities can accelerate the damage caused by these natural
phenomena and create new problems such as overcrowding and the general
degradation of the natural resources on which the town is based.
.The highest demand in beach areas (therefore the highest dollar
value) has long been placed on the oceanfront acreage. The post WWII
increase in affluence, mobility, and second home building in this country
had already begun when private development of Surf City was initiated; as
a result, developed oceanfront acreage in Surf City has always been
relatively expensive. In order to offer for.sale to the general public,
the limited amount of land, the narrow oceanfront lots were developed
(generally 25 ft to 50 -ft wide) .
The military -built road extending the length of the island was
included in the North Carolina road system by N. C. Department of Trans-
portation (NCDOT) as NC 50, and became the Town's main thoroughfare.
The proximity.to the duneline of NC 50 and Shore Drive in most cases
dictates the depth of lots:and,to a certain extent, the location of houses
on those lots.. The esthetic and protective nature of the foredune were
often disregarded. In some cases the dunes were considered an obstacle

to land use; some areas of dunes were obliterated to make way for a
building while other dune areas were simply stripped of natural vegeta-
tion to accommodate construction. In most cases, the foredunes were
left intact by the elevating of houses over the dune and storm wave
attacks.
Storm and Erosion Protection
In October 19541 Hurricane Hazel hit Topsail Island causing
severe damage to the existing buildings and destroying the pontoon
bridge to the mainland. Hazel produced a high tide of 9.6 feet above
mean sea level (msl)., inundating virtually the whole island, whose
average elevation is 8'ft.msl. The storm removed 850,000 cubic yards of
sand from the beaches.of. Topsail -Beach and Surf City, depositing much of it
in the.'central part of-the'island (U. S. Army Corps of -Engineers 1965).
Many of the demolished buildings were rebuilt after the storm and a new
bridge was constructed; emergency crews returned much of the deposited
sand to the beach but the net elevation of the beach was lowered by two
feet causing future -storm waves to break even closer to the remaining and
new structures.. The Surf City area has not received severe hurricane
damage since "Donna" in 1960; historical records of hurricane occurrence,
however, indicate a high probability of hurricane recurrence in the near
future.
There are risks inherent in the ownership of beach property due
to weather patterns and the changeable nature of the environment. Some
degree of shoreline erosion must be expected to occur over time, new:
inlets open where once there was solid land, and the high winds and waves
of hurricanes cannot be avoided. But to a certain extent, damages from

these forces can be reduced by the proper design and location of roads
and structures and by care taken to avoid the destruction of natural
protective features.
To be successful, storm and erosion protection measures must
be practiced throughout a hazard area, as one man's efforts to protect
his property can be thwarted by the negligence of neighbors. The
elevation of buildings on pilings to a level above the level of breaking
waves can prevent storm wave damage; but the erosion of sands on which
the building is situated can cause the collapse of a structurally sound
building that is located too close to the moving water. Homes can be
situated sufficiently far inland to be safe from actual wave and erosion
damage, but may remain susceptible to the battering-ram action of flying
debris from the breaking up of other structures not so well situated. A
gap in the duneline on one lot can initiate flood and erosion damage on
adjacent lots. -`
The health and safety of human life, the protection of property,
and the preservation of those natural resources which make beach areas
both attractive and economically productive must be primary matters of,
local public policy. To be appropriate, development of beach areas must
consider not only the immediate return on the private investment dollar,
but also, the long range impact on community resources, values, and
welfare.
.. .Visual Quality of Development
Responses to the questionnaire indicate that the people of
Surf City consider unsightly development to be the major problem in the
town. Former military activities left the town with an assortment of
AMES
ct7

buildings in a. variety of sizes and shapes, all designed to meet military
specifications of visual quality; many of these structures have since
been adapted for private commercial or residential use.
Over the last twenty-five years, a variety of real-estate
firms has been involved with the subdivision of land and the platting of
lots in Surf City; only rarely did the -development process include the
design.of structures. Individual buildings were erected to meet
individual tastes and needs with little regard for uniformity of style
or quality. The extreme variation in building density is accentuated by
the grid road pattern, with squared -off empty blocks adjacent to full
ones. In the dunelands of the town there is little natural topographic
or vegetative relief to limit visibility; that which is unsightly is
unsightly for some distance.
The southern end of Surf. City is graced with a narrow but lush
band of maritime forest beginning just west of NC 50. The forest canopy
begins at ground level as a shrub zone, and curves gently upward assuming
the form of a large dune. Much of the forest land is developed only on
its periphery as a single row of houses along NC 50. Most dwellings
located deeper in the woods are secluded single family detached homes,
placed on large lots with only minimal damage done to the forest. In
isolated instances,.bulldozers were used to scalp lots prior to construc-
tion. But for the most part, the integrity of the forest has so far
been maintained and large parcels with tremendous potential for high
quality development remain.
At present, many undeveloped single lots in the woods are -for
sale, 'and the risk of the forests being carved into individual homesites

is high. In some areas, restrictive covenants limit the haphazard use of
bulldozers for clearing vegetation, but a grid pattern of driveways and
• streets could well result from the sale of single rectangular lots.
The special scenic value of the maritime forest calls for an
alternative development approach that minimizes clearing and leaves a
maximum amount of solid forest stands. The clustering of housing in the
area, with common driveways and parking facilities, could result in a
sufficiently high gross density of families to be profitable to the
developer,.while retaining the integrity of the land for the mutual benfit
of property owners and townspeople.
-�•'' In the grass covered dUftelands in the center of town, the per-
centage of land actually occupied by buildings is relatively.low; many
platted blocks between Charlotte Avenue and the -fork -of NC 50 are virtually
undeveloped.
In the northern part of town, starting near New Bern Avenue,
structural density is extremely high with at least as many as 35-40 trailers
per acre. Some owners, rather than subdividing and selling individual
lots, rent trailer spaces. Septic tanks are the.sole method of sewage
disposal in the town despite the severe limitations for septic tanks
characteristic of the Capers-Newhan soils. Some trailer parks are situated
immediately adjacent to estuarine surface waters at'elevations everywhere
less than 10 ft msl. Some of the estuarine waters in the vicinity, in-
cluding Bishop, Virginia and Bekkie Creeks, were closed to shellfish
harvesting by the Division of Shellfish Sanitation in January 1974. The
concern of local residents over the degradation of their environment and
the potential threat to human health prompted the U. S. Environmental
lam
4f-Cr

Protection Agency, and the NC division of Planning and Evaluation and
Water Quality -to undertake a study to determine the source of the area's
pollution.
Providing Community Facilities and Services
Surf City has been developed as an ocean resort; resort communi-
ties have the particularly troublesome problem of meeting with a small
permanent population the needs of a population that is seasonally four or
five times as large. Much of the year-round population relies upon the
spending of the seasonal (vacation)population for its livelihood; con-
vbtsely, the seasonal population relies upon the year-round population to
provide the commercial services it demands, such as shopping, dining,
and lodging,. and to operate public services, such as police and fire pro-
tection. The unevenness of the population throughout the year limits
expansion of commercial facilities (causing questionnaire respondents
to select lack of shopping areas as a problem) and is a major problem for
providing community facilities and services. Facilities and personnel
sized to meet the demand of seasonal residents and visitors exceed by far
what is necessary to'meet off-season demand. Specific issues are:
(1) Central Water Supply. The public water system in Surf
City was designed to be expandable to meet increasing demand. ..The two
existing wells with a combined rated capacity of..516 mgd (with pumps
operating only 12 hours per day) are adequate to serve the present demands
of Surf City and Topsail Beach, or an average of about .375 mgd in summer.a
aThe Town of Topsail Beach presently buys water from Surf City.
r

As explained in the description of present public facilities, the average
per capita use of the public water system is 47 gallons per day in Topsail
Beach and 100 gallons per day. in Surf City. The projected combined peak
population of the two Towns in 1985 is nearly 17,500.
Assuming the per capita quantity of water use in the future to be
the same as at present and that all units will be connected to the public
water system, at least 1.5 mgd will be required to supply peak population
demands in 1985. The capacity (2.5 mgd) of the waterline connecting
the mainland well field with the island would remain adequate.. If the
existint wells were pumped on a 24 hour per day basis, they could produce.
1:632 mgd. Additional wells will be required in the near future if Surf
City is to continue supplying water to meet both Surf City and Topsail
Beach needs. Secondary issues are: (1) whether the Surf City system should
become a regional system to meet island -wide demand or.be limited to Surf
City thus forcing Topsail Beach.and Onslow County to independently seek
and distribute water supplies and (2) insuring that all dwelling units and
businesses in Surf City are connected to the central system. .
(2) Sewage Collection and Treatment. The soils of the area
cannot accommodate the quantity of sewage that is produced by residential
densities as high as thirty units per acre. As noted earlier, thepossi-
bility that current volumes of effluent discharged -through individual
septic systems have saturated the permeable soil mantle and is moving
laterally into Class SA estuarine waters is under active study by state
and federal agencies. Even if the results of the study do not conclusively
show that present septic systems pose a clear threat to water quality
standards, new N. C. Department of Human Resources regulations governing

new septic systems will preclude new construction in much of Surf City.
The basic issue is the choice between continued reliance upon individual
systems or installations of a municipal sewer system. Required con-
nection to the sewer lines would not only allow for high density popu-
lation in the future, but would relieve problems caused by presently mal-
functioning sewage systems. The natural biological activities and
filatration capacity of the soils and estuarine waters can be expected
to eliminate the existing pollution in surface and ground waters over
a period of years if the sources of those pollutants are eliminated or
reduced to tolerable levels. If the issue is resolved by choice of a
sewer system, the concommitant water system issue will remain: se�arate
systems for each jurisdiction or a regional system.
(3) Police requirements. The cost of the Surf City Police
Department accounted for 26 percent of the 1974-75 Town budget. Yet'the
size of the force is not commensurate with the,summer population, traffic
flow, and the special attitudes and mores of people when they are away
from home. Vacant houses and closed -up businesses must be patrolled
during the off-season. The issues are (a) determining the level of pro-
tection required, (b) the level of year-round/seasonal population that
will dictate.a major expansion in police service demand, and (c) whether
Surf City should maintain an independent department, or rely upon
county provided service.
. .(4) Fire protection. Fire equipment is now housed in a
single, central fire station. Equipment and personnel are adequate for
present conditions, but increased population and visitation may impose
stresses on the system. The issues are (a) finding ways to maintain
52

personnel in the station to accelerate responses to alarms and (b)
whether specialized equipment will be needed if structures suitable
for accommodating higher population densities are constructed.
(5) Solid waste requirements. Pender County government recog-
nized the need for more intensive solid waste disposal service by opening
and operating a sanitary landfill to serve the area of the County be-
tween the ocean and U. S. 17. Two issues are emerging: (a) Land that
will meet specifications for a sanitary landfill anywhere in the strip
between U. S. 17 and the AIWW is scarce and in high demand for development.
Disposal of solid wastes will become a serious problem if the existing
landd ill should prove to be inadequate for future needs and (b) ei�Apment
to collect wastes from urban density summer populations is too expensive
to remain idle for the majority of the year.
(6) Beach and dune maintenance. The issue of beach maintenance
is closely related to the issue of access to Public Trust Areas. Eleven
questionnaire respondents listed beach litter as a main problem. Other
related problems are: (a) provision of lifeguard service and the
relationship of such service to the Surf City Rescue Squad; (b) control
of motor vehicles on the strand and'crossing the dune line (the Town now
prohibits vehicular use of the beach between May 1 and Labor Day); and
(c) construction and maintenance of structural access across the dunes,
enforcement of state dune protection ordinances and prohibitions against
removal of natural vegetation, and correction of gaps in the dune line.
(7) Recreation facilities and programs. There are presently
no public recreation facilities or programs in Surf City. The in-
creasing of seasonal population and day visitors, consisting largely of

family units with children, will require increasingly diverse recrea-
tion activities. Open water for motorboating and water skiing and
land for tennis courts and game fields will be desired as year-round
and seasonal populations increase and become more sophisticated. Diverse
year-round recreation services will also become necessary as the number
of retired people increases. This has been true in all communities
that have attracted sizeable numbers of retirees. The issues
involved are (a) determining priorities for recreation facilities to
be developed, (b) acquiring suitable land for recreation areas and
Cc) scaling the size of facilities for year-round or seasonal populations.
(8) Traffic. Surf City is the main point of entry to Topsail
Island. All traffic to and from the Town of Topsail Beach must pass through
Surf City, as must traffic from the south going to the Onslow County portion
of the island. Through traffic is confined to NC 50 and 210 which also
serve as the paved thoroughfares for all local traffic. Four issues
present themselves: (a) Separation of local traffic from through
traffic; (b) increasing the capacity of the through roads; (c) alleviating
the bottleneck caused by the frequent opening of the bridge over the AIWW;
and (d) facilitating the use of bicycles and other off -road vehicles.
.(9) Utilities. Electric service is provided by the Jones-
Onslow Electric Membership Corporation and .telephone service is provided
by Carolina Telephone and Telegraph Company. The lines are aerial. As
structures are added, the number of poles, all very visible on a barrier
island, will increase apace, and detract further from the present visual
amenities of Surf City.

Financing Service Facilities
The major issue in financing the services enumerated is
determining an equitable distribution of the costs. The participants
are developers and commercial interests in the Town, visitors to the
Town, and.taxpayers of Surf City, Pender County, North Carolina and
the Nation.
A principle of equity is that beneficiaries should pay a
proportion of costs equal to the proportion of benefits received.
Unswerving application of that principle poses problems and:implica-
tidhs for public policy:
For instance:
(1) In resort communities such as Surf City, the vacationing
population comes from various parts of the state and.country and enjoys
the use of beaches and waterways with no "admission fee" charged by
the Town. The commercial activity created by vacationers directly
benefits the Town financially, but does not provide adequate revenue to
support major service facilities such as sewage treatment plants and
public water supplies. The local estuarine waters and marshes are a
valuable resource of the Town, supporting sport fishing and boating
activities; but they are also of value to the nation, contributing to
commercial fishing.activities and resultant food supplies. The responsi-
bility for the health of vacationing populations (as well as year round
residents) and for the preservation of the productivity of estuaries
must be shared by local, state and federal governments.
(2) The State of North Carolina's Public Trust policy supports

the public's right to use the State's beaches and waterways, and
requires the provision of public access to Public Trust Areas. It
may be the responsibility of developers to provide access for the.
.residents of subdivisions, and the responsibility of the town.to assure
access for the townspeople; but the state must assume some degree of .
responsibility for the provision of access to the general public, if
the state requires the provision of that access. Public use of beaches
and waterways necessitates public sanitation facilities and parking' y
areas. For vacationers using the lodging and dining facilities of the
townp lanitation facilities and parking areas can be required bf the
commercial establishments. But the responsibility for "day -visitors",
with the right to use the town's resources, is again a public responsi-
bility, to be shared by.State and Town government.
(3) There is concern on the part of resident and non-resident
taxpayers alike that the visual quality of the Town be improved
and that future development and the use of resources be carefully
planned. But plans must be implemented, just as codes and ordinances
must be enforced, and professionally trained personnel are required to
do either job well.. The establishment of a municipal body charged with
coordination and implementation of future planning, permit issuance,
and ordinance provision would help to insure adherence to the standards
for future development that have been set by the taxpayers, but the
benefits of such action extend far beyond the limits of the Town. The
-list of examples could cover each of the public facility issues. The
fundamental issue is: Who pays.
S6

OBJECTIVES AND STANDARDS FOR SURF CITY
The Coastal Area Management Act of 1974 requires local juris-
dictions who choose to formulate land use plans under the Act to base.
those plans on publicly derived goals for future development.
The Town of Surf City mailed questionnaires to all taxpayers of
the Town to ascertain their views on future development goals and standards.
On July 29, a public meeting, sponsored jointly by Onslow County and the
Towns of Surf City and Topsail Beach was held on Topsail Island. In
this -meeting, development alternatives for each jurisdiction, with the
projected population expected to accompany each alternative, were sub-
mitted to the people in attendance. In a Planning Board-Advisoty Council
meeting held in Surf City on September 16, the tabulated results of.the
returned questionnaires were discussed in -conjunction with the development
alternatives. In its meeting -on January 12, 1976, the Surf City Town
Board and interested citizens reviewed the citizen questionnaire responses
.and comments received from the floor in public meetings. -These activities
have resulted in -the following statement of Objectives and Standards for
Surf City.
-Objective: It is to -be the policy of Surf City to encourage continued
development of the Town as a family beach.
Standards: 1. Community services,- including facilities for water supply.
and sewage treatment, road construction and maintenance,
and police and fire protection will be planned for a peak
summer population in 1985 of 6,570 and a year-round
population of 960.
S 7

2.
The development of a variety of commercial recreation and
shopping facilities will be encouraged in the business
district and along the causeway in order both to meet
the demands of vacationing and permanent populations and
to increase employment opportunities for permanent
residents.
3.
The construction of a variety of housing types limited to
Ystbries!from ground.level`(including-single.family, duplex,
;apartment, motel:and condominium) will be encouraged, in
order, to accommodate residents and vacationers with differing
economic resources and needs.
4.
In.order. to meet the demand for increased shopping.Ahd
recreational areas, the Town -will consider annexation of land
needed between the AIWW and US 17.
S.
The Town will approve the establishment of a Chamber of
Commerce to promote the Town as an enjoyable recreation
center.
Objective: It
will be the policy of Surf City to promote that quality of
development which will offer the maximum reasonable enhancement
of
the.natural and economic resources of the Town.
Standards: 1.
The Token will require strict adherence to the zoning ordinance,
the minimum standards of the State building code (with wind-
storm) and will establish ordinances necessary to protect the
esthetic and protective nature of the dune system.
2.
In order to alleviate any possible pollution of estuarine or
ground -waters, the Town will promote -the development of a

regional public sewerage system and will require connection
to the system upon its establishment.
3. In order to maximize the value of the maritime forest, -special
land use regulations such as a Planned Unit Development.
ordinance will be enacted for the forested parts of the Town.
4. The Town will seek -assistance in defining the historic value
of observation towers left from military activities and in
developing one tower into an historic museum.
5. In order to alleviate traffic congestion and hazards, the
N. C. Department of Transportation and the Corps of Engineers
will be requested to establish regular intervals for opening ,
the drawbridge.
6. .Parking. -areas will -.be established along cross -island street
rights -of -way and parking will be prohibited along NC 50.
Objective: It will be the policy of Surf City to promote the safe and enjoyable
utilization of the Town's recreational resources.
Standards: 1. The Town favors establishment of a balanced recreational program
for residents and vacationers. In order to promote recrea-
tional use of its waterways, the Town will seek development of
boat launching ramps and a marina along the causeway. Other
'recreation needs will be met as feasible by developing a
municipal park complex and an active recreation service program.:
2. The use of motorized vehicles on the beach strand will be
regulated by ordinance; the crossing of dunes by motor
vehicles will be restricted to a specially constructed'ramp.
3. Efforts will be made in road alignment and construction

to accommodate safe bicycle and pedestrian traffic
particularly in the vicinity of recreation facilities.
4. The Town will make efforts to reduce the incidence of
beach litter and will establish a beach clean-up program.
S. It will .be a function of the Town.to ensure that reasonable
access to the ocean and sound waters of the Town be
available to the public. The developers of new subdivisions.
will provide rights -of -way and adequate structural access to
adjacent watercourses. Such structures and rights -of —way when
acceptableto the -Town, will. thereafter be maintained by the
Town, and designated its public accessways by appropriate
signs.* When the number of accessways becomes adequate to,
serve the public, public access will be restricted to those
designated areas.

C�

INTRODUCTION
Section I of the Land Use Plan describes physical characteristics
of the land and water in Surf City and specific areas of the Town in which
many kinds of development would be either especially costly or likely to
cause -undesirable consequences. Some of these characteristics, such as
the soils' high water table, susceptibility to flooding and low bearing
strength, constrain development primarily because of the high costs in-
volved in adapting the land for use. In'many parts of the Town, intensive
development, as for urban, transportation or recreational use, would not -
necessarily endanger the inherent value of the resource, but would require
excessive public or private expenditures -for construction, maintaining
acCeSs, disposing of waste products, or assuring adequate drainage.
In some parts of the Town, however, the undesirable consequences
that could result from uncontrolled or inappropriate development are not
limited to monetary costs. In particularly valuable or fragile areas,
misuse of the land or water can cause degradation of a site's biological,
visual, or economic resource value.- In particularly hazardous areas, poorly
located, designed or constructed development can increase the risk of
property loss or endanger the health and safety of people using it.
The Surf City Objectives and Standards cite the land use policies
which will be used to guide the location and quality of development in the
future in order to protect and manage the Town's resources and reduce
service costs to municipal government. Private citizens are encouraged to .
solicit the professional advice offered by county, state, and federal land
management agencies on methods of reducing private costs of land use. But
for the particularly fragile and hazardous areas of the Town, stricter
G1.

control of land use activities is necessary in order to assure that
development proceeds in a manner consistent with the capability of the
land and water to sustain it. In these areas,'designated Areas of
Environmental Concern, the Town is establishing specific standards for
use and development of each area category.
Ultimately, as required by the 1974 N. C. Coastal Area Management
Act, the N. C. Coastal Resources Commission (CRC) will designate Areas of
Environmental Concern throughout the coastal counties and will designate
a permit letting authority to regulate land use within these areas. The
following categories and standards are to serve both as guidelines for Town
Plah itdpiementation and as recommendations to the CRC for consideration as
State Areas of Environmental Concern.
The Estuarine System
The estuarine waters, marshes -and mudflats, as defined by G. S.
113-229 and G. S. 113-230, are of primary -importance to the Town and the
North Carolina coastal area because of their economic, scenic and recrea-
tional resource value. The tidal marshes and surrounding estuarine waters
cover extensive areas of the municipal jurisdiction; serving as a primary
food source for numerous fish and shellfish species, they contribute tre-
mendously to the biological productivity of the area. As a scenic resource,
the marshes are unsurpassed, supporting a diversity of waterfowl and subtle
vegetation patterns characteristic of the coastal area. The waterways function
as transportation corridors for commercial and sport boating activities and
provide for hunting and fishing of a variety of wildlife.
The authority for regulating the use and modification of the
estuarine resources has for a number of years rested with state and federal
.�2
(03

permit letting agencies. But until recently, 'the degree of regulation
exercised was slight and the criteria for permit letting did not include
consideration of the ecological balance of the estuarine system. Approvals
for marshland dredging and filling were often as not a mere formality and
sometimes granted after the fact. The increasing awareness of the damage
caused by these activities, however, has resulted in much stricter review
now of permit applications.
The people of Pender County recognize the importance of the
estuarine system -and accept the regulation of its use and development as
a necessity. Many in the immediate coastal area, however, are now being
-denied permits to maintain existing access canals. Because of.■iltation
.0
in both natural and artificial channels, access from the island out into .
the AIWW is severely limited; thus the use of some of the recreational
resources people moved to the area to enjoy is impaired. For this reason,
the Town will work with state and federal authorities in managing and, where
necessary, preserving the natural state of the estuarine system, but will
seek to have established and maintained sufficient public navigational
channels to allow reasonable use and enjoyment of its water.resources.
The only kinds of new development that can conceivably be
justified in the estuary are those that require water access and cannot
function anywhere else. Piers, docks and marinas, for instance, connecting
water -oriented with upland activities, may be considered appropriate if their -
need in the area can be demonstrated and their specific location and design
can be shown to:be the most suitable alternative. The Town recognizes,
however, that while a pier or dock itself does not necessarily cause
degradation of the productivity of the estuary, the activities involved in

constructing it may. For that reason, the highest reasonable standards of
construction will.be required for any construction in the area.
Beach-Foredune System
The Atlantic shoreline of Surf City is characterized by wide
and sandy beaches, backed by a moderately high foredune. The beaches are
the primary attraction of the outer banks for the residents and thousands
vacationers who visit in the summer. The foredunes are a valuable scenic
attraction and a buffer to the erosive effects of storm -induced wind and
waves. The dynamic-nature'of the beach-foredune complex, however,
precludes safe structural development on it since that development and
the construction activities involved endanger both the scenic and pro-
.
tective value of the resource and the roads and building situated inland.
Because, however, of the recreational use of the beaches and the
necessity for adequate access to them,.allowances will be made for the
provision of structural accessways.across the dune provided that utmost
care is exercised in their location and construction to prevent damage to
the dune and the vegetation growing on it. Allowances will also be made
for the erection of safety facilities such as lifeguard chairs, and for
necessarily water -oriented recreational structures such as fishing piers.
Hazard Areas
The estuarine system, ocean beaches and sand dunes, though
inseparable from the rest of the Town, have been addressed separately be-
cause of their particularly fragile nature and high resource value. But the
municipal jurisdiction as a whole is an area of environmental concern because
of the importance of protecting the health, safety and rights'of the people
who live, visit and own property there.

The North Carolina outer banks, as a.marketable piece of real
estate, is the most valuable area of the coast, sought after for second
homes, residences and vacation sites, and for business enterprises to .
support these uses. But the outer banks as a geologic feature is a
dynamic, perhaps transient, land form. The same forces of wind, water
and time which caused the creation of the banks' various features con-
stantly modify these features.both in location and extent. Problems
are encountered when the man-made structures developed to accommodate
their use and enjoyment are built to be static and permanent despite
their location:in an ever -changing environment.
.Excessive Erosion Areas
The only realistic compromise between expensive, fruitless
combat with the forces of nature and complete surrender to their supremacy,
is development of only the more stable parts of the whole in a manner which
those parts can accommodate. For that reason, any new development in the
particularly hazardous area of the. Town will be strongly discouraged.and,
unless demonstrated to be directly in the public interest, will not be
supported by public funds. In particular, oceanfront property with a high
probability of incurring excessive erosion is an unsuitable location for
the placement of structures used for housing, institutional purposes,
transportation or commerce, and is considered of too high a risk to warrant
public investments into roads, sewer and water lines and other such
facilities.
Because of limited data and some inconsistencies in available
data, the inland extent of areas subject to excessive erosion'in Surf
[oG

City is unknown. For that reason, only a dynamic zone (referred to on AEC
map as Ocean Erodible) can be established at this time to warn prospective
buyers of oceanfront -property of its hazardous location: All construc-
tion in'this dynamic zone will be required to meet at least the minimum
standards of the North Carolina Building Code and conform to the standards..
of the Federal Insurance Administration for coastal -high hazard areas.
Coastal.'Flood Plains
Virtually all of the county's outer banks and some of the
adjacent mainland are within a U. S. G. S, designated Flood Prone Area,
susceptible to inundation during severe storms. However, in order to
--reduce both flood.insurance, all construction in coastal flood prone areas
wild be required to meet the:Federal Insurance Administration standards for
coastal high hazard areas.
Public Trust Areas
Surf City supports the traditional public rights of access to
and use of lands and waters designated Public Trust Areas for purposes in-
cluding navigation, fishing and recreation. The Town both supports and
encourages the development of commercial recreation facilities, especially
those that promote the use and enjoyment of its waterways. But to the degree
authorized by statute, the Town will require some provision for public access
in new subdivisions in Public Trust Areas and will prohibit any develop-
ment which unduly restricts public access to and use of these areas..
It is obvious from the outset that protection of Areas of
Environmental Concern in the Town cannot be accomplished without some
consideration of land uses in areas immediately adjacent. The estuarine
system along the Surf City coast, for instance, is.only part of the system
67

L �S _ ,
. ��

THE DEMAND FOR LAND
The 1975 Surf City peak seasonal population was estimated to be 5,424;
the year-round population was 729. The growth goal for the future calls
for an ultimate peak population of 7,700 in 2000 with 1.,200 permanent
residents. The peak population expected to be reached in 1985 is 6,570 with
960 permanent residents.
Factors Influencina Growth
Projections for continued growth in Surf City over the next 25 years
are based heavily on the rate of growth the town has.incurred over the:
last 20 years. That growth, especially of seasonal population, resulted
at least partially from nationwide affluence and increased disposable
income. The -long-term effects the current economic recession and the
rising price of gasoline will have on the town's future development cannot
be predicted at this time. An island -wide Chamber of Commerce has been
established to attract tourists'to the area; but it can be assumed that'
the general economic slowdown will.at least temporarily continue to affect
second home building and tourism in Surf City.
Surf City is not located in close enough proximity (by existing road
mileage) to metropolitan growth centers to be strongly susceptible to
suburban spillover in the near future; but the island's northern bridge
in Onslow County.links Surf City, if only loosely, with growth in the.
Jacksonville area. What is more, Pender County has initiated an economic
development program which could promote more permanent residential develop-
ment in the town,if employment centers were developed nearby. The completion
of the Penslow Health Clinic in Holly Ridge could encourage permanent
location of more families and retired persons.
son*

The primary limiting factor for continued growth in Surf City relates
to the availability of sewage disposal facilities. The soils of the
island have severe limitations for septic tanks which are currently the
only method of sewage disposal utilized in the town. Shellfish waters
adjacent to high density development in Surf City have been closed to
harvesting, and ground water supplies in the -area are contaminated from
subsurface wastewater disposal systems' malfunctioning in supersaturated
soils. Some of the problems can be attributed to sources of pollution
outside Surf City, and there are parts of the town either undeveloped.
or developed at such low densities that they are not considered sources
of pollution at this time.
tome of the major pollution problems occur where marshland was
filled to.accommodate residential development; the compaction of under-
lying soils created a layer of soil virtually -impervious to the downward
flow of water, including septic.tank effluent. With downward flow
impeded, effluent flowed laterally, draining almost directly into
estuarine waters.
The major pollution problems are located in or adjacent to the most
densely developed parts of the island, which are also the parts of the
island furthest from an inlet. An inlet's strong water -circulation patterns
tend to diffuse contaminants and promote faster biological reduction;
toward the center of the island, water circulation.is reduced, allowing
contaminants to build up beyond the water's inherent ability to reduce
them.
With the above factors taken into account, it is conceivable, if
not probable, that if the existing population of the area were distributed
more sparsely on soils more suited for development using properly
e7O

extending northward into Onslow County and southward into Topsail Beach.
Surf City's regulatory authority to prevent pollution and siltation can
be extended only throughout its political jurisdiction. Circulation
patterns in the water that transports silt and pollution, however, function
without regard to political boundaries.
Plate 2 delineates the approximate. -location of various categories
of municipally designated Areas of Environmental Concern. It must be'
emphasized, however, that these delineations are not sufficient for most
regulatory purposes because of the necessarily small.map.scale and because,
in most cases, on -site evaluations will be necessary in order to determine
the precise boundary.of a particular category of land or water. But the
Town encourages anyone involved in or contemplating a change in land use
in the Town to use this map as a guideline for interpreting municipal and
state policy and for predicting the possible effect of public policy on
particular parcels of land.

THE DEMAND FOR LAND
The 1975 Surf City peak seasonal population was estimated to be 5,424;
the year-round population was 729.' The growth goal for the future calls
for an ultimate peak population of"7,700 in 2000 with 1,200 permanent
residents. The peak population expected to be reached in 1985"is 6,570.with
' 96d'permanent.residents.
Faqtdrs Influencing Growth
Projections for continued growth in Surf City over the next 25-years
are based heavily on the rate of growth the town has incurred over the
last 20 years. That growth, especially of seasonal population, resulted
at .least"partially from nationwide affluence and increased disposable
income. The long-term effects the current economic recession and the_
rising price of gasoline will have on the town's future development cannot
be predicted at this time. An island -wide Chamber of Commerce has been
established to attract tourists to the area; but it can be assumed that,
the general economic slowdown will.at least temporarily continue to affect
second home building and tourism in Surf City.
Surf City is not located in close enough proximity (by existing road
mileage) to metropolitan growth centers to be strongly susceptible to
suburban spillover in the near future; but the island's northern bridge
in Onslow County links Surf City, if only loosely, with growth in the
Jacksonville area. What is more, Pender County has initiated an economic
development program which could promote more permanent residential develop
- ment in the town.if employment centers were developed nearby. The completion
of the Penslow Health Clinic in Holly Ridge could encourage permanent.
location of more families and retired persons.
-7�

The primary limiting factor for continued growth in Surf City relates
to the availability of sewage disposal facilities. The soils of the
island have severe limitations for septic tanks which are currently the
only method of sewage disposal utilized in the town. Shellfish waters
adjacent to high density development in Surf City have -been closed to.
harvesting, and ground water supplies in the area are contaminated from
subsurface wastewater disposal systems' malfunctioning -in supersaturated
soils. Some of the problems can be attributed to sources of pollution
outside Surf City, and there are parts of the town either -.undeveloped
or developed at such low densities that they are not considered sources
of pollution at this time.
Some of the major pollution problems occur where marshland was
filled to accommodate residential development; the compaction of under-
lying soils created a layer of soil virtually impervious to the downward
flow of water, including septic tank effluent. With downward flow
impeded, effluent.flowed laterally, draining almost directly into
estuarine waters.
The major pollution problems are located in or adjacent to: the most
densely developed parts of the island, which are also the parts of the
island furthest from an inlet. An inlet's strong water circulation patterns
tend to diffuse contaminants and promote faster biological reduction, -
toward the center of the island, water circulation is reduced, allowing`
contaminants to build up beyond the water's inherent ability to reduce
them.
With the above factors taken into account, it is conceivable, if
not probable, that if the existing population of the area were.distributed
more sparsely on soils more suited for development using properly
n,swag

installed and maintained septic tanks, the current pollution problems
could have been avoided. The year-round population of the town (as well
as the rest of the island) is low; peak seasonal use of the area is
short. For these -reasons, it -is also possible that some additional growth
held -to sufficiently low densities in parts of the.town could safely be
accommodated with.properly installed and maintained septic tanks.
The total amount of residential and commercial land use which could
be distributed throughout Surf City and safely accommodated by septic
tanks cannot realistically be determined at this time. In some parts of
-the town development already exceeds the.capacity.of the.land and water
resources to support it; remedies for the pollution 'in these areas have
yet to be found. It can be assumed, however, -that some of the anticipated
growth could be accommodated in other parts of the town without causing
further degradation of the quality of ground or surface waters, or ex-
tending.the pollution beyond its present location. For these reasons, any
increase in population in some parts of the town may temporarily have to be
curtailed; in the rest of the town the density of development.will have to
be strictly controlled. Eventually, however, failure to find means to
install an.adequate sewerage system could not only delay but perhaps pro-
hibit the rest of the growth which has been projected.
Accommodating Future Growth
Residential Land
The projected population -increase by 1985 consists of both permanent
residents and vacationers. There are currently (1975) 16 motels in the
town with a total of 206 units. Housing is in the'form of single family
detached dwellings (50 percent), multifamily structures such as apartments
7S'

and duplexes (12 percent), and mobile homes (38 percent). In order to
accommodate residents and vacationers with differing financial resources
and needs, construction of a larger variety of housing types including
condominiums will be encouraged. However, in order to remain within the
capacityof firefighting equipment and to prevent one structure's blocking
the view of another, the height of buildings will be limited to three
stories from the ground level.
Approximately 86 percent of the 1975 peak summer population was housed
in the (1113) non -motel units. Assuming that that percentage willremain
constant in the future,_there-should be a demand for enough housing to
accommod&te approximately 5,650 people in 1985. At an average occupancy
rate of 4.2 persons per.unit, approximately 235 new housing units would
be required.
There are 355 acres of developable land in the town zoned for resi-
dential use; of these 355 acres, approximately 230.are now actually in
residential or other use, i.e., have structures on them. There are,
therefore; approximately 125 acres of residential land in the town available
for future development.
There are numerous lots which have not yet been built upon in existing
residential subdivisions; but neither the total number of these lots re-
maining nor the number of them that have already been sold to prospective.
homebuilders is known. It can be assumed that.the Zoning Ordinance's mini-
mum lot size requirementa would allow for many of the additional residential
aminimum lot sizes vary -..from 800 ft2/dwelling unit for 12 family structures
to 5000 ft2/dwelling unit for single family structures depending on the
residential district; there are no minimum lot sizes for mobile homes in
mobile home parks.
-76

units to be constructed within existing subdivisions; but no reliable.
estimate of the number of units that could be constructed in any particular
subdivision has been made at this time, since some subdivisions have deed
restrictions attached to them with minimum lot size requirements which
exceed those of -the zoning Ordinance.
The largest parcels of undeveloped residential land in Surf City
are located in the maritime forest. The future development of the forest -
land is of particular concern to the townspeople because of the.forest's
special scenic value and its potential for high quality development. The
town's zoning regulations were established partially for the purpose of
regulating density so as to prevent the overcrowding of land and to
facilitate adequate provision of.public services. The traditional forms
of regulation, though potentially effective means for limiting density,
and assuring that certain standards of quality are met, allow little
flexibility in the design of subdivisions and tend to promote grid road
patterns. For this reason, the town will attempt to amend its zoning and
enact subdivision regulations to allow for Planned Unit Development (PM)a in
undeveloped parts of. -town. -Overall density.:under PUD or other sub-
division regulations will probably be lower than is now provided for. in
the zoning regulations; but the clustering of housing, more creative road
alignment, common open spaces -and the like will be encouraged in order
to retain the maximum value of the forest and dune lands. The allowance
of clustered housing in the future could also facilitate more economic
installation of "package" sewage disposal systems, should such systems
become necessary.
aPUD is a method of controlling land use that is designed to work on a
project by project basis; adjusting rigid regulations to the needs of a
proposed development when such adjustment would be in the mutual interest
of the town and developer.
3VU+5
r�

Commercial and Public Institutional Land
While the existing motel units represent 16 percent of the total
number of residential units, they accommodate, on the average, only 14
percent of the peak summer population. Assuming that that percentage.
too, will remain constant in the future, there should be a demand in 1985
for enough motel units to accommodate 920 people. At an average oc-
cupancy rate of 3.6 persons per unit, approximately 48 new motel units
will be required.
It has not been determined at this time how much of the 181 acres
(34 percent of the total developable land in the town) zoned for commer
cial.uses is built upon to its fullest extent and how much remains'
developable. From aerial photography and ground workthe number of
business and public buildings (57 in 1975) can be counted. The amount of
that land surrounding buildings that is already being used for business
purposes (for parking, solid waste disposal, advertising, etc.), as
opposed to the amount on which additional commercial structures could be
built, however, has not yet been determined. There are no minimum lot or
yard size requirements for commercial structures from which to estimate
the "developed" status of land.
The town's property owners have stated a desire for more shopping
facilities in the future. What is more, Surf City functions as the
major shopping area on Topsail Island, with the island's only shopping
center, bank, hardware store, gas station and the.like. Some increase in
commercial activity is being encouraged in the Onslow County portion of .
the island, but Topsail Beach's reliance on Surf City's commercial facilities
will probably continue in the future.
7 cS�
r

The demand for increased shopping and commercial recreation facilities
in the future probably involves a demand for more land. Because of the
high demand on immediate beach area -land for private and commercial housing
and recreational use, the town is considering annexation of additional
land west of the AIWW to supply the demand for general shopping areas. In
order to determine the kinds of businesses to encourage to locate and,
the amount of land their location will require, the town will initiate in'
the future a commercial need study. The study will assess, as the same
time, the need for additional governmental and institutional land; in par-
ticular,.the town is seeking development of.municipal government complex
to house municipal offices and service facilities as appropriate. (A
location for the planned sewage treatment facility has not yet been pro-
posed but would likely.be*in the Surf City area.)
Public Recreational Land
The people of Surf City recognize the need for some publicly -owned and
operated recreational areas, with adequate parking, sanitation and safety
facilities. The high cost of beach area land, however, will limit.the
amount which the town will be able to purchase. In order to promote
recreational use of its waterways, the town will seek development of boat
launching ramps and a marina along the causeway. The town will coordinate.
its promotion of waterway recreational development with county efforts to
maintain adequate access canals and to establish boat launching ramps on
the mainland. The town will encourage the development of commercial
recreation facilities to complement and support whatever public facilities
can be established.
There are numerous'structures in the town remaining from former
military use of the island. Since the island was the forerunner to the

missile and rocket program relocated at Cape Kennedy, many of these
structures may have historical significance. The town will seek assist-
ance from the N. C. Department of Archives and History in defining the
historic value of these structures and will study the feasibility of
incorporating some of these structures, in particular an observation tower,
into a municipal park complex.

LAND CLASSIFICATION SYSTEM
The North Carolina Land Policy Council has established a Land
Classification System for localities to use to identify the most appro-
priate general uses of various kinds of land. The town's Land
Classification Map (LCM) produced from the classification system will
serve as a local government tool for informing state and federal authorities,
as well as local residents and property owners, on where and at what
density growth is desired, and of areas for which new or amended land use
regulations will soon be established.
The Land Classification System categories would perhaps be more
applicable to more urbanized places with more diverse land uses than Surf
City. Moreover, the system was established.to deal with projected in
creases in permanent population-, rather than seasonal population which in
Surf City is much higher. The population density needed to warrant the
"Developed" or "Transitional" category, for instance, though applicable for
the summer season, exceeds the highest densities found in the town in
winter. Strict application of the defined criteria for each category,
therefore, is impossible; but the system, when adapted to the town's needs,.
can be used for its intended purpose.
The Land Classification System includes the following five categories
of land:
1. Developed - Lands where existing population density is moderate
to high and where there is a variety of land uses which have the
necessary public services.
2. Transitional - Lands where local government plans to accommodate
moderate to high density development during the following ten-
year period and where necessary public services will be provided
to accommodate that growth.
c�T(

3. Community - Lands where low density development is grouped in
existing settlements or will occur in such settlements during the
following ten-year period and will not require extensive public
services now or in the future.
4. Rural- Lands whose highest use if for agriculture, forestry,
mining, water supply, etc., based on their natural resource Po-
tential. Also, lands for future needs not currently recognized.
5. Conservation - Fragile, hazardous, and other lands necessary to
maintain a healthy natural environment and necessary to provide
for the public health, safety, and welfare.
The two categories of land most applicable to Surf City are Transitional
and Conservation. The Conservation class includes the estuarine areas of
the town and the beaches and foredunes; the Conservation designation..'
indicates the municipal policy determination that services, including water
and sewer lines and paved streets,• will not be extended -into Conservation
areas.
a
The Transitional class covers the remaining parts of the town where
densities in the future are likely to necessitate public service extension,
and appropriate development will be supported as necessary.by public funds.
Obviously, the key to the designation of this part of the town as Transitional
lies in the assumption that public sewerage facilities will be available.
Failure to obtain such.facilities in the future may necessitate redesignation
of the area as Community, with revision of land use ordinances to require
sufficiently low densities that public sewerage will not be necessary.
aAnywhere, however, that these services have already been extended into
Conservation areas they may remain.

SECTION V
PLAN ADOPTION AND IMPLEMENTATION
,S:'-�3

PLAN ADOPTION
As authorized by the Town Board of Commissioners, the Surf City Land
Use Plan was prepared by the Town with technical assistance provided by
Coastal Zone Resources Corporation. Current economic, social, and en-
vironmental -conditions in the town were assessed; the major land use issues
were addressed; and alternative policy -measures which could be used to
solve existing and deter potential problems were studied. During this
process, public opinion was solicited, obtained and evaluated, and used
as a primary determinant of future objectives, standards and policies.
In order -to -ensure that the Surf City Plan would be compatible with
provisions and policies of the Pender County Plan, activities of the re-
spective planning groups were coordinated. The agenda for town planning
meetings often included reports of planning progress in adjacent Topsail
Beach and the county. On May 20,-1975, a meeting of elected officials
and Planning Board members from each planning jurisdiction in the county
was held in Burgaw to discuss mutual problems encountered. On October 30,
1975, a'joint county -municipal Planning meeting was held in Burgaw in
order for each jurisdiction to present to the others planning progress to
date. On June 10, 1975, a meeting sponsored jointly by Onslow County,
Surf City, and Topsail Beach was held in Surf City to coordinate 201 Plan
and CAMA planning activities in the three jurisdictions. Representatives
of planning firms involved and of the Cape Fear Council of Governments
were in attendance at each of -the three meetings.
The preliminary draft of the Land Use Plan, including recommended
policies, was submitted in January 1975 to the Town Commissioners for review.
The elected officials discussed at length the issues involved and their
implications for future growth and land use in the town. 'From this review

session and further studies of alternatives, the proposed plan and policies
for future development of the town were developed.
In order that the essential elements of the Plan, including its land
use policies, objectives and standards, be available to all interested
persons, a Synopsis of the Plan is being prepared. The Synopsis will in-
clude the Land Classification Map and examples of the Existing Land Use
delineations, with an explanation of how additional information can be
obtained upon request.
The sequence of events yet to come, before final adoption and
implementation of the Plan, includes:
1. Municipal Public Hearing -- On May 9, 1976, the Town of Surf City
will hold a public hearing in order to receive comments from
residents and property owners on the proposed Land Use Plan and
Synopsis. --Comments and suggestions made in the public hearing
will be carefully reviewed; necessary changes in the Plan and
Synopsis will be made before their formal adoption by the town.
2. Joint City/County Public Hearing -- On May 10, 1976, a joint
public hearing, in which the.Pender County and all municipal
plans will be presented and comments on them received, will be
held in Burgaw. The purpose of the joint hearing is to assure
compatibility among the various plans compiled within the county.
3. Transmission to the Coastal Resources Commission -- By May 21,
1976, a -certified copy of the Adopted Plan will be sent to the
Coastal'Resources Commission for its review and approval.
At least 30 days before the town's public hearing, a copy of the
completed Plan with maps will be placed in the Town Hall and .the County

Courthouse for public review and inspection. Notice of both public
hearings and of the availability of the Plan for review will be made in
newspapers distributed locally.
Following adoption of the Plan and its approval by -the Coastal
Resources Commission, copies of the full Plan will be available for study
in the Town Hall and County Courthouse. Copies of the Plan and/or of any
of its maps can be obtained.from the Town Hall, at cost, upon written
request. The Synopsis.will be mailed to all recorded -property owners of the
Town; additional copies of the Synopsis will be made available free of
charge upon written request.
oo

PLAN IMPLEMENTATION
The second phase of the CAMA planning process involves implementation
of the Land Use Plan. The town's adoption of its Plan constitutes a
formal declaration of land use policies; but many of the standards -pro-
posed for meeting objectives require either some revision of existing town
ordinances or enactment of new ordinances in order to become effective.
Related planning activities, as for a parks and recreation program, are
also involved in plan implementation
The major elements of the implementation phase of.the Land Use Planning
process in Surf City are summarized as follows:
Revision and -Enactment -of Town Ordinances
In order to carry out policy objectives, some revision ofthe town's.
Zoning Ordinance and Building Code will be necessary. In addition, sub-
division and septic tank regulations and a sand dune protection ordinance
will be enacted. Specifically, provisions will be made for:
1. effectively regulating the density of development,
2. allowing a larger variety of subdivision designs including
Planned Unit Development,
3.. assuring that all construction will meet applicable Federal
Insurance Administration standards,
4. assuring that development and construction -activities will minimize
damage to the town's natural and scenic resources,
S.. establishing a method of advising prospective property buyers of
the municipal policy of service provision to hazard areas and
Conservation lands,
6. requiring connection to the town's water system (and sewer system
if installed),-

7. .assuring provision of adequate structural accessways to Public
Trust areas,
8. regulating the use of motor vehicles in the beach strand, and
9. restricting public parking to designated areas.
Coordination of Permit -Letting Authorities
The 1974 Coastal Area Management Act provides for local permit -letting
agencies to be established for minor.developmenta permits required in Areas
of Environmental Concern (AFC's). In order to qualify for AEC permit -
letting authority, a local jurisdiction must first declare its intent, then
prepare a Local Management Plan acceptable to the Coastal Resources,
Commission (CRC). The CRC is currently establishing criteria for local
implementation and enforcement programs including elements that will be
required for approval of a Local Management Plan.
The CRC emphasizes the value of coordinating the activities of various
r
local regulatory authorities, such as building and septic tank inspections,
subdivision plat approvals, and sedimentation and erosion control program
approvals, with the AEC minor development permit -letting authority. Such
coordination could simplify the permit -letting process for both the juris
diction and applicants involved and could reduce local governments costs
of. reviewing various kinds of applications. The CRC criteria being
developed will also allow for City -County coordinated permit -letting
aThe term: "Minor Development" means any development other than a major
development. The.statutory definition of Major Development is "any
development which requires permission, licensing, approval, certification
or authorization in 'any form from the Environmental Management Commission,
the Health Services Commission, the State Departments of Natural and
Economic Resources or Conservation and Development, the State Department
of Administration, the North Carolina Mining Commission, the North Carolina
Pesticides Board, or the North Carolina Sedimentation Control Commission;
or which occupies a land or water area in excess of 20 acres; or which
contemplates drilling for or excavating natural -resources on land or under
water; or which occupies on a single parcel a.structure or structures in
excess of a ground area of 60,000 square feet."
VT5

authorities.
Therefore, part of the implementation phase of planning in Surf City
will be development of the aforementioned Local Management Plan.
Related Planning Activities
As called for in the Objectives and Standards of the Plan,. the Town
will study the feasibility of establishing a municipal park and recreation
program and municipal office complex, of developing bicycle lands es-
pecially in the vicinity of recreation facilities, and of annexing
additional land west of the AIWW.
The town will augment its efforts (201 Plan) to have a regional sewage
disposal facility established and to.obtain adequate outside funding to
alleviate excessive costs to the town and property owners.
Section 208 of the Federal Water Pollution Control Act Amendments of
1972 (PL 92-500), as well as other sections of this law, -is designed to
achieve water quality which "provides for the protection and propagation of -
fish, shellfish, and wildlife and provides for recreation in and on the
water" by July 1, 1983. Section 208, more specifically, is designed to
plan ways to reduce all types of pollution in specially designated areas to
the 1983 level and to set up a management agency to guarantee achievement
and maintenance of the 1983 water quality level. .Areas in North Carolina
having complex water quality control problems have been designated by the
Governor as priority-208 Planning Areas.
The Pender County coastal area was included in the Governor's designa-.
tions. Participation in the 208 Planning program,with adequate federal
funds appropriated to the program, could allow Surf City a means for
studying its water quality situation in conjunction with plans for the

REFERENCES CITED
Knowles, C. E., Jay Langfelder and Richard McDonald. 1973. A preliminary
study of storm -induced beach erosion for North Carolina. Center for
Marine and Coastal Studies Report No. 73-5. North Carolina State
University.
Laymon, Leland L. 1965. Ground -water exploration at Surf City, North
Carolina. N. C. Dept. of Water Resources Ground -Water Circular
No. 7. Raleigh, N. C. 14 pp.
N. C. Coastal Resources Commission. 1975. State guidelines for local
planning in the coastal area under the coastal area management act
of 1974. N. C. Coastal Resources Commission. Raleigh, N. C. 72 pp..
U. S.-Army Corps -of Engineers.- 1965. Bogue Inlet to Moore Inlet, North
Carolina -- Interim survey report of hurricane protection. U..S.
Army Engineer District. .Wilmington, N. C.
U. S. Department of Commerce. 1973. U. S. Census of population 1970 --
characteristics of the population — North Carolina. U: S.
Government Printing -Office. Washington, D.C.
Wahls, H. E. 1973. A survey of North Carolina.beach erosion by air photo
methods. Center for Marine and Coastal Studies.Report No...73-1
North Carolina State University. Raleigh, N. C. 31 pp.
Wiggins -Rimer and Associates, Inc. 1973. Inventory of facilities
regional water supply and wastewater disposal study. Cape Fear.
Council of Governments.. Wilmington, N. C.

.APPENDIX A. PUBLIC PARTICIPATION PROGRAM.
The Surf City Planning Board, with the concurrence and support
of Mayor D. E. Medlin and the Board of Town Commissioners, actively sought
and utilized public views in preparing the.land use plan. The planning
process was open to all persons with an interest in Surf City.
The Public Participation program consisted of:
1) Appointing a Planning Board and an Advisory Committee
representing the interests of the community. The Planning
Board members are:
Herbert Williams, Chairman Realtor
Lewis Williamson Pier operator
George Thomas, Jr. Tackleshop operator
The Advisory Committee members are:
(Mrs. Donald) Helms
Alva Ward
Roland Batts, Jr.
D. C. Lanier -
Clifton Howard.
2) Conducting public information meetings.
A public information meeting, open to all property owners in
Surf City, was held on May .7, 1975.
On June 10, 1975, Surf City, Topsail Beach and Onslow County
jointly sponsored a public meeting on Topsail Island for the presentation and
discussion of alternative growth and development models. The meeting

offered a unique opportunity for the public to choose a future population
in keeping with their perception of a desirable life style. The descriptive
material distributed at the meeting is part of Appendix B which is devoted
to population forecasts and density of development.
Two public information meetings open to all persons in-
terested in Surf City were sponsored by the Surf City Improvement Association
on May 17, 1975 and September 20, 1975.
3) Distribution of questionnaires and tabulation of responses:.
Significant issues to be addressed in the questionnaire were
drawn from the May 17 public information meeting, the experience of,the
Planning Board and Advisory Committee, and the.requirements of the.CAMA
The issues were framed as questions with multiple option answers. (The
questionnaire is Exhibit A-1.) The questionnaire was reproduced and mailed
by the Town Clerk_to the 815 taxpayers on record;- 208 (26 percent)
questionnaires.were returned. The responses were tabulated by Mrs. Donald
Helms of the Advisory Committee. The raw tabulations and a ranking of
responses are shown as Exhibits A-2 and A-3.

Exhibit A-1.
SURF CITY CITIZENS QUESTIONNAIRE
The Surf City Planning Board and the City Commissioners are preparing
the Coastal Area Management Plan for Surf City. Your Planning Board and
Commissioners are vitally interested in the comments and suggestions you and
other citizens have and are inviting you to become involved in preparing the
plan. Your help will aid us in making a plan for Surf City's future which
is based on your own goals and interests. (`
This questionnaire is the first step in the continuing.process of getting
the citizens involved. You will be kept informed of the progress we are
making and will be invited to other meetings as they are scheduled
Please take the time -to fill out this brief questionnaire and hand it in
at the end of.the meeting or mail it to:
Herbert Williams
P. O. Box 566
Surf City, N. C.
328-8481
1. What do you think are the four major problems in Surf City today?. (Indicate
priority by numbering 1, 2, 3, and 4.)
Lack of housing,'especially during the summer
Poorly constructed housing
Lack of year round employment opportunities
Poor roads and traffic control facilities ._
Lack of good shopping areas
Inadequate educational opportunities
Poor access .to beaches

Lack of public beach areas
Lack of community recreational facilities (parks, golf courses, tennis
courts, boat access points)
Lack of cultural opportunities (drama, cultural arts, etc.)
Problems with septic tanks
Beach erosion
Unsightly development
Flooding or drainage
Inadequate parking.
-Other (explain)
2. What do you think are the four major advantages to living in Surf City today?
(Indicate priority by numbering 1, 2, 3, and 4.)
Good supply of quality housing
Low taxes
Good opportunities for business
Lack of crowded living conditions
Closeness to beaches
Attractiveness of outdoor activities
Good schools
Low cost of.living
Clean air and water .
Tourist support economy
3. In the next 5 to 10 years would you prefer to see the permanent Surf City
population? (Mark one)
Increase rapidly

Increase slowly
Remain the same
Slightly decline
Decline significantly
4. In the next 5 to 10 years, would you like to see the tourist trade and
seasonal residents (as measured by.numbers of'motels, restaurants, camping
areas, recreation areas, and summer homes)to? (Mark one)
Increase rapidly
Increase slowly
Remain the same
Slightly decline
Decline significantly
5. If the permanent and summer populations do increase, would you prefer the
increase to be? (Mark one)
Inside the existing town
In new communities or subdivisions outside existing towns and communities..
6. If the population of Surf City increases, there will be an increase in
pressure for commercial areas. Do you think that this growth should be
regulated? yes, - no. If yes, how
7. What would you like Surf City to be like next year, five years from now,
or 10 years from now?

8. Please make any additional comments or suggestions which would help us to
plan for the future of Surf City.
Thank you
•Herbert Williams
Surf City Planning Board

Exhibit A-2.
TABULATION OF RESPONSES TO TAXPAYER QUESTIONNAIRE.
Question #1: What do you think are the four major problems in Surf City
today? (Indicate Priority by numbering 1, 2, 3, and 4.)
Number
of respondents
ranking
problems:
1st
2nd
3rd
4th
Problem
PRa
NPRb
PR
NPR
PR
NPR
PR
NPR
Lack of housing
10
5
4
2
4
1
12
9
Poor construc-
tion
1
<16
3
13
2
4
3
6
Lack of
employment
6
4
6
9
2
15
6
6
Poor roads
&.traffic
4
3
4
11
12
3
12
Lack of shop-
ping areas
14
11
7
15
7
9
9
13
Education
1.
6
3
2
8
3
Beach access
3
7
4
7
.3
3
11
11
Public beach
2
1'
1
4
3
7
Recreational
facilities
5
3
5
4
13
11
20
Cultural
opportunities
1-
3
Septic;tank
problems
9
11
8
15
2
4
3
3
Beach erosion
1
4
5
7
6
3
6
Unsightly de-
velopment
7
43
9
16
6
9
4
7
Flooding
1
1
8
2
5
Inadequate
parking
1
2
4
1
5
5
6
Note: Other problems
noted
by respondents were:
city government,
beach
litter,
building and
zoning
codes,
inadequate
police
protection,
pollution, and
lack
of medical
services.
b
aPermanent Resident Taxpayer. Non -Resident Taxpayer.
-Boot1�

Exhibit A-2 (Continued)
Question #2: What do you think are the four major advantages to living in
Surf City today? (Indicate priority by numbering 1, 2, 3,
4.)
Number of respondents ranking problems:
Advantage 1st 2nd 3rd 4th
PRa NPRb PR NPR PR NPR PR NPR
Quality housing
supply 2 1
1
2
2
3
1
4
Low taxes 11
2
3
2-
7
4
11
Business
opportunities 11 8
2
4
4
4
16
9
Living conditions 13 27
2
20
3
9
6
13
Beach closeness 20 27
24
43
7
16
8
16
Outdoor activities 2 3
16
7
7
26
6
16
Schools
3
1
1
Low living cost 1 1
7
3
4
5
10
-Clean air & water 4 22
8
16
15
22
15
23
Tourist economy 4 2
5
5
8
5
18
25
Note: Other comments noted by
respondents
were:_.
no,advantagesi-no
answers,
and family oriented.
aPermanent Resident Taxpayer.
bNon-Resident Taxpayer.
Question #3: In the next 5-to
10 years would you
prefer
to see the
permanent
_ Surf City population? ,(Mark
one)
Rate Choice by those
answering the
question
PR
NPR
Total
Increase rapidly 45
38
83
Increase slowly 21
60
81
Remain the same 8
13
21
C0I -APE*

Exhibit A-2 (Continued)
Question #3 (continued)
Rate Choice by those answering the question
PR NPR Total
Slight decline 0 4 4
Significantly decline 2 1 3
Question #4: In the next 5 to 10 years, would you like to see the tourist
trade and seasonal residents (as measured by numbers of
motels, restaurants, camping areas, recreation areas, and
summer homes) to? (Mark one)
Rate Choice by those answering the question -
PR NPR Total
Increase rapidly 52 40 92
Increase slowly 17 72. 89
Remain the same 6 18 24
Slight decline 1 0 1
Significantly decline. 1 3 4
Question #5: If the permanent and summer populations do increase, would you
prefer the increase to be? (Mark one) .
Location Selected by those answering the question
PR NPR Total
Inside existing Town_ 24 52 76
Annexation 46 64 110
Both 9 8 17
��'�[d2

Exhibit A-2 (Continued)
Question #6a: If the population
of Surf City increases,
there will be
` an increase in pressure for commercial areas.
Do you
think this growth
should be regulated?
Choice Selected by those answering
the question
PR
NPR
Total
Yes 66
109
175
No 9
14
23
Question #6b: If yes, how?
Methods Offered
Building code
Zoning ordinances
Planning
Question #7: What would you like Surf City to be like next year, five
years.from now, or
10 years from now:
PR NPR
Total
1. Zoned & Planned Growth
25 45
70
2. Family Oriented
16 49
65
3. Tourist, Resort Area
15 37
52
4. Better Municipal Facilities
a. Recreational
4 24
28
b. Water
5 30
35
c. Sewage
10 9
19
d. Educational
2 0
2
103
.

Exhibit A-2 (Continued)
Question #7 (Continued)
PR
NPR
Total
e. Medical
1
3
.
f. Sanitation
16
36
52
(general cleanup)
g. Police
3
3
5.
Population Size
a. Double
2
2
b. Triple
11
11
C. Myrtle Beach
4
1
5
d. Boom
6
2 _
8 -
e. Wrightsville Beach
1
1
2
6.
Miscellaneous .
a. Better Shopping Area
10
11
21
b. Preserve Natural Environment
'.1
5
6
c. No Amusement Areas
(Commercial)
4
4
8
d. Stop Beach Traffic
2
2
e. Growth
2
2
Question #8: Please make any additional comments or suggestions
which
would help us to plan
for the future
of Surf City.
PR
NPR
Total
1.
Better City,Government
15
41
56
2.
Building, Zoning, Planning
Codes
7
38
45
3.
Improved Municipal Facilities
a. Recreation
1. Beach Access
4
7
11
]ice
l d"f

Exhibit A-2 (Continued)
Question #8 (Continued)
PR
NPR
Total
2. Sound Access
2
1
3
3. Tennis Courts,
Bike Trails,
Swimming Pool
3
3
6
b.
Water
6
2
8.
c.
Sewage
9
6
15
d.
Sanitation
1. General Cleanup-Fixup
1
7
8
2. Beach Cleanup
7
10
17
3. Trailer Cleanup-Fixup
6
11
17
e.
Police
5
2
7
f.
Taxation - Equalize &
Collect Delinquent
1
2
3
g.
Roads.
3
3
4. Miscellaneous
a.
Improve Image (overall,
fishing village bad
publicity
7
10
.17
b.
Increase Tourist Trade
2
2
C.
Retain.Present Atmosphere
1
1
d.
Grow
4
4
e.
Public Coastal Hearings
2
2
f.
Encourage Industrial
Development
1
1

Exhibit A-3.
Weighted ranking of problems - Weighted ranking of advantages
316
Unsightly Development
459
Beach Closeness
220
Lack of Shopping Areas
288
Clean Air & Water.
167
Septic Tank Problem
269
Living Conditions
146
Poor Construction
177
Outdoor Activities
113
Beach Access
135
Business Opportunities
106
Lack of Employment
123
Tourist Economy
103
Recreation Facilities
58
Low Living Cost
98
Poor Roads and Traffic
56
Low Taxes
89
Lack of Housing
36
Adequate Housing
70
Beach Erosion
9
Schools
47
Inadequate Parking
46
Education
32
Public Beach
29
Flooding
12
Cultural Opportunities

W
APPENDIX B: POPULATION AND DENSITY
1975 Survey
It became obvious early in the planning process that the limited popula-
tion information available for towns with less than 2500 year-round residents
was inadequate to describe the current population of Surf City. Accurate
counts of both permanent and seasonal residents from which to project future
populations were needed -not only for the land use plan but for 201 facilities
plans and regional Council of Government studies as well.
In June 1975, Coastal Zone Resources Corporation (CZRC), Henry von Oesen and
Associates (von Oesen), and the Cape Fear Council of Governments (COG)
cooperatively formulated a door-to-door survey of Topsail Island. The sur-
vey, a sampling of ten percent of all dwelling units, was conducted by COG
employees between June 23 and June 29, 1975. The questionnaires used to obtain
information are shown as Exhibit B-1 and B-2. Results of the survey in Surf
City, tabulated by CZRC, are shown as Exhibit B-3.
Average summer figures in the tabulated results denote the number of
people found (multiplied by 10) at the time of the survey. Peak summer
figures were derived by allocating to units vacant at the time of the survey
the appropriate number of persons per unit; i.e., peak summer counts assume
full occupancy.

EXHIBIT B-1
NAME OF TOWN
COTTAGES..
SECTION OF DATE
• TOWN
South
Center
North
APPROXIMATE -HOUSE VACANT
TIME OF DAY
A.M.
Afternoon
Evening _ Name of Surveyor
QUESTIONS
i
1'. How many people are in the party presently_ occupying this cottage?
No. of Persons
2. Are you the owner of the cottage or are you renting it?
Own Rent
RENTER
' Are you;a resident of the town 1. Where did you come here from?
year round or are you here on
vacation? i Town, State
Year Round _Vacation 2. Why did you choose this town
for your vacation?
r .
1. What is the size 1. For_ how
of the family many weeks
living here year of the year
round? is the cott-
for rent? ! 3. How long is your intended visit
- here?
J- No. Persons No. Weeks
No. of Days
.2. Are you eye
ployed in the
town?
Yes _No

Exhibit B-3. TABULATED SURVEY RESULTS: SURF CITY POPULATION 1975
Total
Population'
Population
Pccupancy Rates;
Population
Makeup
Distribution
Persons Per Unit
In Motels
1.5
312 (8 0)
vacationers
Average
3038
In Non -motel
Unitsa
4.2
2726 (72%)
Summer
3767
Permanent
In Non -motel
.3.7
Residents
Units
729
729 (19%)

-
Growth Goals
The CRC guidelines emphasize that residents and property owners of
municipal jurisdictions be allowed to voice opinions on what level of
growth they desire. But terms such as "slow growth", "rapid growth",
"low density", and "high density" mean different things to different
people. In order to allow choices of more concrete growth alternatives
to be made, five development models were formulated, with different
ultimate population levels and densities. The models were based on the
following assumptions:
1. Marshes, beaches, and foredunes are not developable.
2. The developable residential land (planimetered from the Towns.
zoning map) could be developed at various densities.
3. The new Division of Health Services septic tank regulations would
allow, on the average, 3 dwelling units per acre for develop-
ment with septic tanks.
4. Development at densities greater than 3 units per acre would
require public sewerage facilities. (Thus, Model .I below relates
the residential population that could conceivably be supported with
continued use of septic tanks). .
5. The population associated with each model depicts the ultimate
population to be achieved - that is, full development. The
desired rate of growth toward full development is not in question
here.
6. Low density = 3 dwelling units (DU's) per acre.
• Medium -low density = 5 DU's per acre
Medium density = 10 DU's per acre
Medium -high density 15 DU's per acre
High density_= 30 DU's per acre

7. -The number of motel units would remain a constant percentage (20
percent) of the total number of dwelling units.
The five development models (shown as Exhibit B-4) were submitted
for public inspection at a meeting sponsored jointly by Onslow County,
Surf City, and Topsail Beach on July 29, 1975a. The importance of the
choice was emphasized, as the choice of ultimate population was to be used
for all future planning in the Town, most immediately for the 201 facilities
plan currently being compiled.
On February 16, 1976, after much discussion and review of the question-
naire returns, the Town Board chose Model III with an ultimate peak population .
of 7,716. The growth goal projects the peak population to occur in the year
2000. For the purpose of planning municipal services, the population pro-
jected for 1985 is 6,570; for 1990, 6,952; and for 1995, 7,334.
s .
aAt the time of this meeting, only preliminary tabulations of the June
survey were available. Final tabulations showed different population
figures which resulted in different,populations associated with each model.
The models themselves and density alternatives submitted in July, however,
are the same as appear in Exhibit B-4, submitted.at subsequent Town
meetings.

Exhibit B-4
SURF CITY
Existing Population
` Peak Seasonal
Non -Motel Residential 4675
Motel 749
Total 5424
Year Round ..729
Existing Land Use*
Residential 355 acres
Commercial 181 acres
Total Developable 536 acres .
Total Developed Residential 230 acres
Total Developable
Residential 125 acres
*From zoning Map
MODEL I
Peak Seasonal Development/Population
.Residential.125 x 3 x 4.2 1575
Motel 375 x .16 x 3.6 = 216
Existing (from above) 4675
Total peak seasonal 6466
Non Seasonal Development/Population
Residential 375 x 3.7 per/unit x .19 = 264
Existing (from above) = 729
Total non -seasonal 993

MODEL II
Peak Seasonal Development/Population
Residential
low density - 125 ac x .75 x 3 un/ac x 4.2
1181
med-low 125 ac.x .25 x 5 un/ac x 4.2
= 656
motels 437 un x .16 x 3.6
= 252
Existing
4675
Total peak seasonal
6764
Non Seasonal Development/Population
Residential
low density 281 x .19 x 3.7
198
med-low 156 x .19 x 3.7
110.
Existing
729
Total non -seasonal
1037.
MODEL III
Peak Seasonal Development/Population
Residential
low density 125 x .5 x'3 x.4.2
= 798
med low 125 x .25 x 5.x 4.2 -
= 656
med 125 x .25 x 10 x 3.9
= 1219
motels, 657 x .16 x 3.6
=. 378
Existing
4675
Total peak seasonal
7716

Non -Seasonal Development/Population
Residential
low density 188 x .19 x 3.7
= 132
4 med=low 156 x .19 x 3.7
- 110
med 313 x .19 x 3.7
_ 220
Existing
729
Total non -seasonal
1191
MODEL IV
Peak Seasonal Development/Population
Residential
low density 125 x .4 x. 4.2.
= 630
med-low 125 x .2 x 5 x 4.2
= 525
med 125 x .2 x 10 x 3.9
= 975
med-high 125 x .2 x 15 x 3.9
_ 1463
-motels 900 x .16 x 3.6
= 518
Existing
4675
Total peak seasonal
8786
Non -Seasonal Development/Population
Residential
low density - 150 x .19 x 3.7
106
med-low 125 x .19 x 3.7
= 88
med .250 x" .19 x 3.7
= 176
med-high 375 x .19 x 3.1
= 221
Existing
729

MODEL V
Peak Seasonal Development/Population
Residential
low density 125 x .3 x 3 x 4.2
= 475
med-low 125 x .2 x 5 x 4.2
= 525
med 125 x .2 x 10 x 3.9
975
med-high 125 x .2 x 15 x 3.9
_ 1463
high 125 x .1 x 30 x 3.6
_ 1350
motels '1238 x .16 x 3.6
= 713
Existing
4675
Total peak seasonal
10176
Non -Seasonal Development/Population
Residential
low density 113 x .19 x 3.7
_. 79
med-low 125 x .19 x 3.7
= 88
med 250 x .19 x 3.7
= 176
med-high""375 x .19 x 3.1
= 221
high 375 x .19 x 2.6
= 185
Existing
729
1478
S

a
L E G E N D
I URBAN and BUILT-UP
II Residential
III Single Family
112 Multiple Family
113 Trailers, Mobile Homes, Campers
114 Undeveloped
1141 Dunes
1142 Maritime Forest
1173 Sandy other than beaches
1176 Transitional
115 Other
12 Commercial and Servicies
121 Retail Stores and Service
122 Entertainment and Recreation
1221 Transient Lodging
LEGEND
-
D DEVELOPED
T TRANSITIONAL
C COMMUNITY
R RURAL
P CONSERVATION
1222 Restaurants, Piers, Marinas
4
FOREST
1223 Apartments
41 Deciduous
123 Trailers, Mobile Homes, Campers
42 Evergreen
124 Undeveloped
5
OPEN WATER
1241 Dunes
51 Streams and Canals
1242 Maritime Forest
52 Lakes
1273 Sandy other than beaches
54 Estuaries and Bays
1276 Transitional
6
WETLAND
125 Other
62 Marsh
13 Transportation, Communications, Utilities
7
BARREN
131 Utilities
72 Beach
132 Transportation
73 Sandy other than beaches
14 Government Institutions
76 Transitional
141 Government Institutions
77 Other
These map segments illustrate EXISTING LAND USE
and LAND CLASSIFICATION maps on an aerial
photograph base of the town at a scale of 1" = 800'.
Interested persons may obtain copies of either or both
maps for the town clerk, Surf City, NC.
`akY
-77 l
EXISTING LAND USE
SURF CITY, N. C.
Jo A
LAND CLASSIFICATION
SURF CITY, N. C.

obtained to assist in development of major service facilities,
4. In order to meet the demand for increased
quired to meet at least the minimum standards of the N. C. Build -
such as sewer and water, and to plan for establishment of
shopping and recreational areas, the Town
ing Code and conform to the standards of the Federal Insurance
others, such as public recreational areas; but currently the
will consider annexation of land needed
Administration for coastal high -hazard areas.
availability of outside funding is uncertain at best. The Town
between the AIWW and U.S. 17.
in the end must manage and operate municipal services; and
5. The Town will approve the establishment of a
management and operation require reliable sources of
Chamber of Commerce to promote the
financial support and professional manpower. New and
Town as an enjoyable recreation center.
improved municipal activities, therefore, will depend on
Public Trust Areas
both the availability of financial assistance and the amount
To the degree authorized by statute, the Town will require
that people are willing to pay to achieve desired goals.
some provision for public access in new developments in Public
3. The existing land use and ownership patterns in Surf City
Trust Areas and will prohibit any developrent which unduly
dictate to a certain extent future land use conditions; as
OBJECTIVE: It will be the policy of Surf City to promote that
restricts public access to and use of these areas.
existing densities, lot sizes, and construction techniques
quality of development which will offer the
were legally approved at the time of their establishment.
maximum reasonable enhancement of the
Hindsight may teach that some public approvals were not
natural and economic resources of the Town.
made in what now seems to be the Town's best interest; but
STANDARDS: 1. The Town will require strict adherence to the
hindsight does not validate retroactive decision -making.
zoning ordinance, the minimum standards
LAND USE PROGRAM
Likewise, public adoption of the existing grid -road and
of the State building code (with windstorm)
waterline pattern, deemed the most cost-effective route to
and will establish ordinances necessary to
The land use program for future development of Surf City can
take at the time, may now be contributing to the
protect the esthetic and protective nature of
be divided into the following three components:
unsightliness of development. New construction, lot sizes,
the dune system.
and building and road locations can be controlled and non-
2. In order to alleviate any possible pollution of
conforming land uses can gradually be decreased over time;
estuarine or ground waters, the Town will
but the visual impact of such changes may well be slow in
promote the development of a regional
appearing.
public sewerage system and will require
1. Land Classification
In the course of the public participation program, numerous
connection to the system upon its establish-
The Surf City Land Classification map defines those areas of
other land use problems surfaced. The drawbridge connecting
ment.
the Town suitable for development (Transitional) and those
the Town to the mainland is located at the center of Town. Traffic
3. In order to maximize the value of the
of a particularly hazardous nature or with special natural and
into and out of Surf City and the adjacent iurisdictions must pass
maritime forest, special land use regulations,
scenic resource value where development could run
through the commercial area in order to reach the bridge. Traffic
such as a Planned Unit Development ordi-
contrary to the goals and objectives of the Town (Conserva-
congestion and hazards are made worse by frequent opening of
nance, will be enacted for the forested parts
tion). Public facilities including water and sewer lines and
the bridge to allow for the passage of boats; on summer
of the Town.
street maintenance operationswill service only those areas of
weekends cars often line up waiting for the bridge to close.
4. The Town will seek assistance in defining the
the jurisdiction within the Transitional area (and areas
Recreation activities, though scattered, tend to concentrate
historic value of observation towers left from
annexed in the future that warrant the Transitional Designa-
toward the center of Town; but there are no sidewalks to
military activities and in developing one
tion). The Land Classification map also defines those areas of
accommodate pedestrian traffic and there are few parking areas
tower into a historic museum.
Transitional land where particular kinds of development (i.e.,
near the beaches. Parking on road shoulders (particularly N. C.
5. In order to alleviate traffic congestion and
Planned Unit Development, recreation, shopping, residen-
50) increases the risk of accidents, with children darting across
hazards, the N. C. Department of Transpor-
tial) will be encouraged.
the road to reach adjacent beaches. The lack of paved shoulders
tation and the Corps of Engineers will be
The Town will aim for the eventual distribution of
limits the feasibility of bicycle traffic, especially during the tourist
requested to establish regular intervals for
population within the Transitional area at the following
season when bicycle use would otherwise be heaviest.
opening the drawbridge.
overall densities:
Access to beaches is a problem for visitors and owners of
6. Parking areas will be established along cross-
Low density (3 units per acre) — 50 percent
inland lots and usually necessitates trespassing by way of paths
island street rights -of -way and parking will
Medium -low density (5 units per acre) — 25 percent
cut through the dunes. Public access is provided on cross -island
be prohibited along N.C. 50.
Medium density (10 units per acre) — 25 percent
street rights -of -way; but rights -of -way are unmarked and, even
The Town will encourage more creative land subdivision
there, no structural pathways are provided. There are no public
techniques, such as clustered housing, but will prohibit the
boat -launching ramps to facilitate use of the waterways, and
erection of high-rise (over 3 stories from ground level)
again, public access is limited and endangers the value of the
structures.
marsh.
OBJECTIVE: It will be the policy of Surf City to promote the
The use of motor vehicles on the beaches is an issue on which
safe and enjoyable utilization of the Town's
the Town's population is divided. Surf fishermen often drive
recreational resources.
along the beach to find the best spots to fish. Their use of the
STANDARDS: 1. The Town favors establishment of a balanced
beach is only a real problem during summer when it conflicts
recreational program for residents and
2. Public Service Provision
with swimming. But to some people, driving along the beach is a
vactioners. In order to promote recrea-
Priorities have been set for new and improved public
recreational activity itself, often accompanied by continued
tional use of its waterways, the Town will
services. The municipal water supply is being analyzed and its
dune crossing to test the ability of a vehicle. For whatever use is
seek development of boat -launching ramps
quality and adequacy for future populations studied; the
involved, there are no ramps for crossing the dune; and severe
and a marina along the causeway. Other
water distribution system will be revamped toward the end
erosion damage can be initiated by resultant destruction of
recreation needs will be met as feasible by
allowing and repairing connection to the public system of all
vegetative covering.
developing a municipal park complex and an
new and existing sanitary facilities. The feasibility of
active recreation service program.
establishing a regional sewerage system is currently under
2. The use of motorized vehicles on the beach
study with participation in such a system actively supported
strand will be regulated by ordinance; the
by the Town Board.
crossing of dunes by motor vehicles will be
The Town will seek development of new public and
DEVELOPMENT OF GROWTH GOALS
restricted to specially constructed ramps.
improved commercial recreation facilities as requested in
3. Efforts will be made in road alignment and
questionnaire responses, as soon as financially feasible.
While formal land use planning activities in Surf City were
construction to accommodate safe bicycle
Assistance from the State Department of Archives and
initiated by State passage of the Coastal Area Management Act,
and pedestrian traffic, particularly in the
History will be requested in determining the historic
many Townspeople were already active in trying to solve
vicinity of recreation facilities.
significance of old military observation towers.
municipal problems. A citizens' group had been organized to
4. The Town will make efforts to reduce the
work for the betterment of the Town, and became involved in
incidence of beach litter and will establish a
the planning process as one representative of public opinion.
beach clean-up program.
But the majority of the Town's taxpayers are absentee property
5. It will be a function of the Town to ensure
owners, unable to attend many local public meetings. In order to
that reasonable access to the ocean and
3. Implementation
evaluate the widest possible range of public sentiment, the Town
sound waters of the Town be available to the
The developers of new subdivisions
The Town recognizes the need for revision of existing
formulated questionnaires and mailed them to all taxpayers on
record. Questions concerned problems and advantages of the
public.
will provide rights -of -way and adequate
municipal ordinances and wider circulation of their require -
Town, desired growth rates and means of accommodating
structural access to adjacent watercourses.
hereents to the public. New ordinances will be established
where necessary timplement the assure better
w
growth, and possible means of achieving goals in the future.
from 25
Such structures and rights -of -way, when
acceptable to Town, will thereafter be
plan,
protection of natural resources, and reduce storm and
Responses to the questionnaire were received about
percent of the taxpayers. There was a large degree of unanimity
maintained by the Town and designated as
erosion damage. In particular, the density development,
concerning problems in the Town: unsightly development
public accessways by appropriate signs.
the protection of the esthetic and protectivee nature of sand
dunes and the maritime forest, the safe and enjoyable public
ranked highest, followed by lack of shopping areas and septic
tank problems. The availability of natural recreation resources
When the number of accessways becomes
adequate to serve the public, public access
use the beaches, the provision of adequate structural
was considered the major advantage based on closeness to
will be restricted to those designated areas.
accessss to Public Trust areasand the quality of construction
will be subject to municipall regulation in the future.
beaches, clean air and water, uncrowded living conditions, and
The Town of Surf City will request permission from the
outdoor activities. Unanimity dissolved, however, in the desires
Coastal Resources Commission (CRC) to be the permit -
for future growth: there was virtually an even split between
letting authority for minor development permits that will be
those wanting slow growth and those wanting rapid growth.
required in Areas of Environmental Concern. The Town will
Annexation of additional land was proposed to accommodate
POTENTIAL AREAS OF ENVIRONMENTAL CONCERN
prepare a Local Management Program, as required by the
increased population, and effective regulations were suggested
CRC, describing the methods that will be used to coordinate
to control commercial activity.
The Town of Surf City has identified certain areas in the Town
existing municipal permit -letting procedures with those that
There was concensus among the taxpayers —resident and
whose particularly fragile, scenic, or hazardous nature warrants
will be necessary to implement the Plan. The Town will also
nonresident alike —that future growth be planned to achieve a
special care taken in their use and development. For this reason,
seek to coordinate its permit -letting authority with that of
family -oriented resort area. Respondents stated a need for
specific standards for development in each of these environ-
Pender County.
better enforcement of the Town's zoning regulations and
mentally fragile areas have been established, and are sum-
The Surf City Land Use Plan has been closely coordinated with
building code, and for better municipal facilities, particularly
marized as follows:
provisions and policies of the Pender County Plan. In order to
water supply and public recreation areas.
In order to evaluate what was meant by slow growth and
make land use planning in Surf City an ongoing, effective
process, the Town Board, at its regular monthly meetings and at
rapid growth, development alternatives were presented at
special meetings as needed, will consider orderly and prompt
public meetings. Five models of development were formulated,
upgrading and revision of the Land Use Plan. Surf City will
each feasible in light of physical and economic restraints and
The Estaurine System
continue to coordinate its planning efforts with the County,
each with associated density distributions and population levels.
(The estuarine waters, marshes and mudflats, as defined by G.
especially those concerning the establishment of new land use
Densities ranged from only 3 units per acre throughout the Town
S. 113-229 and G. S. 113-230)
regulatory bodies, service facilities, and economic develop -
to as much as 15 to 30 units per acre over 30 percent of the Town.
The only kinds of new development that may be allowed in the
ment.
The associated peak summer populations ranged from about
estuarine system are those that require water access and cannot
This Synopsis of the Surf City Land Use Plan is being mailed to
6,500 to 10,200. In light of questionnaire responses Town
chose to recommend a mixture of low to medium
function anywhere else. Piers, docks and marinas, for instance,
all property owners in the Town. Copies of the full plan, which
government
density with an ultimate peak summer population of about
connecting water -oriented with upland activities, may be
if in be
addresses each of the items included here in detail,are available
7,700. All future planning for service facilities in the Town
considered appropriate their need the area can
demonstrated and their specific location and design shown to be
for study in the Town Hall and can be obtained at cost upon
written request. Additional copies of the Synopsis and its maps
and land use ordinances and regulations will be aimed at
the most suitable alternative.
can be obtained from the Town Hall free of charge upon
achieving that ultimate population in 2000. Also in light of
The Estuarine System category includes all islands within the
request.
questionnaire responses and public meetings, the Town
marsh complex, however, since some of these islands could
In the final analysis, improvement of the overall image of the
adopted the following Objectives and Standards to guide future
accommodate some degree of development, proposed devel-
Town will require conscientious cooperative efforts on the part
growth.
opment of any of them will be reviewed on a case -by -case basis.
of all residents and property owners. There are no easy solutions
to some problems, especially where Town opinion is divided on
desired courses of action. But all Townspeople stand to benefit
from better visual, health, and safety quality and from public
efforts to provide to residents and vactioners an enjoyable,
OBJECTIVE: It is to the policy of Surf City to encourage
The Beach-Foredune System
prosperous resort community.
continued development of the Town as a family
Because of the dynamic nature of the beach-foredune
beach.
STANDARDS: 1. Community services, including facilities for
complex, the construction or location of structures on it will not
be permitted. Allowances will be made, however, for the
water supply and sewage treatment, road
provision of structural accessways across the dune provided that
construction and maintenance, and police
utmost care is exercised in their location and construction to
and fire protection, will be planned fora
prevent damage to the dune and the vegetation growing on it.
peak summer population in of 6,570 and
960.
a year-round population of 60.
Allowances will also be made for the erection of safetyfacilities
Report was financed in part by the National Oceanic and Atmospheric Adminis-
2. The develo mentofavariet of commercial
p y
such as lifeguard chairs, and for necessarily water -oriented
tration and the State of North Carolina,and meets the requirements of the North
recreation and shopping facilities will be
recreational structures such as fishing piers.
Carolina Coastal Area Management Act of 1974.
encouraged in the business district and along
the causeway in order both to meet the
demands of vacationing and permanent
populations and to increase employment
opportunities for permanent residents.
Hazard Areas
3. The construction of a variety of housing
Ocean -front property with a high probability of incurring
types limited to 3 stories from ground level
excessive erosion is considered an unsuitable location for the
(including single family, duplex, apartment,
placement of structures used for housing, institutional purposes,
motel and condominium) will be encour-
transportation or commerce; and, this property therefore
aged in order to accommodate residents and
creates too high a risk to warrant further public investments into
vacationers with differing economic re-
roads, sewer and water lines, and other such facilities. In this
sources and needs.
area, as in coastal flood -prone areas, any construction will be re-
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SUMMARY
of the
SURF CITY
LAND USE PLAN
Prepared by the
BOARD OF COMMISSIONERS
and
CITIZENS
of the Town of Surf City
North Carolina
With Assistance from
Coastal Zone Resources Corporation
1976
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE