Land Use Plan 1992 Update-1993

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LAND USE PLAN
1992 UPDATE
SURF CITY, NORTH CAROLINA
Adopted by the Town of Surf City on August 03, 1993
Certified by the Coastal Resources Commission on
September 24, 1993 '
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

1
LAND USE PLAN
1992 UPDATE
SURF CITY, NORTH CAROLINA
Joseph Paliotti, Mayor
David Serrell, Manager
Janet Chamblee, Clerk
Floyd Stewart, Community Development Director
Council
Lionel Midgett
A. E. Misko
Jo Anne Paulin
Todd Thomas
Rick Turner
Planning Board
Cal Geary, Chairman
Jessie Borchers
Jean Brown
Elizabeth Misko
Lillian Trifoli
Philip Matthews, Alternate
Denise Herring, Alternate
Waymoth Batts, Jr., Extraterritorial Representative
Robert Forand, Extraterritorial Representative
Roger A. Briggs, Planning Consultant
This preparation of this plan was financed in part through a grant provided by the North
Carolina Coastal Management Program, through funds provided by the Coastal Zone
Management Act of 1972, as amended, which is administered by the Office of Ocean and
t
Coastal Resource Management, National Oceanic and Atmospheric Administration.

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TABLE OF CONTENTS
PAGE
Introduction
i
Section I: Existing
Conditions -- Data and Analysis
1
A.
Establishment of Information Base
1
1. General
1
2. Manner of Data Assembly. and Analysis
1
3. Data Sources, Reference Material and Sources of
More Detailed information
2
4. Analysis of Policy Implementation Effectiveness
2
5. Improvements the Town Intends to Make in this
Plan Update
3
6. Number of Subdivisions and Lots Approved Since
_
the Last Plan Update
3
B.
Present Population and Housing Data
3
1. Present Population Data
3
2. Housing Characteristics
4
3. Present Seasonal Population Data
6
C.
Present Economy
7
D.
Existing Land Use
11
1. Mapping and Analyzation
11
2. Land and Water Use Compatibility
14
3. Major Problems Resulting From
Unplanned Development
14
_
4. Areas Experiencing or Likely To
Experience Changes in Predominant
Land Uses
14
E.
Current Plans and Regulations
15
1. Plans and Regulations
15
2. Planning Board Activities
16
3. Relationship of Local Ordinance
With Land Classification Map
and Local Policies
17

F.
Development Constraints
1. General
2. Physical Limitations for Development
3. Fragile Areas
4. Areas with Resource Potential
G.
Development Constraints: Public Facilities and
Service Analyses
1. Water Distribution System
2. Wastewater Collection and Treatment
3. Solid Waste Collection
4. Police Protection
5. Fire Department
6. Emergency Medical Service
7. Recreation Facilities
8. Street System
9. Administration
10. Public Schools
Section II: Estimated Demand -- Projections and Analysis
A.
Population Projections
1. General
2. Permanent and Seasonal Population Projections
B.
Social and Economic Trend Projections
C.
Future Land Needs
D.
Community Facilities Demand
1. General
-2.--- Water Distribution System
3. Wastewater Collection and Treatment
4. Solid Waste Collection
5. Police Protection, Emergency Medical
Services and Administration
6. Fire Department
7. Recreation Facilities
8. Street System
19
19
19
21
22
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22
23
23
24
24
25
25
27
27
28
29
29
29
29
30
31
31
32
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32
32
32
32
32
33
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Section III: Policy Statements
34
A. General
34
B. Previous Policy Effectiveness Analysis
34
C. Policy Development Procedure
34
D. Resource Protection Policies
35
1.
Constraints to Development
35
a. Soils .
35
b. Flood Prone Areas
36
C. Wetlands
37
2.
Areas of Environmental Concern (AECs)
37
a. Estuarine System
37
b. Ocean Hazard Areas
40
3.
Land Uses and Densities in Proximity to
Outstanding Resource Waters (ORW)
42
4.
Hazardous or Fragile Land Areas
42
a. Maritime Forests
42
b. Wetlands
43
C. Shellfishing Waters
43
d. Cultural, Historical and Archaeological
Resources
44
5.
Hurricane and Flood Evacuation Needs and Plans
44
6.
Protection of Potable (Drinking) Water Supply
45
7.
Use of Package Treatment Plants and Alternative
Treatment Systems
45
8.
Storm Water Runoff
45
9.
Marinas, Floating Home Development and Boat
Dry Stack Storage Facilities
46
10.
Industrial Impacts on Fragile Areas
47
11.
Development of Sound and Estuarine Islands
47
12.
Sea Level Rise Considerations
48

E.
F.
13.
Upland Excavation for Marina Basins
48
14.
Damaging of Existing Marshes by Bulkhead
Installation
49
Resource Production and Management Policies
49
1.
Productive Agricultural Lands
49
2.
Commercial Forest Lands
50
3.
Existing and Potential Mineral Production Areas
50
4.
Commercial and Recreational Fisheries
50
a. Nursery and Habitat Areas
50
b. Outstanding Resource Waters
51
C. Trawling Activities in Estuarine Waters
51
5.
Off -Road Vehicles
52
6.
Residential, Commercial and Industrial Land
Development Impact on Any Resource
52
7.
Impact of Peat or Phosphate Mining on Any
Resource
53
Economic
and Community Development Policies
53
1.
Types and Locations of Desired Industries
53
2.
Local Commitments to Providing Services to
Development
53
3.
Types of Urban Growth. Patterns Desired
54
4.
Redevelopment of Developed Areas
55
5.
Community Appearance
55
6.
Commitment to State and Federal Programs
56
7.
Assistance to Channel Maintenance and
Beach Nourishment Projects
56
8.
Energy Facility Sitings and Development
57
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G.
114
4
9.
Tourism
57
10.
Beach and Estuarine Water Access
58
.11.
Anticipated Residential Development
59
12.
Land Use Trends and Carrying Capacity
Analysis
60
Continuing Public Participation
61
1.
Public Participation Plan
61
2.
Public Education on Planning Issues
61
3.
Continuing Public Participation in Planning
61
4.
Citizen Input in Developing Land Use Plan
Policy Statements
62
Storm Hazard Mitigation, Post -Disaster Recovery
and Evacuation Plan
62
1.
Intent
62
2.
Effects of Coastal Storms in the Surf City Area
62
3.
Related Documents
62
4.
Composite Hazards Map
63
5.
Hazardous Area Land Use Inventory
63
6.
Coastal Storm Hazard Mitigation Policies-
66
7.
Post -Disaster Reconstruction Plan
65
a. Introduction
65
b. Organization of Local Damage Assessment
Team
66
c. Damage Assessment Procedures and
Requirements
66
d. Organization of Recovery Operation
66
e. Recommended Reconstruction Policies
67

Section IV: Land Classification System
A. General
B. Classifications
1. Developed
2. Developed - Maritime Forest
3. Limited Transition
4. Conservation
a. Conservation -- Marshlands
b. Conservation -- Public Beach Access
Section V: Relationship of Policies and Land Classification
Section VI: Intergovernmental Coordination and Implementation
Section VII: Public Participation
Appendices
69
69
69
69
70
70
71
71
71
72
74
75
a. Analysis of Policy Implementation Effectiveness al
b. Public Participation Plan bl
C. Questionnaire Response Summary cl
d. Sources of Information dl
Tables
1. Population and Percent Change, Surf City and Pend& County,- 1980, 1990
2. Dwelling Units By Type, Surf City Planning Area, 1985, 1992
3. Dwelling Units By Type, Surf City (Excluding Old Settlers Beach) 1985, 1992
4. Determination of Peak Seasonal Population Estimates, Surf City Planning Area,
1992
S. Gross Retail Sales, Pender County, 1985-86 through 1990-91
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6. Occupancy Tax Collections, Surf City, 1986-1991
7. Estimates of Per Capita Income, Pender County, Surrounding Counties, N.C.; U.S.
8. General Fund, Actual Revenues, Expenditures and Percent Changes, FY 85-86 and
FY. 90-91, Surf City
9. Existing Land Use, 1992, Surf City Planning Area
10. Development Activity, Dwelling Units and Commercial Structures, 1987-1992 (1st
Quarter) Surf City, North Carolina
11. Development Activity, Dollar Value of New Unit Construction, 1987-1992 (1st
Quarter), Surf City, North Carolina
12. Public Beach Accessways
13. Population Estimates and Projections, Surf City Planning Area
14. Additional Acreage Needed to Accommodate Anticipated Growth, Surf City Planning
Area, 1997 & 2002
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Maps
1. Existing Land Use
2. Composite -Hazards
3. Land Classification
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Introduction
Land use planning has become a common (and expected) activity for most of North
Carolina's towns and counties during the past two or three decades. Initially land use plans
were prepared as statutorily mandated precursors to zoning. Through the years, the land
use planning process evolved into a more comprehensive effort involving issue identification,
goal setting and establishment of implementation strategies. Additionally during the 1980's
environmental issues received increased attention. Topics such as wetlands protection,
surface and groundwater protection, and barrier island development were intensely debated
topics and became primary planning considerations alongside community facilities and
demographic projections.
The Coastal Area Management Act of 1974 (CAMA), enacted by the North Carolina General
Assembly, established the Coastal Resources Commission which sets policies and standards
for the North Carolina Coastal Management Program, and is administered by the
Department of Environment, Health and Natural Resources, Division of Coastal
Management. The Act applies to North Carolina's 20 coastal counties and to municipalities
within those counties.
The Act requires government units within these coastal counties to develop land use plans
and update them every five years. Surf City's last plan was prepared in 1986 and 1987,
adopted by the Town on September 1, 1987 and certified by the Coastal Resources ,
Commission on September 25,1987. CAMA Land Use Planning Guidelines (15A NCAC 7B)
prescribe the basic content and format for these plans.
Users of the Plan
The Land Use Plan is an important policy document at local, regional, state and federal
levels. The users include:
• Surf City Council, Planning Board and administrative staff
• Surf City residents and property owners
• Surf City developers and others with commercial interests
• Pender and Onslow County commissioners, Planning Board and administrative
staff
• Pender and Onslow County residents
• Topsail Beach and North Topsail Beach Commissioners, Planning Boards,
administrative staffs, residents and property owners
• Cape Fear Council of Governments
• State and federal planning and permitting agencies
• N.C. Division of Coastal Management
• Coastal Resources Commission

Uses of the Plan
The CAMA Land Use planning process -addresses current issues and allows local adoption
of policies and a land classification system for guiding development of communities. The
plan's data section provides a resource of background information on a number of subjects --
local population, development trends, environmental factors and local governmental services
and facilities. Other uses include:
• A statement of the Surf City's position regarding its future growth --both in
general and specific terms. The opportunity exists for the Town to give clear,
specific directions for other governments and agencies having programs or
projects impacting upon the Town.
• A basis for regulatory instruments, such as the zoning ordinance and subdivision
regulations.
• A foundation for guiding future decisions regarding the Town's annual budget
and long-term capital improvements plan.
• An identification of areas of mutual intergovernmental concerns the Town may
share with Pender County, Onslow County and the neighboring towns of
19 Topsail Beach and North Topsail Beacli.
• Establishes the Town's position on environmental issues. The 'Town has the
opportunity to exceed state and federal environmental regulations.
• Allows expressions of the future of the Town by citizens, administrative staff,
planning board and governing body.
• Provides a preview of governmental positions that can be particularly valuable
for the business community, increasing predictability of government actions.
• A document expressing a comprehensive identification of issues that most coastal
localities must face.
— -- - - - Each state and federal -program --(applicable to the Surf City planning
jurisdiction) must be consistent with the Town's land use plan.
• The completed (and adopted) plan will become a component of plans for Pender
County, Onslow County, the Cape rear Council of Governments, and the 20
coastal counties covered by the Coastal Area Management Act.

Section I: Existing Conditions -- Data and Analysis
A. Establishment of Information Base
1. General
The data presented in this section were collected and analyzed
in order to establish the information base necessary to make
policy decisions and to structure the Land Classification Map
to guide future land uses and development in the Surf City
planning area. Data contained in the 1986 Plan were updated
to reflect current conditions. Additionally the 1992 Update will
reflect, for the first time, the Town's Area of Extraterritorial
Jurisdiction, a 1,785 acre area located on the mainland lying on
both sides of Highway N.C. 50/210, and north of the
Intracoastal Waterway.
The intent of this section is to establish a comprehensive
picture of the 1992 population, economy, land use, and public
facilities and services for comparison with conditions that
existed five years ago during the last updating of the Town's
plan, and as a base for making projections.
2. Manner of Data Assembly and Analysis
The manner in which the information used in this plan was
assembled involved the following steps:
(a) Information shown in the 1986 Plan was updated by
research and surveys.
(b) A land use survey was conducted during the first quarter
of 1992. This was a field survey made from a vehicle and
structures built or removed since the 1986 survey were
noted. The number of dwelling units within multi -family
structures was noted.
(c) Building permit statistics were obtained from Town
records to supplement data secured through the field
survey.
(d) Town administration staff and employees of other
governmental agencies supplied considerable
information.

(e) Published materials, such as the 1990 U.S. Census of
Population, are reflected in this Plan.
a
(f) When comparable historical 1986 data are available, this
information is shown in order to ascertain trends.
3. Data Sources, Reference Material and Sources of More Detailed
Information.
A number of governmental agencies and individuals were
contacted to secure information needed for this plan update.
These agencies are listed as Appendix d (Sources of
Information) of this plan. Reference materials, such as reports,
maps, and other documents used in this updating process are
also listed as Appendix d. These materials can be referred to
for additional information regarding some of the topics covered
in this plan.
4. Analysis of Policy Implementation Effectiveness
The plan updating process includes an analysis of the Town's
effectiveness in the implementation of its policies as contained
in its current plan of record (the 1986 Update). The 1986
Update contains 25 policies responding to the five topics listed
below.
• Resource Protection
• Resource Production and Management
• Economic and Community Development
• Continuing Public Participation
• Storm Hazard Mitigation
A strategy accompanied each policy as a statement of means for
implementing the policies which have been adopted responding
to the land use issues.
The Town has been successful- in addressing the policy
implementation objectives contained in the 1986 Plan. Some of
the more significant accomplishments include:
• Protection of the estuarine system
• Construction of a wastewater collection and treatment
system
• Establishment of an area of extraterritorial jurisdiction.
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A detailed analysis of how effectively the Town has
implemented its policies contained in the 1986 Plan Update is
presented as Appendix a of this Plan. Each of the 25 policies is
stated and followed by an explanation indicating what the Town
has accomplished with regard to that policy. In summary, of
the 25 policies stated, all were implemented.
5. Improvements the Town Intends to Make in This Plan Update
In general the Town intends to make this update more
definitive and specific especially regarding policy statements
and in land classification descriptions.
Some revisions have been made to the CAMA land use
planning guidelines. This update will conform to those
revisions.
Apparently the installation of the central wastewater collection
and treatment system is causing an acceleration of commercial
growth in the central portion of Surf City. This plan will
address this situation. r
The questionnaire responses yielded a great deal of concern
regarding two issues. The need for a community center and a
need for improving the visual image or appearance of the Town
were strongly expressed. The plan will respond to these
concerns.
6. Number of Subdivisions and Lots Approved Since the Last Plan
Update
For the period January,1987 through March,1992 a total of six
subdivisions containing 163 lots and two site plans for multi
family developments containing 74 units were approved during
this 63 month period.
B. Present Population and Housing Data
1. Present Population Data
This section is concerned with an examination of the current
population. As typical of most beach communities, the summer time
population increases dramatically in contrast with the year-round
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permanent population. The table below displays historical census
information for the Town and Pender County.
Table 1
Population and Percent Change
Surf City and Pender County
1980, 1990
Percent
Place
1980
1990
Change
Surf City
390
976
+1503
Pender County
22,262
28,855
+29.6
Sources: 1980, 1990 U.S. Censuses of Population
Surf City's permanent year-round population has grown dramatically
(150 percent) during the past ten years. In addition to the increasing
retirement population component, Topsail Island is becoming an
increasingly popular location for persons working locally or
commuting to Wilmington, Jacksonville, or Camp Lejeune. Part of this
population growth witnessed during the past decade was due to the
annexation of the Old Settlers Beach area in 1988 involving 702
dwellings. The present (1992) permanent population of the planning
area is estimated to be 1,182 (see Table 13).
2. Housing Characteristics
Dwelling unit counts for 1985 and 1992, is presented in the following table.
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Table 2
Dwelling Units By Type
Surf City Planning Area
1985, 1992
Dwelling Type
1985 (Units)
1992 (Units)
% Change
1992 ETJ (Units)
Single Family
619
956
+54A
96
Duplex
70
92
+31.4
0
Multi Family
286
315
+10.1
0
Manufactured
454
976
+115.0
523
Motel
142
165
16.2
0
Totals
1,571
2,504
+59.4
619
Sources: 1987 Land Use Plan, 1992 Field Survey
Note: EPJ was established In 1992
Annexation activity in 1988 accounted for much of the increase in dwelling
counts occurring during the past seven years. Perhaps a truer picture of
growth can be revealed if the annexed area could be removed as a source of
increased numbers of dwelling units. This "natural" growth is shown in the
following table.
Table 3
Dwelling Units By Type
Surf City
(Excluding Old Settlers Beach)
1985, 1992
Dwelling Type
1985 (Units)
1992 (Units)
Percent Change
Single Family
619
757
+22.3
Duplex _ _
70
78
+11.4
Multi -Family
286
312
+9.1
Manufactured
454
490
+7.9
Motel
142
142
0
Totals
1,571
1,779
+13.2
Sources: M Land Use Plan, 1992 Field Survey
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The table above shows the number of dwelling units increased by 13.2 percent
during the past seven years, with most growth (138 dwellings) occurring as a
result of single-family detached unit construction. Growth in numbers of
manufactured units, duplexes and multi -family units was fairly equal.
3. Present Seasonal Population Data
The seasonal population figures (although more difficult to accurately
document) also require careful examination. This is a critical consideration
since many community facilities and services must respond to the dramatic
influx of visitors during the warmer months. Services and facilities such as
police protection, water distribution, wastewater collection and solid waste
collection are prime examples of such services.
The current average seasonal population is estimated to be 10,221 persons.
This figure is 75 percent of the peak population - estimate of 13,570, taken
from the table below. Town Officials estimate an additional 3,000 visitors are
present during the peak season (July 4 weekend).
Table 4
Determination of Peak Seasonal Population Intimates
Surf City Planning Area
1992
Number of
Persons Per
Occupancy
Total
Dwelling Type
Dwellings
Dwelling
Rate
Persons
Permanently
Occupied
563
X
2.1
X
100%
1,182
Seasonally
Occupied (Town)
11891
X
6.0
X
90%
10,211
(ETJ)
504
X
4.0
x
80%
1,613
Motel Rooms
165
X
3.6
X
95%
MA
Total 3,123
-
-
-
-
13,570
Sources: See text below. Note: Wx In Table Indicates'Timee-next column -
The figures reflected in Table 4 were obtained or derived as follows:
Number of Dwellings. For the dwellings housing permanent residents,
this number (563) was obtained by dividing the planning area's
permanent population- (11182) by 2.1 (the average household size for
Surf City and similar beach towns). The number of seasonally
occupied dwellings (1,891 inside Surf City and 504 in the ETJ) was
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obtained by subtracting permanent resident dwellings from the total
dwelling count (2,504 and 619). Motel rooms were either counted or
the number obtained from motel operators.
• Persons per Dwelling. The average family size (2.1) for permanent
residents was derived from census data. This number closely
corresponds with average family sizes in neighboring and other
comparably sized beach Towns. The persons per dwelling figures for
seasonal units (6.0 inside Surf City and 4.0 for the ETJ) and motel
rooms (3.6) were obtained by questioning real estate agencies and
motel operators.
• The occupancy rates for seasonal units (90% inside Surf City and 80%
in the ETJ) and motel rooms (9591c) were obtained by averaging figures
obtained from real estate agencies and motel operators.
C. Present Economy
The economy of Surf City is heavily dependent upon tourism -- however this
dependency is slowly decreasing due to the increase in the permanent
population. Surf City also serves as the center of commerce for Topsail Island
and a portion of the mainland. A wide variety of retail and service businesses
exist to serve permanent residents and vacationers. Restaurants, grocery
stores, beach and tackle shops, and real estate offices are predominant
commercial enterprises. Most published economic information has ..been
assembled for the entire county. Very little data exist for small municipalities
such as Surf City. The following table reflects total gross retail sales for all
of Pender County for the period FY 85-86 through FY 90-91.
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Table 5
Gross Retail Sales
Pender County
1985-86through 1990-91
Year
Amount
Percent
Change
(County)
Percent
Change
(State)
1985-86
$84,271,208
--
--
1986-87
85,406,700
+1.35
+9.47
1987-88
93,628,305
+9.63
+7.54
1988-89
100,568,395
+7.41
+10.52
1989-90
101,288,481
+0.721
+2.99
1990-91.
105,320,335
+3.98
-0.93
Source: N.C. Department of Revenue
Since the last plan update the county has enjoyed an increase in retail sales
each year.
An indicator of the local economy specific to Surf City is the collection of
occupancy taxes. Occupancy (room) tax collections represent a three percent
tax levied against hotel, motel and house rentals (of durations less than 90
days). Refer to the following table regarding collections for the past six years.
Table 6
Occupancy Tax Collections
Surf City
1996 - 1991
Year
Collections
Percent Change
1986
$39,912
--
1987
43,276
+8A2
1988
45,338
+4.76
1989
55,550
+2252
1990
63,984
+15.18
1991
75,375
+17.80
Source: Town of Surf City
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Figures in the above table reflect a healthy growth in rentals during the past
planning period. The Town uses these funds for tourism -related services such
as beach access and maintenance.
Per capita income figures are also a primary indication of the local economy.
Pender County's average of $11,677 is $2,620 less than the State average of
$14,297 and $4,813 less than the national average. However Pender's income
estimate exceeds those of Onslow and Duplin Counties. Refer to the following
table.
Table 7
Estimates of Per Capita Income
Pender County, Surrounding Counties, N.C., U.S.
Place
Income
Pender County
$11,677
Onslow County
11,161
New Hanover County
14,546 .
Duplin County
10,595
North Carolina
14,297
U.S.
16,490
Source: US Bureau of Economic Analysis
Another measure of the local economy is the Town's budget -- particularly the
general fund figures reflecting actual revenues and expenditures. The
following table shows revenues and expenditures for the budget year 1985-
1986 (the time of the last land use plan update) and 1990-1991, and percent
changes.
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Table 8
General Fund
Actual Revenues, Expenditures and Percent Changes
FY 85-86 and FY 90-91
Surf City
Revenues
1986
1991
% Change
Ad Valorem taxes
$180,484
$771,684
327.6
Other taxes and licenses
99,742
305,342
206.1
Unrestricted Intergovernmental
25,815
38,771
50.2
Restricted Intergovernmental
20,426
43,366
1123
Licenses and Permits
21,562
25,139
16.6
Investment Earnings
20,094
37,651
87.4
Miscellaneous
5,872
5,748
-2.2
Total Revenues
382,654
1,2829760
235.2
Other -Financing Sources (Uses)
40,1401
--
--
Expenditures
General Government
$ 84,429
$198,339
134.9
Public Safety
152,617
279,554
83.2
Transportation (Streets)
26,553
116,982
340.6
Environmental Protection
(Sanitation)
34,185
180,940
4293
Cultural & Recreational
%915
6,824
-453
Land Use Grant
5,076
0
--
Total Expenditures
312,775
783,364
1505
Other Financing Sources (Uses)
(33,993)3
250,0002
-
lOperating transfer in Donations
2Water and Sewer Fund
3Donated to Capital Project Fund
During the last five years, revenues increased 235.2 percent, due mostly to a
327.6 percent increase in ad valorem taxes (the annexation of Old Settlers
Beach occurred during this period). The 'other taxes and licenses" category
increased dramatically (200.1 percent) due to large increases in
accommodation tax, intangible tax, franchise tax, privilege licenses and most
significantly the local optional sales tax (473.5 percent increase).
10

During the same five-year period, general fund expenditures increased 150.5
percent. Environmental protection (contracted sanitation services) increased `
429.3 percent ($146,755). Transportation expenditures (street repair and
construction) increased 340.E . percent or $90,429. Public safety (police, fire
department, inspections and rescue departments) expenditures increased 83.2
percent or $126,937.
Expenses for public safety were the largest of any of the categories in the
Town's budget. General government expenses increased 134.9 percent or
$113,910. Cultural and recreational expenses decreased by $3,091 (45.3
percent).
D. Existing Land Use
1. Mapping and Analyzation
The present uses of land are graphically displayed on Map 1, Existing
Land Use. Eleven categories of land use were established in the 1986
Plan. For ease of comparison these same categories are used in this
update.
Three events significantly changed the boundaries of Surf City's
planning jurisdiction: `
• The annexation of the Old Settlers Beach development in 1988
constituted the major change to the -Existing Land Use Map.
This annexation added approximately 486 manufactured
houses, 199 conventional houses, 14 duplexes and 12
commercial establishments. The following table shows existing
uses of land in the years 1985 and 1992, and the percent
changes that occurred.
The annexation added approximately 250 acres to the Town.
• In February, 1992, the Town annexed 6.59 acres on Highway
50/210 by the non-contiguous satellite method. This was done
in anticipation of the development of a major grocery store and
several smaller businesses on that property.
• In 1992, the Town established a 1,785 acre area of
extraterritorial jurisdiction (ETJ) on the mainland along both
sides of Highway 50/210. This action added approximately 523
manufactured houses, 96 conventional houses and five
commercial establishments.

w
ru
Table 9 shows land use acreages for the years 1985 and 1992 for the
Town's incorporated area and the percent changes occurring during
that period. The table also shows land use acreages for the
extraterritorial area that existed during the 1992 survey.
In addition to man-made developments, Map 1 shows existing water
conditions including: DEM stream classifications, and the location of
primary and nursery areas, and coastal wetlands.
Table 9
Existing Land Use
1992
Surf City Planning Area
Land Use Category
1985 Acreage
1992 Acreage
% Change
1992 ETJ
Acreage
.Spoil Islands
146.0
146.0
0.
27
Water & Wetlands
2,152.0
2,197.8
+2.1
864
Beach
34.0
37.5
+10.4
0
Single Family
Residential -Detached
111.0
169.0
+65.7
36
Duplex
5.1
6.8
+75.0
0
Multi -Family
20.4
22.9
+12.3
0
Manufactured Housing
67.1
175.1
+161.0
131
Commercial
29.2
36.8
+26.0
15
Public/Institutional
19.4
19.5
+0.5
25
Transportation &
Utilities
101.9
136.9
+34.3
37
Vacant -Developable
339.6
374.4
+10.2
650
Totals
3,025.7
3,322.7
1 +9.8
1,785
Sources: 1987 Land Use Plan, .1992 Field Survey
Note: ETJ was established in 1992
In addition to annexation and establishment of the ETJ, new
construction during the past planning period added 267 dwellings and
13 commercial structures. It should be noted that some of the 95
12

manufactured housing units permitted during this period were
replacement units and do not represent initial installations. The
following table shows the new construction by type and by year.
Table 10
Development Activity
Dwelling Units and Commercial Structures
1987 - 1992 (1st Quarter)
Surf City, North Carolina
1992
1987
1988
1989
1990
1991
(1st Qtr)
Total
Residential
Single Family
36
31
27
16
21
7
138
Duplex (Units)
--
--
--
--
4
4
8
Multi -Family (Units)
14
--
4
--
8
--
26
Manufactured Housing
5
6
23
25
28
8
95
Commercial (New Buildings)
--
1
3
1
6
2
13
Source: Town of Surf City
Table 11 reflects the dollar value of the construction permitted during the period 1987-1992.
Of a total value of $12,495,145, 65 percent ($8,089,500) was for conventional single family
residential structures. The dramatic increase in value of construction witnessed during the
past two years has been attributed to the installation of the Town's wastewater system.
Table 11
Development Activity
Dollar Value of New Unit Construction
1987 - 1992 (1st Quarter)
Surf City, North Carolina
1992
1987
1988
1989
1990
1"1
(1st Qtr.)
Total
Residential
Single Family
1,981,000
1,518,500
1,601,000
851,000
1,550,000
688,000
81089,500
Duplex (Units)
»
»
220,000
178,000
398,000
Multi -Family (Units)
980,000
—
182,000
»
356,000
—
1,518,000
Manufactured Housing
76,500
91,800
351,900
428,400
428,395
136,800
1,513,795
Commercial (New Buildings)
»
15,000
143,500 .
125,000
543,600
148,750
975,850
Totals
2,937,500
1,625,300
2,278,400
1411TnIM
3,0979995
1,151,550
12,495,145
Source: Town of Surf City
13
P

2. Land and Water Use Compatibility
Development along estuarine shorelines, as is the case in most coastal
communities,' increases the potential for environmental degradation of
sensitive areas, particularly shellfish beds and nursery habitats. Boat docking
is a popular and fairly intense activity in the vicinity of the drawbridge. This
activity, coupled with runoff from the nearby densely developed trailer parks
has resulted in the closing of shellfish beds in that area.
Commercial area development in the center of Town. is continuing at an
accelerated rate, due largely to the installation of the Town's wastewater
system. This development precipitates increased traffic congestion and the
potential for friction between the advancing commercialism and neighboring
residences.
3. Major Problems Resulting From Unplanned Development
The use of land use controls within the Town's extraterritorial area on the
mainland prior to 1992 has been minimal. The extraterritorial area is the
home for approximately 523 manufactured homes (some of them are travel
trailers). This has resulted in a high concentration of units and people in the
Lanier's Campground vicinity. There is no central wastewater system serving
M this area.
Mobile home parks and campgrounds within the Town, particularly near the
fishing piers generates a concentration of pedestrians and vehicles. Most of
these developments pre -date the Towns's planning program. Within Town
these parks and campgrounds are served by the municipal wastewater system.
4. Areas Experiencing or Likely to Experience Changes in Predominant Land
Uses.
The central commercial area of Surf City is expanding and experiencing
redevelopment. New restaurants, gift shops and services are being built at a
rate not previously experienced in Surf City. The dollar value of commercial
construction in 1991 was over four times the value experienced in 1990 and
1989.
Changes in the residential sections are occurring much more slowly. New.
houses are being built (or placed) on scattered lots or within new subdivisions
located on the sound side of Highway 50 (Topsail Drive). Within this corridor
new subdivisions are being developed within wooded areas --areas_ sometimes
referred to as maritime forests or shrub thickets.
14

The extraterritorial area, particularly the corridor flanking both sides of NC
50/210 is . expected to develop at a faster rate. Commercial development will
be the predominant land use here. A major grocery. store is planned for the
satellite annexation area, located on the outer edge of the extraterritorial area.
E. Current Plans and Regulations
1. Plans and Regulations
The Town has in effect a number of plans and regulations having
significant implications for land use planning. These include the
following:
a. CAMA Land Use Plan, adopted by Surf City on September 1,
1987 and certified by the Coastal Resources Commission on
September 25, 1987. The Plan adopted in 1987 will remain in
effect until the 1992 Plan is adopted. The CAMA Land Use
Plan is the Town's official policy statement and land use plan.
b. 1990 Public Shoreline Access Plan
Henry Von Oesen and Associates, Inc. This plan contains an r
inventory and analysis of existing access points to the Surf City
shoreline, discusses limitations and constraints to access and `
evaluates the need for additional public shoreline access. Public
access policies and improvement strategies to implement them
are included along with recommendations for developing,
protecting, and funding public shoreline accessways.
C. Zoning Ordinance
The Town adopted in 1984 a zoning ordinance that controls the
use of land, and regulates densities, building heights, setbacks,
parking and signs.
d. Subdivision Regulations
Adopted in 1977, this ordinance regulates the design and
platting of subdivisions. Minimum development standards and
a review and approval process are contained in these
regulations.
e. Buildings and Building Regulations
This ordinance adopts the N.C. State Building Code and
establishes the Inspection Department.
r
15

11
f. Flood Damage Prevention Ordinance
The purpose of this ordiru¢race is to minimize public and private
losses due to flood conditions in specific areas. This ordinance
refers to the Town's Floc4! Insurance Rate Map (FIRM).
g. Housing _(Minimum Standards) Ordinance
This ordinance sets standards for the fitness of dwellings for
human habitation.
h. Planning Board
This ordinance establishes the Town Planning Board, specifies
powers and duties, and set). application fees for variance
hearings.
i. Solid Waste Management
This ordinance establishc:a rules and regulations for garbage
and trash containers, dis-x)sition and removal, user fees, and
private collections.
j. Utilities
This ordinance relates tot the municipal water system and the
wastewater collection and treatment systems.
k. Beaches
This ordinance regulates the use of the strand between the
dunes and a line 1,000 feet seaward. Vehicles on the beach are
also regulated by this dLe,:4nuunt.
2. Planning Board Activities
Surf City's Planning Board consists of seven regular and two alternate
members. Two of the regular- members are extraterritorial area
representatives. The Board is netively involved in a number of
planning and related programs and issues. The Board is routinely
involved in certain aspects of inning ordinance and subdivision
regulations (The Town Building Inspector provides day-to-day
administration of these two or .;aani�es). The Board reviews rezoning
requests and other zoning :j:dintince amendments and makes
recommendations to the Tow Council. The Board also reviews
preliminary and final subdi;3siov plats for conformity to the
regulations, and accordingly mua Ias recommendations to Town Council.
16

A
The Planning Board is responsible for the CAMA Land Use Plan
update. Additionally the Board was recently (1992) involved in the
delineation of the extraterritorial jurisdictional area boundaries and
in the drafting of the Town landscape regulations and a sign
ordinance.
3. Relationship of Local Ordinances With Land Classification Map and
Local Policies
The land use plan updating process included a review to ascertain
consistency of local ordinances (described above) with the Town's land
use plan, particularly the land classification map and policies. The
following narrative reflects this consistency review. The review is
organized by land classes.
a. Developed
The intent of this class is to allow mixed land uses at high to
moderate densities (three or more dwelling units per acre or
having a majority of lots of 15,000 square feet or less.
Traditional urban services must be provided or scheduled to be
provided.
Within the areas of Town designated "Developed", the Zoning
Ordinance permits one -family, two-family, multi -family and
mobile home residential units; churches, campgrounds, planned
unit developments, retailing and services, and mobile home
subdivisions. All traditional urban services are provided by the
Town. The maximum density for single family dwellings, based
upon a minimum lot area of 5,000 square feet, is 8.7 dwellings
per acre. The maximum density for multi -family units is 16
units per acre. A few areas within the "Developed" classed area
are zoned R-10, reflecting a maximum density of 4.4 dwellings
per acre for single family development or a maximum of 12
units per net acre for multi -family developments.
b. Developed -Maritime Forest
The intent of this subclass is similar to "Developed" with one
important exception —the protection of the Town's maritime
forest/shrub thicket natural resource. Development should be
done in a manner that will cause the least harm to the forested
area.
17

Within. this classification the only permitted uses are
residential--one-family, two-family and multi -family (mobile
homes are not permitted). Churches and certain public
facilities are permitted. Commercial development is not
permitted. The Town's policy as contained in this plan
states..."that any development within a designated maritime
forest or shrub thicket area, shall file a site plan with the Town
prior to the issuance of any building permits. Further, the
Town's zoning ordinance will be amended to designate all
maritime forest or shrub thickets areas as a Conservation -
Overlay Zone' and any multi -family development within such
zone shall be permitted only as conditional use."
c.. Limited Transition
The intent of this class is to allow development but at lower
densities than allowed in the "Developed" classification. This is
due to the lack of most municipal services. The developable
portion of the Town's area of extraterritorial jurisdiction has
this classification.
Within this classification, the NC 50/210 highway corridor has
been zoned C-2 general commercial district, allowing retailing,
services, single and two.family dwellings. Ordinarily this zone
allows densities as described for the "Developed" class. However
due to the lack of water and wastewater services in this area
densities are limited by septic tank permitting requirements, as
administered by Pender County. Therefore the practical
maximum density is approximately four units per acre.
The balance of the developable extraterritorial area is also
classified "Limited Transition" but zoned RA which allows all
types of dwellings and certain commercial establishments.
Again density is regulated by county septic tank permitting
requirements.
d. Conservation —Marshland
This subclass is applied to coastal wetlands, estuarine waters
and shorelines, public trust areas and spoil islands. The intent
is "to provide for the effective long-term management and
protection" of such areas. Development of islands shall be
permitted, provided all local, state and federal regulations are
met.
18

Most of the land areas so classified are zoned R-5 residential.
No utility services are available in this area; therefore the
factors controlling density are county septic tank regulations
and the CAMA major and minor development permitting
processes.-
e. Conservation —Public Beach Access
The subclass is applied to the land seaward of the mean high
tide line. It is intended to "protect the public's right of access
to and along the beach while protecting dune areas and related
wildlife habitats".
Within this classification, zoning of adjoining property extends
onto the beach. These include: R-5, PUD, R-10, C-1, and C-2.
However due to CAMA regulations, the only development that
can occur are the construction of fishing piers and certain
erosion control measures including beach renourishment.
F. Development Constraints
1. General
The Town's land use planning process involves an analysis of the
general suitability of the undeveloped lands within the planning
jurisdiction as shown on Map 1, Existing Land Use. Within this area
consideration is given to the following factors; physical limitations for
development, fragile areas and areas with resource potential. The
following three subsections analyze these factors.The major purpose of
this analysis is to assist in the delineation of the Land Classification
Map.
2. Physical Limitations for Development
The following categories, conditions or types of areas are important
considerations when locating development activities. If development is
to occur within these areas, development may be costly or may cause
undesirable consequences (such as danger to persons or environmental
degradation) if developed.
19

a. Man-made Hazards
In the Surf City area, man-made hazards are associated with
military operations originating at: Camp Davis Helicopter
Outlying Fields (HOLF) immediately north of Holly Ridge;
Marine Corps Air Station (Helicopter) (MCAS(H)) at New
River southwest of Camp Lejeune; and Camp Lejeune Military
Base about 20 miles to the northeast. The closed landfill in the
ETJ is not classified as a hazard, but is definitely an obstacle
to development in that vicinity.
b. Natural Hazards
Flooding, storm surges and ocean erosion are considered
natural hazards. These are shown on Map 2, Composite
Hazards. These areas are delineated on the Town's Flood
Insurance Rate map (FIRM) and mapping entitled "Ocean
Hazard System, Areas of Environmental Concern" compiled by
the N.C. Office of Coastal Management. Flood Hazard areas
are indicated as '"V-zones" on the FIRM. The V-zones affect
" approximately 85 structures in the planning area.
C. Areas with Soil Limitations
Soil limitations are usually characterized by poor drainage
(including wetlands), septic tank unsuitability or foundation
hazards (non -compacting). The U.S. Department of Agriculture
and Soil Conservation Service has completed soil surveys for
Pender and Onslow counties. These surveys are useful in
providing easily accessible and detailed information on soils
within the planning area.
d. Water Supply Resources
No surface water is used as a water supply in the planning
area. The Town secures its water from two wells located
approximately one mile north of the Intracoastal Waterway
bridge along. NC 50 and 210. These well locations are
adequately separated from the closed landfill site.
e. Topography
Steep slopes are not found . in the planning area. The
topography is virtually flat over much of the planning area and
20

presents challenges to efficient stormwater drainage systems.
However, topography is not considered a constraint to future
development.
3. . Fragile Areas
It is important to identify those planning area resources which could
easily be damaged or destroyed by inappropriate or poorly designed
developments. Within the Town's jurisdiction two categories of Areas
of Environmental .oncern (AECs) as designated by the Coastal
Resources Commission --the estuarinesystem and the ocean hazard
system are found.
The estuarine system consists of estuarine waters, estuarine shorelines,
public trust waters, and coastal wetlands. Protection of the estuarine
system is critical to the preservation of good water quality for sport
and commercial fishing and recreation; continued free public use of
navigable waters; and undisturbed nursery areas, spawning areas,
shellfish beds and other important habitats.
Ocean hazard AECs face long-term erosion and sudden storm -induced r
shoreline changes, and are considered fragile areas. Development must
be located and designed to minimize losses to life and property
resulting from storms and long-term erosion. Development in these
fragile areas shall not involve the significant removal or relocation of
sands or vegetation from frontal dunes. Development must incorporate
all reasonable means and methods to avoid or minimize damage to the
natural environment and access to the public beaches.
In addition to coastal wetlands situated within the estuarine system
another type of wetlands is found within the planning area, primarily
in the extraterritorial area. These are wetland areas regulated by the
U.S. Army Corps of Engineers under the authority of Section 404 of
the Clean Water Act (the origin for the term "404 Wetlands").
Discharges of fill in these areas often require certifications of no
adverse water quality impact in compliance with Section 401 of the
Clean Water Act. The legal definition of jurisdictional wetlands not
only includes traditional marshes, swamps and normal flood plains
but often extends into upland areas that are not generally recognized
by the public as "wetlands". These wetland areas are broadly defined
as land areas having (1) hydric soils, (2) shallow water tables and (3)
aquatic type vegetation. Accurate delineation of wetland areas requires
on -site investigations by persons experienced and certified in this
specialty.
21

Maritime forests and vegetation clusters called shrub
thickets are located between highway 210/50 and the waterway.
The North Carolina Dcliartiiic►it;'of Cultural Resources was contacted
to determine the presence of any significant historical resources within
the planning area. The Doparlincnt's response indicated no significant
historical structures within the planning area. However 12 significant
archaeological sites have bean identified in the Gape's Point section,
within the extraterritorial area.
4. Areas with Resource Potential
Aside from lands identified above in "Fragile Areas" no other resources
have been located within the planning area. Resources within fragile
areas are primary nursery areas, identified on Map 1. Limited small
scale agricultural and foresiq operations are conducted in the
extraterritorial area. Resources within fragile areas
are primary ixur,ery areas, as identified on Map 1.
G. Development Constraints: Public Facilities and Services Analysis
` The land use plan ululriting pi-ocess includes an examination of the
Town's ability to provi;dc: basic: municipal services to meet anticipated
demands. The following text is supplemented by information shown on
Map 1, Existing Und Use.
1. . Water Distribution S Nicin
The Town's Water System is supplied by two wells located
.approximately one mile north of the Intracoastal Waterway bridge
along NC 50/210. Wafer is chlorinated at each 8" well. Well number
one has a pumping capacity of 350 gallons per minute and well
number two has a capacity of 4.00 gallons per minute. Storage consists
of a 100,000 gallon elevated tank in the center of Town. The system
has a capacity of supplying 1,080,000 gallons per day. The peak
demand (July 4 weekend) is 400,000 gallons per day, with an average
daily consumption of 225,280 gallons (about 21- percent of maximum
capaci4 An intercomicefioci exists with the Topsail Beach system and
one is planned (and lmdgetc:d for FY 93) for the Onslow County
system on the north end of (lie Town's system. Funds have also been
budgeted for the inUallatiou of a filtration system to remove excess
iron from the watek and for the repainting of the elevated tank.
The Onslow County yysicnl :iiphlies water to-thaUportion of the
Town lying within Onslow.
22

"
Within the next five (5) years an additional storage tank is proposed,
to give additional capacity during peak periods of use and to serve as
a back-up storage facility should the existing tank be placed out of
service. Within the next five (5) years an additional well will be needed
to increase capacity for peak usage periods and to keep pace with
projected development.
The Town is currently planning for. the replacement of 0.8 miles of
cast iron pipe to improve water quality, the installation of additional
treatment facilities and the repainting of the elevated tank.
2. Wastewater Collection and Treatment
In 1990, a Town -wide wastewater collection and treatment system was
put in operation. The treatment system and spray fields are located
about 3 miles north of Surf City off' Highway 50. There exists a few
isolated portions of Town not served by the system. The Town's FY 93
budget includes $234,759 for line improvements to expand the service
area. The system's treatment capacity is 575,000 gallons per day, as
compared with peak demand (July 4 weekend) of approximately
300,000 gallons per day (52 percent of capacity). The average daily use
of the system is 196,205 gallons (34 percent of capacity). The Town is
planning the repairs to aeration lines in' the treatment lagoons.
3. Solid Waste Collection
The Town contracts with a private company to collect garbage and
trash and haul it to the Pender County Transfer Station on Highway
17 near Topsail High School. The solid waste is then hauled by the
County to , its landfill west of Burgaw. For collections in Onslow
County, the solid waste is hauled directly to the Onslow County
landfill off Pony Farm Road southwest of Jacksonville. The Town.
recently initiated -roll-out carts for garbage pickup. A recycling center
has been established on New River Drive at the base of the elevated
tank. A county operated collection and recycling center is located at
the end of J.B. Batts road . in the extraterritorial area. The Pender
County landfill is expected to serve through 1993. The Onslow County
landfill is expected to serve through 200R. Both counties are planning
either additional landfill sites and/or expansion of their existing sites.
Aside from the landfill sites the collection system should be adequate "
for the planning period. The Town and both counties are participating
23

in recycling programs, pursuant to state laws requiring recycling by
July 1, 1991, (GS 130A-309.04).
4. Police Protection
The police department is located within the Town Hall on New River
Drive (NC 210) near Goldsboro Avenue. The department is staffed by
the chief, one lieutenant, one sergeant, three patrolmen and a
secretary. Dispatching is handled by the Pender and Onslow County
Sheriffs Offices. The department utilizes 3 patrol vehicles. A computer
system has recently been furnished to the department for record
keeping. New uniforms and improved training are scheduled for FY 93.
The Town participates in the Pender County Drug Task Force. A beach
patrol division, including life guard personnel for the central beach
area is planned for FY 93.
5. Fire Department
The Town presently has a contract with the Surf City Volunteer Fire
Department (independent of town government) to provide personnel
until October 6, 1993. In. February, 1993 the Town will sponsor an
organizational meeting for the staffing of a new department. The Town
owns the fire department building located on Topsail Drive near Batts
Avenue. Additionally the Town owns the following vehicles:
1970 Ford Pumper
1967 Ford Pumper
1984 Ford Pumper
1972 :Chevrolet Pumper.
1983 Ford Attack Truck
The Surf City Volunteer Department owns some secondary equipment
purchased with county funds. The service has a rating of 7.
The Town has begun planning for the rebuilding of the fire station,
either at its present location or at a more central location on the
island. The purchase of a new ladder and snorkel truck is being
planned.
A new fire station owned by the N.E. Pender Fire District is being
constructed by the Surf City Volunteer Fire Department about 03 mile
west of NC 50 on NC 210. The station will be named Northeast Pender
Central and will supplement fire protection in the area, but will not
replace the existing facility on the island.
24

6. Emergency Medical Service
This is Surf City's all volunteer emergency medical service, with
funding provided by the Town and through the service's own fund
raising activities. The service is housed in a building across from the
Town Hall. The service owns their building, but is sited on Town
owned land. The following equipment is owned by the service:
1980 Ford Ambulance
1983 Ford Ambulance
1979 Chevrolet Ambulance
A capital reserve fund ($15,000/year) has been started for the purchase
of new vehicles. A boat access ramp is needed for beach and waterway
rescue operations. With the purchase of a new ambulance this service
will be adequate. _
7. Recreation Facilities
Surf City's public recreational --facilities -consists of 24 ocean
accessways. There are nine local, 14 neighborhood and one regional
accessways. All but one has a dune crossover, most are identified by
signage, and 16 have parking spaces. The one regional accessway, at
New Bern Avenue, has restroom facilities. Refer to the following table
for a listing of public accessways. The numbers in the first column
refer to Map 1.
During 1993, the Town will begin the planning and scheduling the
construction of a community center and recreation facility. A mini -
park is planned for Town -owned property near the Crosswinds
development.
25

Table 12
Public Beach Access wa s
No.*
Location
Width'
Improvements
1
9th Street
L
20 feet
DC -
2
7th Street
L
20 feet
DC
3
5th Street
L
20 feet
DC
4
2nd Street
L
20 feet
DC
5
Broadway Avenue
N
20 feet
DC, 4P, signed
6
Pender Avenue
L 1
20 feet
DC, LR, signed
7
Lenoir Avenue
L
20 feet
DC, 15 min. P, marked
8
Jones Avenue
N
20 feet
DC, 2P, LR, signed
9
Craven Avenue
N
20 feet
DC, 3P, LR, signed
10
Mecklenberg Avenue
N
20 feet
DC, 15 min P, signed
11
Stevens Street/
Wilmington Ave.
N
60 feet
DC, 15 min. P, LR, signed
12
Wilmington Avenue
N
60 feet
DC, 12P, HA, PV, LR, signed
13
New Bern Avenue
R
75 feet
DC, 20P, HA, PV, RR, signed
14
Goldsboro Avenue
N
60 feet
DC, 6P, signed
15
Greensboro Avenue
N
75 feet
DC, 12P, LR, signed
16
Roland Avenue
N
75 feet
DC, 12P, LR, signed, phone
17
Kinston Avenue
N
60 feet
15 min. P, LR, signed, bike rack
18
High Point Avenue
N
50 feet
DC, 4P, signed
19
1 Raleigh Avenue
N
60 feet
DC, 5P, LR, signed
20
Durham Avenue
N
60 feet
DC, 8P, LR, signed
21
-Charlotte Avenue
N
21 feet
DC, 12P, HA, LR, signed
22
South of Quarterhorse
Street
L
20 Feet
DC
23
North of Sound Drive
L
10 feet
Signed
24
N of Elizabeth St.
L
10 feet
DC
Source: 1990 Public Shoreline Access Plan • Refer to Map 1
SYMBOL LEGEND
L = Local - DC = Dune Crossover HA = Handicap Access
N = Neighborhood P = Parking Spaces PV = Pavilion
R = Regional LR = Litter Receptacle RR = Reslrooms
Signed = CRC Public Access Sign
26

8. Street System
The public street system in the Surf City planning area is maintained.
by either the North Carolina Department of Transportation (DOT) or
by the Town of Surf City. The state DOT maintains approximately 13A
miles of road:
• N.C.50
• N.C. 210
• Secondary Roads SR 1607,1608, 1604, 1611, 1596, 1605 (in Old
Settlers Beach)
• Secondary Roads, SR 1612, 1608, 1614, 1535, 1584 (In the
extraterritorial area)
Traffic counts are periodically made by the state DOT. Three points
on state maintained roads within the planning area received such
counts. These counts are called ADTs (Average Daily Traffic). Within
the planning area these counts (average number of. vehicles within a
24-hour period) are:
Highway 210 east of the drawbridge -- 4,100 vehicles '
• Highway 210 near Town Hall -- 6,400 vehicles
• . Highway 50 south near Crosswinds -- 4,200 vehicles -
The Town maintains approximately 10.6 miles of streets. The
installation and maintenance of .additional street lighting is planned
for certain areas. The paving of all unpaved streets is an immediate
goal of the Town. Roadside ponding is a problem during
rainstorms. Aside from this situation the street
9. Administration system is currently adequate.
The administration is structured around a true council/manager form
of government. This Town function is housed within the Town Hall
and is staffed. with the following positions:
Manager
Clerk
• Community Development Director (Planner/building
inspector/code enforcement/local CAMA permitting officer)
• Public Utilities Director
• Billing Clerk
• Public Works Supervisor
• Water and Sewer Department
(2 maintenance technicians) '
27

• Public Works
(2 temporary summer employees)
• Recycling Center part-time employee
The building and staffing level will provide adequate levels of service
through the planning period.
10. Public Schools
Surf City is served by the Pender and Onslow County public school
systems. The Topsail campus complex on Highway 17 accommodates
students from kindergarten through high school. The facility is
currently utilized beyond its design capacity. Similarly, the Onslow
County school at Dixon, accommodates students from kindergarten
through high school, and is at or beyond design capacity.
28

Section H: Estimated Demand -- Projections and Analysis
A. Population Projections
1. General
One of the most important components of this plan update is the
establishment of population projections for the upcoming ten years.
These figures will be used for determining land requirements, facility
demands and to aid in the land classification process. Additionally the
statistics in this plan are available for use by the general public as a
---- resource for any number of purposes. — — -- - - - - -
2. Permanent and Seasonal Population Projections
There are basically two data sources for the Town of Surf City that
reflect growth trends and can be used as bases for making population
projections --the issuance of building permits and U.S. Census figures.
a. Building Permits
Using the issuance rate of building permits as a basis for future
population growth yields a projected increase of 23 persons per
year for the Town. This was derived in the following manner:
-Average number of dwelling units constructed during preceding five years
is 46.
-Percentage of dwellings used as permanent, year-round residences is
23.3%:
Average number of persons per dwelling in Surf City is 2.1.
-Therefore, 46 (units) x 23.3 (% permanent) x 2.1(persons) = 23 persons
per year population growth.
b. Census Data
Excluding the Old Settlers Beach annexation, Surf City grew by
an average of 41 persons per year during the period 1980 -
1990. Historically the Town's population is growing at a rate
exceeding dwelling unit construction, indicating families and
individuals are moving into existing housing stock as well as
newly constructed units.
This plan will use, as a basis for establishing a projection, a continuation of
census trends demonstrated during the last decade (41 persons per year).
Since new dwellings can be used for either permanent or seasonal residences,
census trends were deemed to be a more reliable basis.This basis yields the
29

figures shown in the table below. The peak seasonal population figures are
projected to increase at an annual rate of 4.2 percent. The average seasonal
population is estimated to be 75 percent of the peak seasonal number.
The 1992 population estimate for the planning area was derived in the
following manner. the 1990 Census figures for the incorporated town was 976;
the 1992 population of the ETJ was estimated by field observation to be 124;
and 2 years (1990-92) of historical growth rate (41/year) yields an additional
82 persons. These three components, when added result in an estimate of
1,182 persons for 1992.
Table 13
Population Estimates and Projections
Surf City, North Carolina
1990
1992
1995
2000
Permanent Population
976
19182
1,308
11518
Peak Seasonal
--
139570
15,516
19,060
Average Seasonal
--
10,178
11,637
149295
B. . Social and Economic Trend Projections
The. economy of the planning area is expected to continue at generally the
same rate as experienced during the past three years. The completion of the
Town's wastewater collection and treatment system caused an acceleration of
the Town's growth rate, particularly commercial facilities (restaurants, gift
ships, laundry, etc.). The economy of Surf City remains, and is expected to
remain, heavily based in summer and fall tourism. The Town enjoys being the
retail and services center for Topsail Island. Additional commercial growth
is expected to occur along NC 50/210 within the extraterritorial area. The area
recently annexed through the satellite annexation process is expected to be the
site of a major grocery store and accompanying business. This development
will most likely precipitate additional commercial development and
redevelopment along this one -mile corridor.
Residential construction is expected to proceed at rates approximating those
experienced during the last five years. A trend observed during the past year,
the increasing percentage of year-round or permanent residents, is expected
to continue.
30

C. Future Land Needs
The Surf City planning area is growing --growing in terms of permanent and
seasonal population, and in terms of new dwellings and businesses. Some of
these new dwellings and businesses will require the utilization of land that is
now vacant or undeveloped. Other construction will replace existing housing
units or businesses, and will therefore not require additional land. It is an
important step in the planning process to estimate the future land needs that
are expected to occur within the ten year planning period. The following table
reflects such an estimate.
Table 14
Additional Acreage
Needed to Accommodate
Anticipated Growth
Surf City Planning Area
1997 & 2002
Surf City
ETJ Area
Land Use
Acres
Acres
Acres
Acres
1997
2002
1997
2002
Residential
25
50
10
20
Commercial
3
6
5
10
Public/Institutional
2
3
2
4
Transportation & Utilities
5
10
2
4
Total Acres
35
69
19
38
The estimates shown.in the above table are based upon an assumption that,
during the next ten years, land development will continue at the same rate
experienced during the last five years.
D. Community Facilities Demand
1. ' General
The land use plan updating process includes an examination of the
ability of local governments to provide basic community services to
meet anticipated demands. The existing public facilities and services
described previously were examined for present adequacy and for
predicted adequacy during the next ten years.
31
T
r.

f
2. Water Distribution System
The immediate need is for an additional storage tank, either elevated
or ground mounted. An additional well will be needed within the next
five years.
3. Wastewater Collection and Treatment
The plant is expected to have adequate capacity during the planning
period. Line extensions are planned to expand the service area, and
lagoon repairs are also planned.
4. Solid Waste Collection
The Town plans to evaluate alternatives to the present service which
utilizes a private contractor to collect solid waste and haul it to
landfills. The present landfill located west of Burgaw should serve the
County through 1993. Presently, alternative sites for the future landfill
are being evaluated by the County administrative staff and
commissioners. The county plans to continue indefinitely the operation
of its collection and recycling site in the extraterritorial area off NC
50/210 at J. B. Batts Road.
5. Police Protection, Emergency Medical Services and Administration
These services are subject to continual and incremental upgrading in
order to meet general population growth and development, and to meet
seasonal demands.
6. Fire Department
The significant needs for this service are the rebuilding of the fire
station and the purchase of a new ladder and snorkel truck.
7. Recreation Facilities
The need exists for outdoor recreation facilities, including tennis and
basketball courts and for a community center. Development of an
estuarine (sound) access project or with a boat ramp is needed. The
Town has begun planning for the estuarine facility.
32

8. Street system
Aside from routine maintenance the primary need for the street system
is the alleviation of localized ponding during rainstorms. This is a
problem common to most beach communities. The Town and the N.C.
Department of Transportation are endeavoring to correct individual
problem areas.
33

Section III: Policy Statements
A. General
This section of the plan update contains statements of local policy on land
use issues which will affect the Town during the next ten year planning
period. An analysis of the implementation effectiveness of previous policies
is summarized below._ Subsection C outlines the procedure_ followed for policy
development, and also outlines the format used in this plan for the
presentation of policies, implementation methods and related material. The
policy statements beginning with Subsection D below, are organized into five
topics: - -- - ------ --
• Resource Protection
• Resource Production and Management
• Economic and Community Development
• Continuing Public Participation
• Storm Hazard Mitigation, Post -Disaster Recovery and Evacuation
B. Previous Policy Effectiveness Analysis
Refer to a preceding subsection (I.A.4) on page 2 and Appendix a that reflects
r an analysis of the implementation effectiveness of the Town's 25 policies as
contained in the last plan update.
C. Policy Development Procedure
The initial step in the development of the policy statements included in this
plan update was the identification and definition of issues. The issue
identification process involved six sources:
1. The CAMA Land Use Planning Guidelines
2. The 1987 Land Use Plan
3. Town Staff and Consultant
4. Town Planning Board
5. Town Council
6. Public Response
The issues were organized into a format following the CAMA Land Use
Planning Guidelines. Each issue that is applicable to the Town is
followed by a policy statement and an outline of the means proposed for
implementation. In some instances, several alternative statements
were considered in response to an issue. In those instances, the Planning
34

Board debated the merits of each alternative and selected one that was
considered to be most appropriate.
During the policy updating, a determination of consistency was an integral
component of the process. The policies, land classification map, and related
plans and ordinances have been reviewed, analyzed and adjustments
accordingly made so that the Town can ensure compatibility and consistency
among all of its planning elements. Also refer to subsection I.E. page 15 for
a description of local plans and ordinances and their relationship to the land
classification map and policies.
" The Surf City Town Council has adopted the following policies to guide land'
development within its jurisdiction over the next ten years. These policies are
intended to guide not only local government decisions but also state and
federal agency decisions in accordance with the Coastal Area Management Act
(1974) and the Coastal Zone Management Act (1972). These policies establish
a systematic basis by which proposed developments will be judged. If a
proposed project or development would violate the intent of these policies,
action to prevent its construction will be taken by the local, state and federal
government agencies with jurisdiction.
This plan's policy statements, implementation descriptions and land
classification applications follow.
D. Resource Protection Policies
1. Constraints to Development
Certain elements of our natural environment should not only be
protected, but are in general unsuitable for urban development and are
therefore considered constraints. These natural resource constraints
are certain soils, flood prone areas and wetlands.
a. Soils
Policy
To permit development only on those land areas having soil
characteristics suitable for intended uses. Since the Town
provides a central wastewater collection and treatment system,
soil characteristics for septic tank use are not critical concerns
for the incorporated area. Within the extraterritorial area and
within a few scattered locations within the Town limits where
septic tanks may be " the only practicable alternative, septic
35

tanks will be,. permitted only for properties having soil
characteristics suitable for on site sewage disposal.
Implementation
The Town's Inspection Department will determine the general
suitability of soils for intended development. The Pender and
Onslow County Health Departments issue septic tank permits
only after determination is made that soils are suitable for
septic tanks. The Town's Code of Ordinances requires the
connection of a dwelling or business to the Town system if the
property is within a reasonable distance of the collection------.__-,*
system.
Application to Land Classes
This policy applies primarily to the Developed, Developed -
Maritime Forest, and Limited Transition classes.
b. Flood Prone Areas
Policy
To permit development within flood prone areas only if done in
a manner that will minimize the loss of human life and damage
to property.
Implementation
Development within flood prone areas is controlled by the
following means:
Zoning Ordinance
CAMA Regulations
Flood Damage Prevention Ordinance (reflects FEMA
regulations)
Application To Land Classes
This policy applies primarily to the Developed, Developed -
Maritime Forest and Limited Transition classes.
36

C. Wetlands
Poliry
The Town recognizes the critical functions and values
associated with coastal and freshwater wetlands, and
accordingly, the Town supports the protection of wetlands.
Implementation
• Enforcement of Section 404 provisions is the
responsibility of the Corps of Engineers.
• The State of North Carolina, CAMA, and the Town have
policies, programs and ordinances associated with the
protection of wetlands. Local ordinances that assist in
the protection of wetlands include Zoning, Subdivision
Regulations and the Utilities Ordinance.
Application To Land Classes
This policy applies primarily to the Developed, Developed -
Maritime Forest, Limited Transition and Conservation- _
Marshland classes.
2. Areas of Environmental Concern (AECs)
The Coastal Area Management ACT (CAMA) directs the
Coastal Resources Commission (CRC) to identify and designate
"areas of environmental concern" (AECs) in which uncontrolled
development might cause . irreversible damage to property,
public health and the natural environment. The CRC has
designated four categories of AEC: the estuarine system, the
ocean hazard system, public water supplies, and natural and
cultural resource areas.
a. Estuarine System
The Estuarine System AECs are a significant and major use of
land within the Town's planning jurisdiction and therefore to
this plan.
37

Policies for components of this AEC are given below:
1. Coastal Wetlands
Policy
Activities shall be restricted to those which do not
significantly affect the unique and delicate balance of
this resource. Suitable land uses include those giving
highest priority to the protection and management of
coastal wetlands, so as to safeguard and -perpetuate their
biological, social, economic, and aesthetic values to
establish a coordinated management system capable of
conserving and utilizing coastal wetlands as a natural
resource essential to the functioning of the entire
estuarine system. Highest priority of use shall be
allocated to the conservation of existing coastal
wetlands. Second priority shall be given to those uses
that require water access and cannot function elsewhere.
Application To Land Classes
This policy applies to the Conservation -Marshland class.
2. Estuarine Waters
Policy
In recognition of the importance of estuarine waters for
the fisheries and related industries as well as aesthetics,
recreation, and education, Surf City shall promote the
conservation and quality of this resource. Activities in
the estuarine water areas shall be restricted to those
which do not permanently or significantly affect the
function, cleanliness, . salinity, and circulation of
estuarine waters. Suitable land or water uses include
those giving highest priority to the conservation and
management of these areas so as to safeguard and
perpetuate their biological, social, economic, and
aesthetic values and to establish a coordinated
management system capable of conserving and utilizing
estuarine waters in order to maximize their benefits to
man and the estuarine system. Highest priority of use
38

shall be allocated to the conservation of estuarine waters
and its vital components. Second priority shall be given
to uses that require water access and cannot function `
elsewhere.
Application to Land Classes
This policy applies to the Conservation -Marshlands
class.
3. Estuarine Shorelines
Policy
Surf City recognizes: (1) the close association between
estuarine shorelines and adjacent estuarine waters; (2)
the influence shoreline development has on the quality
of estuarine life; and (3) the damaging processes of
shorefront erosion and flooding to which the estuarine
shorelines are subject.
Suitable land uses are those compatible with both the
dynamic nature of estuarine shorelines and the values of
the estuarine system.
Residential, recreational, and commercial land uses are
all appropriate types of use along the estuarine shoreline
provided that:
(a) a substantial chance of pollution occurring from
the development does not exist.
(b) natural barriers to erosion are preserved and not
substantially weakened or eliminated.
(c) the construction of impervious surfaces and areas
not allowing natural drainage is limited to only
that . necessary to adequately service the
development.
(d) standards of the North Carolina Sedimentation
Pollution Control Act of 1973, as amended, are
met.
39

(e) development does not significantly interfere with
existing public rights of access to, or use of,
navigable waters.
Application To Land Classes
This policy applies to the Conservation -Marshland class.
4. Public Trust Areas <
Policy
In recognition of certain land and water areas in which
the public has certain established rights and which also
support valuable commercial and sports fisheries, have
aesthetic value, and are resources for economic
development. Surf City shall protect these rights and
promote the conservation and management of public
trust areas. Suitable land or water uses include those
which protect public rights for navigation and recreation
and those which preserve and manage the public trust
areas in order to safeguard and perpetuate their
biological, economic, social, and aesthetic value, e.g.
dredging and bulkheading.
Application to Land Classes
This policy applies primarily to the Conservation -
Marshland and Conservation -Public Beach Access
classes.
b. Ocean Hazard Areas
Policy
(1) To the maximum extent feasible, and consistent with a
property owner's rights to reasonable use of his
property, use of land in ocean hazard areas shall be
located, designed, and constructed so as to maximize a
structure's protection from wind and water and to
minimize damage to the protective land forms of dunes
and beaches in accordance with CAMA regulations.
40

0) Preferred erosion control measures to combat ocean
front erosion shall be beach renourishment projects and
small scale techniques such as using sand fences, beach
grass planting, and discarded christmas trees.
(3) Newly created dunes shall be aligned, if possible, with
existing adjacent dune ridges and shall be of the same
general configuration.
(4) Adding to dunes shall be accomplished in such a
manner that the damage to existing vegetation is
minimized. Filled areas shall be immediately replanted
or temporarily stabilized until planting can be
successfully completed.
(5) Land uses permitted in the ocean erodible areas shall be
those uses permitted by the Town Zoning Ordinance.
(6) Land uses in flood hazard areas shall be those permitted
by the Town Zoning Ordinance, which shall include -
residential, commercial and institutional; provided,
however, that all new construction shall meet _
requirements of the Surf City Flood Damage Prevention
Ordinance.
Implementation
• Permit only land uses which conform to the standards
of CAMA Guidelines (15A NCAC 7H) for development
within estuarine system.
• Subdivision Regulations
• Zoning Ordinance
• CAMA minor development permitting process as
administered by local permitting officer
• CAMA major development permitting process as
administered by the Division of Coastal Management.
Application to Land Classes
This policy applies primarily to the Developed and
Conservation -Public Beach Access classes.
41

3. Land Uses and Densities in Proximity to Outstanding Resource Waters
(ORW)
No water areas within the Town's planning jurisdiction have been
designated "Outstanding Resource Water" (ORW) by the N.C.
Environmental Management Commission. However, the Town is
committed to the protection of all estuarine water resources.
Implementation
Not applicable
4. Hazardous or Fragile Land Areas
a. Maritime Forests
Policy
It shall be the policy of the Town to encourage the maintenance of the
existing maritime forest and shrub thickets by only allowing
development that will cause the least practicable disruption to the
maritime forest cover. All uses currently permitted under the Town
Zoning Ordinance will be allowed in such areas but only if consistent .
with the above policy. To allow for specific implementation, it shall be
the Town's policy that any development within a designated maritime
forest or shrub thickets area, shall file a site plan with the Town prior
to the issuance of any building permits. Further; the Town's zoning
ordinance will be amended to designate all maritime forest or shrub
thickets areas as a "Conservation -Overlay Zone" and any multi -family
development within such zone shall be permitted only as conditional
use.
Implementation
• Enforcement of the Town's Zoning Ordinance
Application to Land Classes
This policy applies to the Developed -Maritime Forest class.
42

b. Wetlands
Policy
The Town supports protection and preservation of wetlands
(freshwater, marshes, "404" and pocosins).
Implementation
• Subdivision Regulations
• Zoning Ordinance
• CAMA minor development permitting process as administered
by building inspector.
• Encouragement of innovative and creative design enabling
appropriate utilization of property while protecting freshwater
wetlands.
• Supporting and assisting, when needed, the Corps of Engineers'
administration of Section 404 of the Clean Water Act.
• Supporting and assisting the Division of Coastal Management
in the major and minor permitting process.
Application to Land Classes
This policy applies .primarily to the Developed, Developed -Maritime
Forest, Limited Transition and Conservation -Marshlands classes.
C. Shellfishing Waters
Background
These are tidal salt waters classified SA by the North Carolina
Environmental Management Commission. In general, this
classification includes all of the sounds within the Surf City Planning
Area.
Policy
It is Town policy to recognize this valuable and fragile resource by
providing protection through the enforcement of all applicable
regulations to development or land ' disturbing activities having a
possible impact upon these waters. Additionally, the Town will assist
and advise other governmental agencies having jurisdiction over
protection of these waters and along adjoining estuarine shorelines.
43

Implementation
• Zoning Ordinance
• Subdivision Regulations
• Building permitting process
• CAMA minor development permitting process as administered
by building inspector
• Supporting and assisting Division of Coastal Management in
the CAMA major permitting process.
Application to Land Classes
This policy applies primarily, to the Developed, Developed -Maritime
Forest, Limited Transition and Conservation -Marshlands classes.
d. Cultural, Historical and Archaeological Resources
Policy
It is Town policy to cooperate with state and federal agencies or other
individuals and institutions in the protection and identification of
significant existing or yet unidentified cultural, historical, or
archaeological resources. The Town will notify the North Carolina
Department of Cultural Resources of proposed development in any
potentially sensitive area within the Town's planning area.
Implementation
• Coordination with the North Carolina Department of Cultural
Resources.
Application to Land Classes
This policy applies to all classes. .
5. Hurricane and Flood Evacuation Needs and Plans
(Refer to subsection H, Storm Hazard Mitigation, Post -Disaster
Recovery and Evacuation Plans for statements of policy)

6. Protection of Potable (Drinking) Water Supply
Policy .
It is the policy of Surf City to protect and beneficially develop its
ground water resources.
Implementation
• Ownership of land surrounding wellheads
• Local land use controls
--- - N.C. Wellhead Protection Program ---- --
Application to Land Classes
This policy applies to all classes.
7. Use of Package Treatment Plants and Alternative Treatment Systems
Policy
The Town has in operation a central wastewater collection and "
treatment system. Therefore package treatment plants and alternative
treatment systems are not allowed within the incorporated area.
However, package and alternative systems will be allowed in the
extraterritorial area if all applicable governmental regulations are met.
Implementation
• Town Code, Chapter 18 - Utilities
• Enforcement of governmental regulations applicable to package
and alternative treatment systems.
Application to Land Classes
This policy applies to all classes.
8. Stormwater Runoff
Policy
It is the policy of the Town to promote the use of best available
management practices to minimize the threat of pollution from storm
45

water runoff. This will be accomplished through site plan reviews, as
required by the Town's development ordinances (zoning and
subdivision regulations). Examples of these practices include using
pervious or semi -pervious materials, for driveways and walks, retaining
natural vegetation along marsh and waterfront areas to retain its
natural filtering properties, and allowing storm water to percolate into
the ground rather than discharging it directly to coastal waters. Storm
water detention ponds can also reduce the direct discharge of
pollutants to coastal waters. The Town will comply with N.C. Division
of Environmental Management standards for storm water runoff. The
Town will develop a storm water management ordinance and consider
its adoption within the next planning period.
Implementation
• Zoning Ordinance
• Subdivision Regulations
• N.C. Division of Environmental Management regulations
• CAMA Regulations
Auplication to Land Classes
This policy applies to all classes.
9. Marinas, Floating Home Development and Boat Dry Stack Storage
Facilities
Policy
It is the policy of Surf City to consider the appropriateness and
desirability of any proposal to construct a "marina on the basis of
impact on neighboring uses including aesthetics, hours of operations;
traffic generation including ability of the existing road network to
adequately handle peak traffic loads; environmental impacts including
water quality and dredge spoil disposal sites; and consistency of the
proposal with other policies of the Land Use Plan. Further, floating
homes are prohibited as Town ordinances prohibit living aboard any
vessel. The Town will develop and consider amendments to the zoning
ordinance that will more clearly regulate small marinas (marinas
having fewer slips than those regulated by CAMA).
46

Implementation
• Zoning Ordinance
• CAMA major development permitting process
Application to Land Classes
This policy applies primarily to the Developed, Developed -Maritime
Forest, Limited Transition, and Conservation -Marshland classes.
10. Industrial Impacts on Fragile Areas
Policy
Industrial development is not considered an acceptable use within the
island portion of Surf. City. Within the extraterritorial area light
industrial development will be considered for certain portions of the
ETJ only if the following conditions are met:
a. CAMA minor or major permits can be obtained.
b. Applicable zoning ordinance provisions are met.
C. Within coastal wetlands, estuarine waters, and public trust
waters, no industrial use will be permitted unless such use is _
water dependent.
Implementation
• Zoning Ordinance
• CAMA minor and major permitting process.
Application to Land Classes
This policy applies to the Limited Transition class.
11. Development of Sound and Estuarine Islands
Policy
It is Town policy to allow development of sound and estuarine islands,
if such development is consistent with the Land Classification Map
and applicable Town and other governmental regulations.
47

Implementation
• Zoning Ordinance
• Subdivision Regulations
• Minor and major development permitting process
Application to Land Classes
This policy applies to the Conservation -Marshlands class.
12. Sea Level Rise Considerations
Policy
Surf City is aware of the issue of sea level rise due to global warming
being debated within the scientific community. The Town will monitor
sea level rise literature and will respond accordingly by amending
applicable regulatory instruments to protect lives and property.
Implementation
The Town Planning Board will monitor scientific literature and state
and federal policies regarding sea level rise. If a response to this issue
becomes necessary, the Planning Board will propose recommendations
such as increased setbacks, raising floor levels of future buildings,
bulkhead installation, etc., to the Town Council.
Application to Land Classes
This policy applies to all classes.
13. Upland Excavation for Marina Basins
Policy
It is Town policy to allow upland excavation for marina basins,
provided all aspects of the marina are consistent with local, state and
federal policies and regulations.
Implementation
• Zoning Ordinance
• CAMA minor and major development permitting processes.
48

ARplication to Land Classes
This policy applies to the Developed, Developed -Maritime Forest,
Limited Transition and Conservation -Marshland classes.
14. Damaging of Existing Marshes by Bulkhead Installation
Policy
The Town does not oppose bulkhead installation provided construction
is consistent with 15A NCAC 7H (State guidelines for areas of
environmental concern). Bulkheads must be constructed landward of
significant marshland areas. Installation of bulkheads must not
damage marshes.
Implementation
• CAMA major and minor development permitting processes.
Application to Land Classes
This policy applies to, the Developed, Developed -Maritime Forest,
Limited Transition and Conservation -Marshland classes.
E. Resource Production and Management Policies
1. Productive Agricultural Lands
Policy
This resource is found in limited areas only within the extraterritorial
jurisdictional (ETJ) area on the mainland. Agricultural uses are
permitted within the ETJ, along with residential and certain non-
residential uses. Agricultural lands are not afforded protection beyond
those measures applied to lands suitable for non-agricultural uses.
Implementation
• The Surf City Zoning Ordinance
• The Surf City Extraterritorial Jurisdiction Ordinance
• Stormwater management plan (proposed)
49

Application to Land Classes
This policy applies to the Limited Transition class.
2. Commercial Forest Lands
Policy
This . resource is found only in portions of the extraterritorial
jurisdictional area (ETJ) on the mainland. Forestry activities are
permitted within the ETJ, along with residential and certain non-
residential uses. Lands used for forestry are not afforded protection
beyond those measures applied to lands suitable for non -forestry use.
Implementation
• The Surf City Zoning Ordinance
• The Surf City Extraterritorial Jurisdiction Ordinance
Application to Land Classes
This policy applies to the Limited Transition class.
3. Existing and Potential Mineral Production Areas
Policy
No existing or potential mineral production areas have been identified
within Surf City's planning jurisdiction. Therefore, no policy is given
for this resource.
Implementation
Not applicable
4. - Commercial and Recreational Fisheries
a. Nursery and Habitat Areas
Policy
The Town will support recreational and commercial fishing
through the protection of shellfish and finfish nursery and
habitat areas. Therefore, any development which will profoundly
50

and adversely affect coastal or estuarine waters will be
prohibited by applicable regulations. During the design,
construction and operation of water dependent developments,
efforts must be made to mitigate or prevent negative effects on
water quality that would have an impact upon nursery or
habitat areas.
Implementation
• The Surf City Zoning Ordinance .
• The Surf City Subdivision Regulations
• The Surf City Extraterritorial Jurisdiction Ordinance
• The CAMA minor and major development permitting
processes
• N.C. Division of Marine Fisheries
Application to Land Classes
This policy applies to all classes.
b. Outstanding Resource Waters
Policy
No waters within the Town's planning jurisdiction have been
designated "Outstanding Resource Water" (ORW) by the N.C.
Environmental Management Commission. However, the Town
is committed to the protection of estuarine waters as a means
of preserving fish nursery and habitat areas the Town is
committed to the protection of estuarine waters for their
recreation values.
Implementation
Not applicable.
C. Trawling Activities in Estuarine Waters
Policy
Trawling in estuarine waters within the Town's jurisdiction
shall be allowed; if such activity is in compliance with North
Carolina Division of Marine Fisheries regulations. ,
51

Implementation
N.C. Division of Marine Fisheries regulations.
Application to Land Classes
This policy applies to the Conservation -Marshlands class.
5. Off -Road Vehicles
Policy
Off -road vehicles for commercial and recreational fishing shall be
permitted on the beach between September 10 and May 15, during
daylight hours provided such vehicles are manufactured four-wheel
drive vehicles and have a valid Beach Permit issued by the Town of
Surf City. Vehicles are allowed access to the beach only at dune
crossover points designated by the Town of Surf City. Vehicles for
permanently physically disabled persons may be operated on the beach
at any time of the year within an area extending to 1000 feet south of
the vehicular access point near Kinston Avenue.
Implementation
• Surf City Code Section 4-34
• For disabled persons, the Town will issue a letter authorizing
use of a vehicle on the beach.
Application to Land Classes
This policy applies to the Conservation -Public Beach Access class.
6. Residential, Commercial and Industrial Land
Development Impact on Any Resource
-- Policy
It is Town policy to limit development to residences and certain
institutional and commercial uses within the incorporated area. Within
the Extraterritorial Jurisdiction Area, certain additional uses such as
agriculture, heavy commercial and light industrial uses may be
permitted. All proposed developments within the planning area are
reviewed by the Town with an objective of minimizing or eliminating
any negative impact upon the area's natural resources.
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Implementation
• Surf City Zoning Ordinance
• Surf City Subdivision Regulations
• Surf City Extraterritorial Jurisdiction Ordinance
• The CAMA minor and major development permitting process
Application to Land Classes
This policy applies to all classes.
7. Impact of Peat or Phosphate Mining on Any Resource
Policy
Not applicable to the Surf City Planning area.
F. Economic and Community Development Policies
1. Types and Locations of Desired Industries
Policy
Industry is not a permitted use of land within the incorporated Town.
Certain light industrial operations, compatible with adjoining land
uses, are permitted within the area of extraterritorial jurisdiction.
Implementation
• The Surf City Zoning Ordinance
• Extraterritorial Jurisdiction Ordinance
• CAMA Major and Minor permitting process
Application to Land Classes
-- This policy applies to Developed, _ Developed -Maritime Forest and -
Limited Transition classes.
2. Local Commitments to Providing Services to Development
� g P
Policy
The Town provides potable water, wastewater collection and treatment,
solid waste collection and police protection services to all Town
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residents and property owners. Fire protection and emergency medical
services are provided through financial support of volunteer
departments. Administrative services, including zoning ordinance
enforcement, CAMA regulations enforcement and building inspection
are provided.
Within the extraterritorial jurisdiction area, fire protection, rescue
services, zoning ordinance enforcement and building inspection
services are provided. The Pender County Sheriffs Department
provides police protection within the extraterritorial area.
Implementation
Surf City Code of Ordinances, Chapter 18 - Utilities
Surf City Extraterritorial Jurisdiction Ordinance
Application to Land Classes
This policy applies to Developed, Developed -Maritime Forest and
Limited Transition classes.
3. Types of Urban Growth Patterns Desired
Policy
The Town policy is to permit residential and certain institutional and
commercial land uses within the incorporated area. Preferred
commercial uses are those necessary to provide retailing and services
to residents and visitors.
A broader spectrum of land uses is permitted in the extraterritorial
area. These additional uses include agriculture, heavy commercial and
light industrial.
Implementation
The Surf City Zoning Ordinance
Application to Land Classes
This policy applies to Developed, Developed -Maritime Forest and
Limited Transition classes.
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4. Redevelopment of Developed Areas
Policy
The Town supports and encourages redevelopment, upgrading and
adaptive reuse of properties. The re -subdivision or in -filling of existing
platted properties is preferred over the development of areas requiring
new streets and utilities.
Relocation of structures threatened or endangered by ocean erosion is
encouraged.
Implementation
• Surf City Zoning Ordinance
• Surf City Subdivision Regulations
• CAMA Regulations
Application to Land Classes
This policy applies to Developed, Developed -Maritime Forest and
Limited Transition classes.
5. Community Appearance
Policy
The Town is committed to the upgrading of the Town's appearance.
Implementation
• Outdoor Advertising Regulations (within the Zoning Ordinance)
• Landscaping Ordinance
• N.C. Department of Transportation landscaping projects
• Town street maintenance program
- Activities by the Town's Beautification Committee
• Local beautification projects involving groups and/or individuals
• "Beach Sweep" program
• Street lighting ordinance (for new subdivisions)
• Encouragement of property owners to improve appearance of
their property
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Application to Land Classes
This policy applies to all classes.
6. Commitment to State and Federal Programs
Policy
The Town supports state and federal programs such as erosion control,
beach renourishment, public access, highway improvements and
channel dredging.
Implementation
The Town will implement this policy through appropriate
administrative and political actions by the Town staff and/or the Town
Council.
Application to Land Classes
This policy applies to all classes.
7. Assistance to Channel Maintenance and Beach Nourishment Projects
Policy
The Town supports channel maintenance and beach nourishment
projects undertaken by local, state and federal agencies or sponsorship.
Implementation
The Town will implement this policy through appropriate
administrative and political actions by the Town staff and/or the Town
Council.
Application to Land Classes
This policy applies to Conservation -Marshlands and Conservation -
Public Beach Access classes.
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8. Energy Facility Siting and Development
a. Electric Generating Plants
Policy
Electric generating plants are not permitted within the Surf City
planning area. Windmills may be permitted through the issuance of a
special use permit.
Implementation
Zoning Ordinance
Application of Land Classes
This policy applies to all classes.
b. Inshore and outer continental shelf (OCS) oil or gas
exploration or development
Policy
The Town does not oppose OCS oil or gas exploration or development,
provided an environmental impact statement has been prepared and
a finding of no significant impact on the environment has been made.
Implementation
The town will initiate appropriate administrative and political actions
by the Town staff and/or the Town Council.
Application to Land Classes
This policy applies primarily to the Conservation -Public Beach Access
class.
9. Tourism
Policy
Tourism is the major component of the Town's economy, and is
therefore promoted directly and indirectly.
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Implementation
The Town is a contributing member of the Greater Topsail Island
Chamber of Commerce. Additionally the Town contributed to an
outdoor advertising campaign sponsored by the -local real estate
association. The Town uses funds collected through the
accommodations tax for access maintenance and beach clean-up work.
Application to Land Classes
This policy applies to all classes.
10. Beach and Estuarine Water Access
Policy
The Town's policy was developed in the 1990 Public Shoreline Access
Plan and is reflected below.
a. It is the general policy of the Town of Surf City to: provide,
ensure, protect, and maintain optimum public access to its
ocean and estuarine shorelines, consistent with the right of
access to public trust lands and waters, the need to protect and
preserve the island's natural resources, and the protected rights
of private property owners.
b. To protect, preserve, and enhance for future generations the
quality and integrity of the island; its ocean, dunes, and
beaches, the maritime forests, and the estuarine waters and
marshes, and all fisheries and wildlife habitats of the
ecosystem.
c. To develop, improve, and maintain its system of public
shoreline accessways, using this plan as a guide to accessway
location, present status, and community need information.
d. To regularly assess the needs of public access facilities, seeking
public input to insure that the community's needs and desires
are known and to plan for meeting those needs. It is the policy
of the Town of Surf City to: seek the opinions and comments of
the community in the continuing public access program, and to
inform them of the status of the existing facilities, improvement
plans, and policy implementation on a regular basis.
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e. To justify to the community the development or improvement,
location, design, and continuing maintenance of accessways as _
described in the North Carolina Coastal Area Management Act
and reflected in the location, site, use standards, and
recommendations adopted through this shoreline access plan.
f. To assure that all residents and property owners who will be
affected by a proposed development or improvement of
shoreline access be notified of the proposed action in advance,
thereby allowing time for public comment.
g. To consider aesthetic impacts when providing public access to
the ocean and sound, and to assure that development and
improvements of accessways are planned and carried out with
due sensitivity to the natural environment and community
appearance.
h. To seek and acquire to secure the use of lands and facilities for
public access to ocean and estuarine shorelines and waters
through dedication, contribution, donation, developer impact
fees or subdivision regulations, and financial (and technical)
assistance from federal, state, and county governments.
i. To work with the Coastal Resources Commission in the
formulation and implementation of policies for beach access in
coastal, NC and to provide a. local forum_ through which
interested citizens, citizen's groups, and others may discuss
public access needs.
Implementation
The Surf City Zoning Ordinance
• The Surf City Subdivision Regulations
• Surf City Beach Access Plan
Application to Land Classes
This policy applies to all classes.
11. Anticipated Residential Development
Policy
a. Types: The predominant residential types anticipated are:
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single family (both conventional and manufactured), duplexes,
low rise multi -family (townhouses and condominiums).
b. Densities: The anticipated densities will range from a low of
4.3 units per acre for single family developments to a high of
24.0 units per acre in certain multi -family developments.
C. Location:
Manufactured units are located primarily at the north end of
Town and within the extraterritorial area. Other dwelling types
are located with a fairly homogenous mix throughout Town.
d. Services required to support anticipated development:
Increased water supply facilities, and incremental increases in
police and fire protection.
1. Implementation
• The Surf City Zoning Ordinance
• The Surf City Subdivision Regulations
Application to Land Classes
This policy applies to the Developed, Developed -Maritime Forest and
Limited Transition classes.
12. Land Use Trends and Carrying Capacity Analysis
a. The most remarkable developmental trend observed during the
past five years has been the development (and redevelopment)
of commercial properties in the central portion of Surf City.
These commercial properties include five restaurants, and a
number of facilities housing retailing and services.
b. Refer to Section II, Subsection D; Community Facility
Demands on page 29 for a discussion of future Town needs
regarding accommodating anticipated growth.
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G. Continuing Public Participation
Policy
The Town will encourage public involvement in the land use plan updating
process. The Town will seek to ensure that all segments of the community
have a full and adequate opportunity to be informed and to participate in the
planning decision -making process. The Town's policy on Public Participation
consists of four components:
1. Public Participation Plan
The Surf City Planning Board prepared a Public Participation Plan at
the beginning of the land use plan updating process. The Plan was
subsequently adopted by the Town Council on April 7, 1992. The
Participation Plan, shown as Appendix b, reflects:
• background information on the updating process
• reasons for updating
• designation of the local planning board as the responsible
agency for the project
• public information and education schedule
• initial public information meeting
• goals and objectives of the updating process.
2. Public Education on Planning Issues
The means by which the public is informed of planning issues include
the following:
• through the initial public meeting on the updating process
• through questionnaires.
• through Town Planning Board and Council meetings.
• through newspaper coverage of Town meetings.
3. Continuing Public Participation in Planning
Similar to the means listed for, 2. above, continuing public
participation in the planning process will involve the following
methods:
• public hearings on the adoption of the updated land use plan,
zoning and other ordinance revisions.
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• public notices placed at the Town Hall.
Planning Board and Council meetings.
4. Citizen Input in Developing Land Use.Plan Policy Statements
This means used to solicit public input into the policy statement
formulation included the following:
• The initial public meeting for the updating process. The
meeting was announced through a newspaper article.
• the questionnaire provided to all property owners and residents
and visitors requesting a form.
• the Planning Board meeting dates for the updating process were
announced in the public participation plan.
Application to Land Classes
This policy applies to all classes.
H. Storm Hazard Mitigation, Post -Disaster Recovery and Evacuation Plan
1. Intent
The purpose of this Plan section and associated policies is to guide the
development of the Surf City planning area so that the risk of damage
to property and the threat of harm to human life from coastal storms
is kept to a minimum level.
2. Effects of. Coastal Storms Upon the Surf City Planning Area
The entire Town of Surf City is susceptible to significant storm
damage from a hurricane or a storm of similar magnitude. About 76%
of the development in the Town's planning area is located in AEC's or
in areas susceptible to flooding associated with the 100 year storm.
The entire Town is susceptible to wind damage.
3. Related Documents
a. The Town is subject to the "fender County Emergency
Operations Plan for Multi -Hazards" approved by the County
Commissioners on September 26, 1988. Additionally Onslow
County has adopted a document, EmergencyOperations Plan for
Multi -Hazards addressing floods and hurricanes and 11 other
potential hazards.
b. The Emergency Operations Plan contains the "Pender County
Emergency Management Ordinance" which was ratified and
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adopted by the Town (along with, the County and the other
municipalities in the County) on October 1, 1988.
c. The "fender County Hurricane Evacuation Plan" has been
approved by the Town in 1988, along with the County and other
municipalities within the County.
d. "Flood. Insurance Study,Town of Surf City, North Carolina"
dated November, 1981, prepared by the Federal Emergency
Management Agency. The study includes Flood Insurance Rate
Maps (FIRM) with a revision date of February 15, 1985.
e. Flood Damage Prevention Ordinance, adopted September 29,
1987, and subsequently amended on June 1992.
4. Composite Hazards Map
Map 2 reflects flood hazard areas (100 year flood plain "A" zones) and
"V" zones constituting the Ocean Hazard System Area of
Environmental Concern. The hazards data are shown on this map
overlaying a display of existing land use. '
5. Hazardous Area Land Use Inventory
The amount of existing.development at risk for each of the hazardous
areas is shown below:
• Flood Hazard Area --100 year flood plain ("A" Zones) contains
1,599 structures.
• Flood Hazard Area ("V' Zones) affects approximately 85
structures.
Approximately 76 percent of the planning area development is at risk
from flood hazards.
6. Coastal Storm Hazard Mitigation Policies
a. Mitigating the effects of high winds, storm surge, flooding, wave
action and erosion.
The Town regulates development within hazard areas primarily
through the zoning ordinance, subdivision regulations, building
code and the flood damage prevention ordinance.
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The. Town enforces the North Carolina Building Code which
includes provisions for construction standards for resistance to
the effects of coastal winds and flood wasters.
The "Flood Damage Prevention Ordinance" adopted by the
Town in September, 1987, along with the Flood Insurance Rate
Maps (FIRM), are the primary instruments for controlling
construction in hazard areas.
Renourishment, supplemented by land use controls, access
control and vegetation maintenance, is the preferred alternative
for erosion control.
Since the dune and berm is a resource used by persons from
throughout the region and state, the cost of its maintenance
should be distributed among the user -beneficiaries in equal
proportion to the benefit received.
The expenditure of public funds for dune and berm protection
must be complemented by the provision of public access to the
beach and shore.
To protect the dune system and its stabilizing vegetation by (1)
routing the flow of pedestrian traffic to central points of access
to the water, and (2) enforcing dune protection ordinances; (3)
encourage property owners to purchase and install sand fences
and plant appropriate vegetation.
b. Discouraging High Density and Large Structure Development
in the Most Hazardous Areas.
It is the policy of the Town to discourage high density and large
structure development within the Town's planning jurisdiction.
This policy is enforced through the Town's Zoning Ordinance
which limits development to a maximum of 24 units per acre
and a maximum height of 48 feet.
C. Acquisition of Land in the Most Hazardous Areas.
The Town of Surf City may consider the acquisition of parcels
of land located in hazardous areas for the purpose of shore
front access or other appropriate use. Acquisition may be by
purchase or dedication by others.

The Conservation Tax Credit Certification and Senate Bill 405
"An Act to Increase the Maximum Income Tax Credit for
Donations of Real Property for Land Conservation" yields the
possibility of tax credits to those who will donate property.
d. Evacuation.
Surf City has adopted a Hurricane Emergency Plan in
conjunction with the Town of Topsail Beach.
The plan presents a program for carrying out evacuation
operations as part of a five phase effort: Condition 2 -
Hurricane Warning (approximately 24 hours to forecasted
landfall); Condition 1 - Evacuation Phase (12 Hours or less to
expected landfall); Condition 0 - Landfall Imminent: and
Reentry. The Plan describes how specific preparatory,
shutdown, warning and evacuation operations will be conducted
by Town personnel during each phase of the evacuation process.
Application to Land Classes
This policy applies to all classes.
7. Post -Disaster Reconstruction Plan
Policy.
The Town's Post Disaster Reconstruction Plan is dated June,1984 and
is organized in the following sections:
• Introduction
• Organization of Local Damage Assessment Team
• Damage Assessment Procedures and Requirements
• Organization of Recovery Operations
• Recommended Reconstruction Policies
The following provides a summary of the Plan's most important
provisions and policies from each of these five sections:
a. Introduction.
Defines plan purpose and use; identifies three distinct
reconstruction periods: Emergency, Restoration, and _
Replacement/Reconstruction. Outlines sequence of procedures
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to be followed to meet State and Federal Disaster Relief
regulations: 1) Assess storm damage and report to County; 2)
• County compiles and summarizes individual community
reports; 3) State- compiles County data and makes
recommendation to the Governor, 4) Governor requests
Presidential declaration; 5) Federal relief programs available.
b. Organization of Local Damage Assessment Team.
Outlines personnel available; establishes team members;
designates building inspector as team chief.
C. Damage Assessment Procedures and Requirements.
The purpose of this phase is to rapidly determine immediately
following a storm disaster: 1) number of structures damaged;
2) magnitude of -damage by structure type; 3) estimated total
dollars loss; and 4) estimated total dollar loss covered by
insurance. To accomplish this, the Plan establishes four
categories of damage: 1) destroyed - (repairs over 50% of
value); 2) major (repairs over 300/c of value); 3) minor (repairs
under 30% of value); and 4) habitable (repairs under 15% of
value). A color coding system in conjunction with County tax
maps is recommended for this phase of damage assessment.
Total damage in dollars is estimated by taking the County tax
valuations times a factor to make prices current and then
factoring these figures according to the above damage
classifications. Estimated insurance coverage is made by
utilizing information as to average coverage obtained from
insurance agencies on an annual basis.
d. Organization of Recovery Operations.
The Mayor and Council assume the duties of a Recovery Task
Force. The Task Force must accomplish the following:
• Establish reentry procedures
• Establish overall restoration schedule
• Set restoration priorities
• Determine requirements for outside assistance and
request such assistance when beyond local capabilities.
• Keep appropriate County and State officials informed
using Situation and Damage Reports
• Keep the public informed
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• Assemble and maintain records of actions taken and
expenditures and obligations incurred
• Proclaim a local "state of emergency" if warranted
• Commence cleanup,. debris removal and utility
restoration activities undertaken - by private utility
companies
• Undertake repair and restoration of essential public
facilities and services in accordance with priorities
developed through situation evaluations
• Assist individual property owners in obtaining
information on the various types of assistance that
might be available from federal and state agencies
A schedule outlining tasks and general time frames is provided
in the plan.
e. Recommended Reconstruction Policies.
The policies outlined are for the Mayor and Council Members
to consider after a storm occurs. It is not practical to determine at this time what specific responses are appropriate. The
following policy areas are discussed: _
Reentry of Surf City Town residents to Topsail Island
shall not be permitted until 1) the critical damage
assessment has been completed; and 2) the Mayor
proclaims the Town safe to reenter.
A list of property owners in Surf City and Topsail Beach and
North Topsail Beach shall be maintained at.the N.C. 210 and
NC 50/210 bridges entrances to Topsail Island. Valid
identification must be shown in order to proceed on to the
Island. Passes shall be issued and displayed at all times until
the State of Emergency is officially lifted (this policy is to be
coordinated with the Towns of Topsail Beach and North Topsail
Beach, and Pender and Onslow Counties.
• Permitting. Permits to restore previously conforming
structures outside AEC's are issued automatically.
Damaged structures are considered destroyed if they
suffer damage over 50 percent of their value and would
therefore need a . new CAMA permit to rebuild.
Conformity with all CAMA rules, most notably the
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setback requirements, -must be achieved. Structures .
suffering major damage are allowed to rebuild to
original state but must be in compliance with N.C.
Building Code, Zoning and Flood Hazard Regulations.
Structures with minor damage are allowed to rebuild to
original state before the storm. Structures in areas of
environmental concern and all mobile home
concentrations , allowed to I rebuild only after
determination has been made as to adequacy of existing
development regulations in these special hazard areas.
• Utility and Facility Reconstruction. Water system
components repaired or replaced must be flood -proofed
or elevated above 100-year flood levels.
Temporary Development Moratorium. To be considered
after major storm damage within areas of environmental
concern if existing regulations appear inadequate.
Application to Land Classes
These policies apply to all classes.

Section IV: Land Classification System
A. General
The land classification system provides a uniform way of looking at how the
use of land interacts with environmentally sensitive areas and with the
development needs of a particular locality. It is not a strict regulatory device
in the sense of a zoning ordinance or zoning map. It represents more of a tool
to aid in understanding the relationships between various land use categories
and how these relationships help shape local policy. Particular attention is
focused on the intensity at which land is used and the level of services needed
to support that intensity. The regulations for the Coastal Area Management
Act state:
"The land classification system provides a framework to be used by
local government to identify the future use of all lands. The
designation of land classes allows the local government to illustrate
their policy statements as to where and to what density they want
growth to occur, and where they want to conserve natural and cultural
resources by guiding growth".
The CAMA regulations establishes seven classes: developed, urban transition,
limited transition, community, rural, rural with services and conservation.
Local governments may subdivide these classes into more specific subclasses
and some classes may not apply to each local government.
For Surf City only three of CAMA's land classifications and three subclasses
are relevant to the land development policies of Surf City. They are identified
and described below.
Section V contains a listing of land uses appropriate to each class.
B. Classification
1. Developed
The Developed class of land use provides for continued intensive
development and redevelopment of existing towns. Areas so designated
are currently urban in character where minimal undeveloped land
remains and have in place or are scheduled for the timely provision of
the usual municipal or public services. Urban in character includes
mixed land uses at high to moderate densities. Services include water,
sewer, recreational facilities, streets and roads, police and fire
protection. Areas developed for predominately residential purposes
meet the intent of this classification if they exhibit (1) a density of
three or more dwelling units per acre or as a majority of lots of 15,000
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square feet or less, which are provided or scheduled to be provided
with the traditional urban services.
Within Surf City the areas complying with the above definition include
most of the developable portion of Town, with the exception of the
forested portions of the incorporated island.
2. Developed -Maritime Forest
This subclass is identical to the previously described Developed class
with one exception. This subclass takes into account the valuable
natural resource that exists on the sound side of the southern one-
third of the Town. That resource is the maritime forest (or shrub
thicket), a rare and highly threatened coastal natural ecosystem,
possessing significant cultural, scientific and aesthetic values.
The same development criteria apply to this subclass with one
exception -- development should be done in a manner that will cause
the least harm to the forested area. This means clearing only as much
forest vegetation as is needed for the actual construction of a building,
.drive or roadway.
3. - Limited Transition
The purpose of this class is to provide for development in areas having
some public services, but are suitable for densities lower than those
associated with the Developed class. Areas in this class will experience
increased development during the planning period, necessitating some
municipal type services. These areas will have modest densities and are
often suitable for the provision of water distribution systems rather
than individual wells. Additionally, these areas will provide controlled
development with services, but may not be on lands suitable for
traditional high density urban development normally associated with
wastewater collection systems or other services. This classification may
include land with physical limitations or areas near valuable estuarine
waters or other fragile natural systems. Wastewater collection systems
- and other services may be provided because such services are already
in the area or readily available nearby. Additionally, the lands may be
unsuitable for septic tanks or the cumulative impact of septic tanks
may negatively impact significant public resources. This class is
intended for predominately residential development with densities of
3 units per acre or less, or the majority of lots have 15,000 square feet
or greater. Clustered or planned unit developments may be
appropriate in this class. Areas meeting the definition of Conservation
Class should not be classified Limited Transition.
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This classification is applied to Surf City's area of extraterritorial
jurisdiction (the portions not classified Conservation - Marshland.
4. Conservation
The purpose of the Conservation class is to provide for the effective
long-term management and protection of significant, limited or
irreplaceable areas. Management is needed due to the natural,
cultural, recreational, scenic or natural productive values of both local
and more than local concern.
Areas meeting the intent of this classification include all Areas of
Environmental Concern (AECs) and spoil islands. Also included are
other similar lands, environmentally significant because of their
natural role in the integrity of the coastal region.
Surf City utilizes two subclasses of Conservation, Marshland and
Public Beach Access.
a. Conservation - Marshland
This subclass includes the Estuarine System Areas of
Environmental Concern, coastal wetlands, estuarine waters,
estuarine shorelines, and public trust areas. Spoil islands are
also included. It is intended to implement estuarine system
policies, AEC guidelines and public sound access plans.
Development of islands within this classification shall be
permitted, provided all local, state and federal regulations are
met.
b. Conservation - Public Beach Access
This subclass is intended to protect the public's right of access
to and along the beach while protecting dune areas and related
wildlife habitats. The Ocean Hazard System Areas of
Environmental Concern are included in this subclass.
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Section V: Relationship of Policies and Land Classification
A component of the land use plan updating process is a discussion of the application
of the policies (Section III) to the land classes (Section M. Within the Policy .
section, each policy is followed by a statement of implementation strategy.
Additionally, following the implementation statements in Section III is a listing of
the land classes that are most directly linked to that particular policy.
To further clarify the Town's position regarding the type of growth desired for each
class, the following is a listing of the types of land uses appropriate in each class.
Developed
• Residential
* One and Two -Family
* Multi -family
* Townhouses
* Manufactured
* Mobile home parks, travel trailers and campgrounds
• Churches and cemeteries
• Public and private schools
• Planned unit developments
• Recreational and community facilities
• Kindergartens and day nurseries
• Private clubs or lodges
• Public buildings, works and utilities `
• Fences and retaining walls
• Boathouses, docks, and moorings
• Home occupations and offices
• Signs
• Retail stores and services
• Entertainment services
• Accessory buildings and uses
• Fishing piers
Developed - Maritime Forest
• Residential
* One and Two -Family
* Multi -family
* Townhouses
• Churches and cemeteries
• Public and private schools
• Planned unit developments
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• Recreational and community facilities
• Kindergarten and day nurseries
• Private clubs or lodges
• Public buildings, works and utilities
• Fences and retaining walls
• Boathouses, docks, and moorings and wharfs
• Home occupations and offices
• Signs
• Fishing piers
• Customary accessory buildings
ited Transition
The uses listed above for the Developed class are also appropriate for this class.
Conservation -Marshland
• Utility easements
• Fishing piers
• Access channels
• Structures to prevent erosion
• Navigational channels
• Boat docks, piers, wharfs, mooring pilings
Within this class, there exists islands, both spoil and natural, upon which limited,
small scale, low density development may be appropriate if all local, state and
federal regulations are met. The only use deemed appropriate in this regard is single-
family residential.
Conservation -Public Beach access
• Fishing piers
• Public recreation
• Utility easements
• Erosion control measures
• Beach renourishment
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Section VI: Intergovernmental Coordination and Implementation
Surf City directly adjoins the Town of Topsail Beach to the south, North Topsail
Beach to the north, is near the Town of Holly Ridge, and is situated in both Pender
and Onslow Counties. Certain intergovernmental coordination activities are
mandated or expected (mutual aid fire and police protection) while others are
optional and depend upon the initiatives of the local governing units (joint meetings,
combined services, etc). The following is a description of some of the
intergovernmental activities the Town was engaged in during the past several years.
A. Coordination with the Pender County Planning Department regarding the
establishment of the Town's extraterritorial jurisdiction and satellite
annexation.
B. Attempts to establish a single police department to serve both Surf City and
Topsail Beach.
C. Meetings to augment Topsail Beach's plans to establish a wastewater
collection and treatment system.
D. Meetings regarding the possible extension of sewer service into North Topsail
Beach.
E. Meetings to secure the interconnection with North Topsail Beach's water
system (Onslow County) to be used in times of emergency.
F. Mutual aid agreements with neighboring fire and police departments.
G. Coordination meetings regarding island evacuation procedures during
hurricane warnings.
H. The Town holds joint Council meetings with Topsail Beach on a quarterly
basis.
The preparation of this plan involved intergovernmental coordination of certain
mutual concerns. These include contacts with representatives from Topsail Beach,
North Topsail Beach, Pender County and Onslow County regarding matters such as
land use planning, water and sewer services, police and fire protection, emergency
medical services and emergency evacuation procedures.
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Section VII: Public Participation
A. Public Participation Plan
On April 7, 1992, the Surf City Town Council adopted a Public Participation
Plan. This plan was prepared by the Planning Board and shows:
• background information on the updating process
• reasons for updating
• designation of the local planning board as the responsible agency for
the project
• public information and education schedule
• initial public information meeting, involving a State Division of
Coastal Management representative (January 8, 1992)
• goals and objectives of the updating process
The adopted plan is included as appendix b. The appendix also contains an
addendum listing actual events related to the preparation of the 1992 Land
Use Plan Update.
75

Appendix a.
Analysis of Policy Implementation Effectiveness
The land use plan updating process includes an analysis of the Town's effectiveness with
regard to implementation of the policies contained in the Town's current plan of record (the
1987 update). The 1987 Plan contains 25 policies organized under five topics:
1. Resource Protection
2. Resource Production and Management
3. Economic and Community Development
4. Storm Hazard Mitigation and Post. Disaster Planning
5. Continuing Public Participation
During the five-year period since the last update, the Town has been successful in achieving
the policy implementation objectives stated in the 1987 Plan.
A detailed analysis of how effectively the Town has implemented its policies is presented
below. Each of the policies is stated (some in an abridged form) and is followed by a
statement indicating what the Town has done with regard to that policy.
a-1

I. RESOURCE PROTECTION
A. Estuarine System
1. Coastal Wetlands. Activities shall be restricted to those which do not
significantly affect the unique and delicate balance of this resource.
Suitable land uses include those giving highest priority to the
protection and management of coastal wetlands, so as to safeguard and
perpetuate their biological, social, economic, and aesthetic values to
establish a coordinated management system capable of conserving and
utilizing coastal wetlands as a natural resource essential to the
functioning of the entire estuarine system. Highest priority of use shall
be allocated to the conservation of existing coastal wetlands. Second
priority shall be given to those uses that require water access and
cannot function elsewhere.
Acceptable land uses may include utility easements, fishing piers, and
docks. Unacceptable uses may include, but would not be limited to,
restaurants, businesses, residences, apartments, motels, hotels, parking
lots, private roads, and highways.
2. Estuarine Waters. In recognition of the importance of estuarine waters
for the fisheries and related industries as well as aesthetics, recreation,
and education, Surf City shall promote the conservation and quality
of this resource. Activities in the estuarine water areas shall be
restricted to those which do not permanently or significantly affect the
function, cleanliness, salinity, and circulation of estuarine waters.
Suitable land/water uses include those giving highest priority to the
conservation and management of these areas so as to safeguard and
perpetuate their biological, social, economic, and aesthetic values and
to establish a coordinated management system capable of conserving
and utilizing estuarine waters in order to maximize their benefits to
man and the estuarine system. Highest priority of use shall be
allocated to the conservation of estuarine waters and its vital
components. Second priority shall be given to uses that require water
access and cannot function elsewhere.
3. Public trust Areas. In recognition of certain land and water areas in
which the public has certain established rights and which also support
valuable commercial and sports fisheries, have aesthetic value, and are
resources for economic development. Surf City shall protect these
rights and promote the conservation and management of public trust
areas. Suitable land/water uses include those which protect public
rights for navigation and recreation and those which preserve and
manage the public trust areas in order to safeguard and perpetuate
their biological, economic, social, and aesthetic value, e.g. dredging,
bulkheading, jettying.
a-2

G. Representation
To the extent practicable, all economic, social, ethnic and cultural view points will
be considered in the development of the plan update. Persons representing diverse
views will be identified and specifically asked for their input.
7. Inclusion In Plan Update
This public participation plan, as adopted, will be included as part of the Surf City
updated land use plan and will include a listing of meetings, questionnaires and
other materials used in the effort. An assessment of the effectiveness and adequacy
of the public participation element will be included in the plan document.
S. Workshops
Workshop sessions, involving both the Planning Board and the Town Council will be
frequently held in addition to the regularly scheduled meetings of both boards. These
workshops will be publicly advertised, open to the public and opportunity to
participate given to all those in attendance.
9. Adoption
This Plan was adopted by the Surf City Council on April .7, 1992.
b-4

ADDENDUM TO PUBLIC PARTICIPATION PLAN
The following schedule represents the actual events related to the 1992 Plan updating
process. The Plan update was discussed at the following Council and Planning Board
meetings.
a. Initial workshop with State Division of Coastal -
Management representative. Discussion of
participation plan
January 8, 1992
b.
Planning Board Workshop
January 14, 1992
(policy implementation review)
C.
Joint Planning Board Workshop
January 16, 1992
with Town Council
d.
Joint Planning Board Meeting
January 28, 1992
with Town Council
e.
Publish newspaper article on public meeting
January 31, 1992
f.
Initial public information meeting,
February 4, 1992
joint meeting with Council
g.
Mail questionnaires
February 4, 1992
h.
Planning Board Meeting
February 5, 1992
(review existing policies)
i.
Joint meeting with Council
February 11, 1992
regarding ETJ
j.
Joint meeting with Council
February 18, 1992
regarding ETJ
L
Council Meeting
March 3, 1992
1.
Planning Board Meeting
March 4, 1992
In.
Planning Board Meeting
April 1, 1992
(policy formulation, review base data,
analyze and assess trends)
n.
Council Meeting
April 7, 1992
(agenda item - plan status report)
b-5

o.
Planning hoard Meeting
April 22, 1992
(policy review)
p.
Planning Board Meeting
April 25, 1992
(policy review)
y.
Planning Board Meeting
May 14, 1992
(draft review)
r.
Planning Board Meeting
May 27, 1992
(draft review)
S.
Planning Board Workshop
June 17, 1992
(drab review)
t.
Planning Board Workshop
June 24, 1992
(population projections)
U.
Planning Board Meeting
July 1, 1992
(Inu(l classification)
V.
Planning Board Workshop
July 15, 1992
(land classification)
w.
Planning Board Meeting
July 29, 1992
(advertised meeting seeking public input)
x.
Planning Board Workshop
August 19, 1992
(consider public facilities adequacy)
Y.
Planning Board Meeting
August 26, 1992
Z.
Planning Board Workshop
September 9, 1992
(consider additional policy & land classification)
aa.
Public Hearing and Adoption
August 3,1993
bb.
Certification by Coastal Resources Commission
Sept. 23,-1993-
b-6

Appendix C
Questionnaire Response Summary
Beginning in mid-January,1992 the Town distributed questionnaire forms to all residents
and visitors requesting them. The survey was closed on February 21, 1992 and the results
were tabulated and presented to the Planning Board for its use. in preparing the land use
plan update.
Included in this appendix are summary questionnaire response forms, organized by full-
time residents and seasonal or second home residents. Thirty-five full time residents and
10 seasonal or second home residents responded.
Of the full time residents responding:
• 33 were property owners and 2 were renters
• average family size was 2.2 persons
• 14% had households with children
• 58% were employed full time
• 6% were employed part time
• 36% were retired
• most (68111o) of the employed worked in Surf City
• rated Town services and facilities an average of 3.2 out of a possible 5.0.
Recreation rated lowest (1.7) and sewer (3.8) the highest
• most wanted more single and two-family dwellings and less, multi family and
townhouse developments
• most want much more recreation facilities (94%), and commercial (5601o)
• most wanted more motel/hotel (54%) retailing (57%) restaurants (54%) and
marinas (77%)
• most (91%) favored the Town exercising extraterritorial jurisdiction and
consideration of annexation (84%)
• regarding recreational facilities most wanted additional sound access/boat ramp,
active recreation i.e., tennis, basketball, a community center, and bikeways and
jogging paths.
• most favor beautification and commercial district enhancement
• most favor a traffic light at New River Drive at Roland Avenue
• assets listed include: family type beach, clean air and sea, commercial "hub",
people, slow pace, no high rise buildings, etc.
liabilities included: the need to clean up entrances to Town, litter, traffic, road
flooding, etc.
• regarding the future of Surf City, comments included: cleaner, single-family, clean
water and beaches, sidewalks, landscaping, recreation center
Of the seasonal or second home residents responding:
6 were property owners, 2 were renters and 2 were visitors
average family size was 2.0
one was employed, 7 were retired
c-1

• rated Town services and facilities an average of 3.7 (0.5 higher than full-time
residents) out of a possible 5.0. EMS rated the highest at 4.5, and recreation
the lowest (2.7).
• most of the responses from this group closely parallel those from the
permanent residents on all questions
In summary the questionnaire indicated to the Planning Board:
• more 1 and 2 family dwellings
• need for community center, active recreational facilities
• need for sound access and boat ramp
• need for beautification
c-2

Appendix d _
Sources of Information
Agencies
N.C. Department of Transportation
N.C. Department of Revenue
N.C. Division of Marine Fisheries
N.C. Division of Coastal Management
N.C. Division of Environmental Management
Onslow County Department of Emergency Management
Onslow County Department of Planning
Pender County Department of Emergency Management
Pender County Health Department
Town of Surf City Administrative Staff
U. S. Army Engineer District, Wilmington, Corps of Engineers
Documents
1990 Public Shoreline Access Plan, Surf City, N.C.
Code of Ordinances, Surf City, N.C.
Flood Damage Prevention Ordinance, Surf City, N.C.
Flood Insurance Rate Maps, Surf City, Pender County and North Flood Insurance Study,
Town of Surf City, N.C.
Land Use Plan, 1987 Update, Surf City, N.C.
Land Use Plan, 1990 Update, Topsail Beach, N.C.
Land Use Plan, 1991 Update, Onslow County, N.C.
Land Use Plan, 1992 Update, Pender County, N.C.
Land Use Plan, Initial, North Topsail Beach, N.C.
.
N.C. State Building Code
Pender County Emergency Management Ordinance
Pender County Hurricane Evacuation Plan
Subdivision Regulations, Surf City, N.C.
Topsail Beach
U.S. Census of Population and Housing, 1980, 1990
Zoning Ordinance, Surf City, N.C.
dl

4. Estuarine Shorelines. Surf City recognizes: (1) the close association
between estuarine shorelines and adjacent estuarine waters; (2) the
influence shoreline development has on the quality of estuarine life;
_ and (3) the damaging processes of shorefront erosion and flooding to
which the estuarine shorelines is subject.
Suitable land uses are those compatible with both the dynamic nature
of estuarine shorelines and the values of the estuarine system.
Residential, recreational, and commercial land uses are all appropriate
types of use along the estuarine shoreline provided that:
(a) a substantial chance of pollution occurring from the
development does not exist'.
(b) natural barriers to erosion are preserved and not substantially
weakened or eliminated.
(c) the construction of impervious surfnces and areas not allowing
natural drainage is limited to only that necessary to adequately
service the development.
(d) standards of the North Carolina Sedimentation Pollution
Control Act 1973, as amended, are met.
(e) development does not significantly interfere with existing public
rights of access to, or use of, navigable waters.
Implementation Effectiveness (All Estuarine System Policies): Within coastal
wetlands, the only uses permitted were utility. easements, private docks and
bulkhead maintenance. Within estuarine waters, private docks were the only
permitted use. Within public trust areas the only uses or activities permitted
were dredging, bulkheads, private docks, and jetting of piling. Residential and
commercial uses were permitted within estuarine shoreline areas. Estuarine
shoreline. development also confirmed to the five conditions stated above in
the policy.
B. Ocean Hazard Areas.
1. - To the maximum extent feasible, and consistent with a property
owner's rights to reasonable use of his property, use of land in ocean
hazard areas shall be located, designed, and constructed so as to
maximize a structure's protection from wind and water and to
minimize damage to the protective land forms of dunes and beaches
in accordance with CAMA regulations.
a-3

2. Preferred erosion control measures to combat ocean front erosion shall
be beach renourishment projects and comprehensive shoreline
management, which shall be preferred over small scale methods.
3. Newly created dunes shall be aligned, if possible, with existing adjacent
dune ridges and shall be of the same general configuration.
4. Adding to dunes shall be accomplished in such a manner that the
damage to existing vegetation is minimized. Filled areas shall be
immediately replanted or temporarily stabilized until planting can be
successfully completed.
5. Land uses permitted in the ocean erodible areas shall be those uses
permitted by the Town Zoning Ordinance.
6. Land uses in flood hazard areas shall be those permitted by the Town
Zoning Ordinance, which shall include residential, commercial and
institutional; provided, however, that all new construction shall meet
requirements of the Surf City Flood Damage Prevention Ordinance.
Implementation Effectiveness: Within ocean hazard areas, the only
construction permitted was residential. Stabilization activities included dune
construction through bulldozing, snow fence installation, and beach grass
establishment.
C. Cultural. Historical. and Archaeological Resources.
1. It shall be the town's policy to cooperate with state and federal
agencies or other individuals and institutions in the protection and
identification of significant existing or unidentified cultural, historical,
or archaeological resources. The Town will notify the State Department
of Cultural Resources of proposed development in the potentially
sensitive area on the mainland either side -of S.R. 50/210 west of the
bridge.
Implementation Effectiveness: No resources of this nature were threatened
and no new such resources were discovered or created.
D. Storm Water Runoff.
L Surf City's existing development policies, as specified in the Town's
Zoning Ordinance limit lot coverage to a maximum of from 35 to 50
percent in the residential districts.
Further it is the policy of the Town to promote the use of best
available management practices to minimize the threat of pollution
from storm water runoff. This will be accomplished through site plan
a-4

reviews, as required by the Town's development ordinances (zoning
and subdivision regulations). Examples of these practices include using
pervious or semi -pervious materials, such as turfstone or gravel -run
for driveways and walks, retaining natural vegetation along marsh and
waterfront areas to retain its natural filtering properties, and allowing
storm water to percolate into the ground rather than discharging it
directly to coastal waters. Stormwater detention ponds can also reduce
the direct discharge of pollutants to coastal waters. The Town will
comply with N.C. Division of Environmental Management standards
for storm water runoff.
Implementation Effectiveness: All new developments with the Town are in
compliance with the requirements of this policy.
E. Marina and Floating Home Development.
1. It is the policy of Surf City to consider the appropriateness and
desirability of any specific proposal to construct a marina on the basis
of impact on neighboring uses including aesthetics, hours of
operations; traffic generation including ability of the existing road
network to adequately handle peak traffic loads; environmental
impacts including water quality and dredge spoil disposal sites; and
consistency of the proposal with other policies of the Land Use Plan.
Further, Floating Homes are prohibited as Town ordinances prohibit
living aboard any vessel.
Implementation Effectiveness: No marinas were permitted and no floating homes
were established.
F. . Development of Sound and Estuarine Islands.
1. It shall be the policy of the Town to provide the same degree of
protection and priority of use as that afforded the estuarine system
areas and to include them in the Conservation Zone in the Town
Zoning Ordinance and the Conservation Zone of this Plan's Land
Classification Map. The placement of signs in these areas is regulated
�y the Town's zoning ordinance and the N.C. State. Building Code, Vol. _
I.
Implementation Effectiveness: No development of sound or estuarine islands was
proposed.
G. Maritime Forests.
1. It shall be the policy of the Town to encourage the maintenance of the
existing maritime forest by allowing only "that development that will
cause the least practicable disruption to the maritime forest cover. All
a-5

uses currently permitted under the Town Zoning Ordinance will be
allowed in areas with maritime forest, but only if consistent with the
above policy. To allow for specific implementation, it shall be the
Town's policy that any development over four (4) dwelling units within
a designated maritime forest area, shall file a site plan with the Town
prior to the issuance, of any building permits. Further, the Town's
zoning ordinance will be amended to designate all maritime forest
areas as a "Conservation -Overlay Zone" and any multi -family
development within such zone shall be permitted only as a conditional
use.
Implementation Effectiveness: Four subdivisions (for single-family development)
were approved and constructed within maritime forests during the planning period.
These subdivisions were designed and constructed in a manner that respected the
forest cover.
H. Constraints to Development - Septic Tank Suitability.
1. It shall be the policy of the Town to insure that all future development
adheres to all applicable local and state regulations governing the
operation, location, and installation of on -site disposal systems. it
shall further be the policy of the Town that any action by the 'Town
that may result in an increase in density above that currently
permitted under existing ordinances will consider the effects of such
action on water quality; and should such effects be negative, the Town
will take whatever action is required to mitigate those effects.,
2. To the extent that such action does not substantially interfere with an
owner's use of his property, the Town's policy shall be to encourage
new development to locate in areas with the best on -site capability.
3. The Town will pursue the construction of a central sewage treatment
system in accordance with the January 28, 1986 Bond Referendum.
Implementation Effectiveness: All three elements of this policy were implemented.
The central sewage treatment system was constructed and placed in service during
the planning period. _
I. Package Sewage Treatment Plants.
1. Package treatment systems are the preferred interim method 'of sewage
treatment; however, all such systems must connect with the municipal
system upon availability. Further, package treatment plants must be
in keeping .with the Town's policies for The Provision of Services to
Development. -
a-6

Implementation Effectiveness: The only package treatment system within Town was
associated with the Surf Condominium Development --it was connected to the
municipal system in accordance with the policy.
J. Water Supply Protection.
1. Surf City derives its water via wells supplied by Castle Hayne
limestone aquifer. The wells are located about a mile inland because
of poor water quality (e.g. iron, chlorides, etc.) in the immediate beach
area. Recharge of this aquifer occurs inland and the Town therefore
has no policy jurisdiction as to protect its water supply.
Implementation Effectiveness: Not applicable -- no policy was stated.
II. RESOURCE PRODUCTION AND MANAGEMENT
A. Off -Road Vehicles.
1. It shall be the policy of the Town to allow vehicles on the beach
between September 15th and May 10; (off -tourist season to protect
beach users) provided such vehicles are used for commercial fishing
purposes only; cross at designated crossover points (to protect the
dune system), are manufactured four wheel drive vehicles and have a
valid Beach Permit issued by the Town of Surf City.
Implementation Effectiveness: Commercial and recreational fishing vehicles were
permitted in compliance with this policy.
B. Recreational Fisheries.
1. It is the policy of the Town that existing and future commercial piers
constructed within the Town will be open to the public at reasonable
fees and shall be constructed according to the Town's construction
standards for piers and docks set out in Chapter 6 of the Town Code.
Further, the Town supports State fishing regulations and the
enforcement thereof.
----- Implementation E1T"ie: No new fishing piers were constructed during the planning
period-
a-7

III. ECONOMIC AND COMMUNITY DEVELOPMENT
A. General Development Objective.
1. It is the objective of the Town to adopt policies and ordinances and
take appropriate actions to promote low to moderate density controlled
growth and development of the Town as a, predominately residential
community with supporting retail services and tourist oriented uses.
The term "single family residential" includes multi -family ownership
units (for example, condominium), provided such development is
consistent with other Town policies and ordinances.
B. Types of Development.
1. It shall be the policy of the Town to permit single family, commercial,
and institutional land uses within the Town under the terms of the
zoning ordinance and in accord with the other policies of this plan.
Preferred commercial uses are those necessary to provide adequate
goods and services to visitors and residents while not interfering with
surrounding residential. development.
Implementation Effectiveness: New development within the planning period included:
single and multi family residential, commercial (restaurants, gift shops, seafoc)d
stores etc.) and a church.
C. Location of Development.
1. The location of development shall be consistent with the Town Zoning
Ordinance and the other plan policies. Commercial, multi -family or
single family attached developments shall be planned and located so
as not to interfere with surrounding residential development.
Implementation Effectiveness: All new developments were planned and located in a
manner not to interfere with surrounding residential development.
D. Timing and Density of Development.
1. The timing of development shall be consistent with the plan's other
policies and the capacity of the Town to provide water and sewer
services to additional projected development. Water and sewer facilities
should not be expanded to a capacity greater than that required to
accommodate projected permanent or peak populations; that is, no
facility expansions should be provided to induce or promote growth
beyond that which is needed. The density of development shall be
consistent with the Town Zoning Ordinance.
a-8

Implementation Effectiveness: All land developments and facility expansions made
during the planning period complied with this policy.
E. Provision of Services to Development.
1. The Town will provide water, solid waste collection, and police services
to its residents and property owners. Fire and rescue services will be
provided through financial support of volunteer departments.
2. It is the Town's policy that wastewater collection and treatment be
provided only as a municipal service by the Town Government. The
Town will continue to make good faith efforts to construct a sewage
system. This policy precludes the provision of wastewater collection
and treatment as a utility system by any entity other than the Town
Government of Surf City. It does not preclude the construction of on -
site sewage systems designed only to service a specific single
development. Further, it shall be inconsistent with this policy to allow
any portion of any wastewater collection and/sir treatment system not
owned and operated by the Town to be constructed in Surf City
whether or not the stated intent of such system is to serve development
outside the Town of Surf City.
Implementation Effectiveness: The public services stated in the policy were provided
to all Town residents. The Town completed its own wastewater collection and
treatment system.
F. Beach Access. Preservation and Erosion Control.
1. Renourishment, supplemented by land use controls, access control and
vegetation maintenance, is the preferred alternative for erosion control.
2. Since the dune and berm is a resource used by persons throughout the
region and state, the cost of its maintenance should be distributed
among the user -beneficiaries in equal proportion to the benefit
received.
3. The expenditure of public funds for dune -and_ berm protection must
be complemented by the provision of public access to the beach and
shore.
4. To protect the dune system and its stabilizing vegetation by (1) routing
the flow of pedestrian traffic to central points of access to the water,
and (2) enforcing dune protection ordinances.
S. To implement the policies and recommendations of the Surf City
Beach Access Plan.
a-9

Implementation Effectiveness: Vegetative measures include planting beach grass and _
using discarded Christmas trees with sand fences to augment dune stabilization.
Public funds were used for maintaining access points and placing sand fill. Three
new public access points were established as a condition to the approval of three
residential developments. No construction was performed pursuant to the Beach
Access Plan.
G. Types and Location of Industry Desired.
1. There are no industrial uses in Surf City. The Surf City Zoning
Ordinance does not permit industrial uses.
Implementation Effectiveness: No industrial uses of land were permitted during the
planning period.
11. Redevelopment of Developed Areas.
1. The 'Town supports redevelopment and upgrading of property in
accordance with its zoning and subdivision regulations. Further, the
re -subdivision or in -fill of already platted areas is preferred over the
development of new areas requiring new roads, utilities, etc.
Implementation Effectiveness: This policy was adhered to in applicable situations.
I. Assistance to Channel Maintenance and Beach Nourishment Project.
1. The Town supports such state and federal projects and will assist with
providing dredge spoil sites including temporary easements.
Implementation Effectiveness: No state or federal projects were established during
the planning period.
J. EneM Facility Siting and Development.
1. Offshore energy development is not expected to occur during the 10-
year planning period and industrial uses are not currently allowed by
the Town's zoning ordinance.
Implementation Effectiveness: This was not an issue during the planning period.
a-10

IV. STORM HAZARD MITIGATION AND POST DISASTER PLANNING
A. -Storm Hazard Mitigation.
1. The Surf City Storm Hazard Mitigation Plan dated June, 1984
contains the following policies:
The entire. Town of Surf City is susceptible to significant storm
damage from a hurricane or a storm of similar magnitude. About 70%
of the development in the Town is located in AEC's or in areas
susceptible to flooding associated with the 100-year storm. The entire
Town is susceptible to wind damage. In general, the Town's existing
mitigation policies meet the requirements for Hazard mitigation
planning outlined in Before the Storm: McElvea, Brower and
Godschalk, 1982. Specifically:
a. The Town's policies support and are consistent with State
policies and regulations for development in Areas of
Environmental Concern.
b. All new development must conform with the provisions of the
N.C. Building Code.
C. The Town's flood plain development policies conform with all
Federal and State requirements.
d. The Town does an adequate job of controlling mobile home
developments in order to minimize hazard damages. While
mobile homes are still permitted and will be damaged by a
major storm, they are at least restricted to specific districts and
must conform with elevation and other requirements.
Implementation Effectiveness: All provisions of this policy were complied with during
the planning period. The Town's new fire department building on the mainland will
serve as an additional evacuation shelter.
B. Post Disaster Reconstruction.
1. The policies outlined are for the Mayor and Council Members to
consider after a storm occurs.
a. Re_ entry of Surf city Town residents to Topsail Island shall not
be permitted until (1) the critical damage assessment has been
completed; and (2) the Mayor proclaims the Town safe to
reenter.
a-11

b. Permitting. Permits to restore previously confirming structures
outside AEC's issued automatically. Structures suffering major
damage allowed to rebuild to original state but must be in
compliance with N.C. Building Code, Zoning and Flood Hazard
Regulations. Structures with minor damage allowed to rebuild
to original state before the storm. Structures in AEC's and all
mobile h6me concentrations allowed to rebuild only after
determination has been made as to adequacy of existing
development regulations in these special hazard areas.
C. Utility and Facility Reconstruction. Water system components
repaired or replaced must be flood -proofed or elevated above
.100-year flood levels.
d. Temporary Development Moratorium. To be considered after
major storm damage for AEC's if existing regulations appear
inadequate to protect structures from storm damage.
Implementation Effectiveness: Reentry was regulated by a windshield decal program.
No storm damage occurred within Town (except for individual beach walkways and
steps). No FEMA repetitive loss properties were identified. No water system
construction occurred during the planning period.
in
a-12

V. CONTINUING PUBLIC PARTICIPATION
A. All land use plans and updates will be prepared with public participation.
Citizens participation in the land use planning process will be accomplished
by using the following plan.
1. Citizen Education
a. Newspaper: News Releases
b. Working Papers, Draft Plans
C. Public Meetings
2. Citizen Input
a. Public meetings
b. Surveys: mailed and returned via postal service or delivered
door to door in condominiums
C. Review and comments: public review meetings
3. Citizen Support - Ongoing
a. Ongoing use of 1 and 2 above
b. Formal public hearings -
Implementation Effectiveness: All components of this policy were implemented or
complied with, as applicable.
a-13

Appendix b
PUBLIC PARTICIPATION PLAN
CAMA LAND USE PLAN -- 1992 UPDATE
SURF CITY, NORTH CAROLINA
1. PURPOSE
The Town of Surf City is beginning the process of updating its land use plan. This
process, including public hearings and certification by the Coastal Resources
Commission, typically requires approximately a year to accomplish.
A major component of the updating process is public participation. To augment
participation, this plan outlines the means by which public involvement in the
process will be encouraged.
The Coastal Area Management Act of 1974 (CAMA) requires that coastal
communities update their land use plans every 5 years. The last land use plan for
Surf City was prepared in 1986 and adopted September 1, 1987.
CAMA established a cooperative program involving local governments and the State.
At the center of local government involvement is land use planning -- it gives local
leaders an opportunity and responsibility to establish and enforce policies to guide
the development of their Communities.
It is essential that land use plans be kept current, for several reasons:
• to remain consistent with governmental regulations
• to reflect current local policies, concerns, and trends
• to reflect ever-increasing environmental concerns
• to reflect current public and private development trends
• to periodically call public attention to this planning process that addresses
issues and adopts policies that guide the development of communities
• to provide a current resource reflecting population and land use data.
2. Principal Local Board Responsible For Supervision Of The Project
The Surf City Planning Board
3. Public Information And Education Schedule
a. Initial workshop with State Division of Coastal
Management representative. Discussion of
participation plan
b. Planning Board Workshop
(policy implementation review)
b-1
January 8, 1992
January 14, 1992

C. Joint Planning Board Workshop
with Town Council
d. Joint Planning Board Meeting
with Town Council
e. Publish newspaper article on public meeting
f. Initial public information meeting,
joint meeting with Council
g. Mail questionnaires
h. Planning Board Meeting
(review existing policies)
i. Joint meeting with Council
regarding ETJ
j. Joint meeting with Council
regarding ETJ
k. Council Meeting
1. Planning Board Meeting
(review questionnaire responses)
M. Planning Board Meeting
(policy formulation, review base data,
analyze and assess trends)
n. Council Meeting
(agenda item plan status report)
o. Council Meeting
(agenda item - plan status report)
P. Planning Board Meeting
(policy formulation, physical and
environmental constraints)
q. Planning Board Meeting
(Land use demands, community facilities
and services)
b-2
January 16, 1992
January 28, 1992
January 31, 1992
February 4, 1992
February 4, 1992
February 5, 1992
February 11, 1992
February 18, 1992
March 3, 1992
March 4, 1992
April 1, 1992
April 7, 1992
May 5, 1992
May 61 1992
June 3, 1992

r. Planning Board Meeting July 1, 1992
(land classification & acceptable
use list) r
S. Council Meeting July 7, 1992
(agenda item - plan status report)
t. Council Meeting August 4, 1992
(agenda item - plan status report)
U. Planning Board Meeting August 5, 1992
(review plan draft)
V. Land Use Plan Draft Complete September 1, 1992
W. Council Meeting September 1, 1992
(Presentation of Plan Draft)
X. Public hearing on completed land
use plan update (date to be set
after review comments by Division
of Coastal Management Staff are
reconciled into preliminary plan). `
NOTE: These are scheduled Planning Board meetings at which the Land Use Plan Update
will appear as agenda items. The Plan Update may appear as an agenda item at
Commission meetings.
4. Notification of Public Input Opportunities
Notice will be given in local newspaper of public meetings and that an opportunity
for questions and statements will be provided.
A questionnaire will be developed by the Planning Board and distributed to certain
residents, property owners, and visitors on a basis decided upon by the Board and
Town staff.
5. Initial Public Meeting
A public meeting will be held on February 4, 1992 after advertisement 'in a local
paper and notice posted at the Town Hall and other prominent places in Town. At
this meeting the existing policy statement contained in the current land use plan will
be discussed. The importance of the policy statement to the CAMA land use planning
process will be described as will the process by which the town will solicit the views r
of a wide cross-section of citizens in the development of updated policy statements.
b-3

isIlLn .
MAP I COMMUNITY FACIUTIES LEGEND '
"Hu 4T Nn
EXISTING LAND USE 0 ELEVATED WATER TANK • Ri31DENTIAL
WASTEWATER TREATMENT SYSTEM • R S IDE TINILY ILL of svAs III
® FIRE DEPARTMENT (SURF CITY) YISK AmmNTIALACTD - - - IaAnurrc ANQAT
SURF CITY o FIRE DEPARTMENT IKE. PERM CENTRALI A RESIDENTIAL
EMERGENCY MEDICAL SERVICE-SIfLLx
TOWN •� NORTH CAROLINA GYCM CENTERRESIDENTIAL.
PUBLICBEACH ACCESSWAYS• . (UNTfNRDO."I ` _
•oe .00• Eoe Noe rod - -LOCAL ■ COMMERCIAL
.c /'
®-NEIa+BDRNooD ■ PUBLIC ,nRgEl+l^O" AL
® -REGIONAL - a INSTITUYIONAL CLOSES - - •_ - _ _
SEPT. 25.1%2 FENDER CO.RECYCLING CENTER
WATER SUPPLY WELLS a UTILITIES
,� ••�'• LANoraL®+'b .O �'a;-
---- PRIMARY NURSERY AREA BOUNDARY - ,� _ _\.\ �• . ..:�-.
(KC.OIIR OF MARINE FISHERIES) \ . ,.
-NUMBERS AT SYMBOLS® \�
S REFER TO TABLE 12 COASTAL WETLANDS • •. \`,. .,•y - _ - S -
- - - - IN PLAN TEAL _ I��yC.�
[ - NOTE: ALL TIDAL SALT WATERS WITHIN SHE •TOW XS .`• kill
IIUTART tAR•(RT AREA _ _ PLANNING .RMISDICTION ARE CLASSIFIED SA BY E - ' ` _ _ _ w•I•R+ MI `.
--ELC.EEVISpN Of ENVIRONMENTAL MANAGEMENT. ` ` • _ \ _ 1 .
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TONN \I i 1• MIND • \� `` \ :.. ... TOWN.
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- --- ®_• a o NEN RTVER EIL IR.ctrol �- � cm a n E - ...[ - _ _ - '• --
THE PREMRATIOII OF TINS NY Ntl FISANCES M MRT THRWM I • PKS RL'f PI[R q' f • 7 • • • S I ..
A •RYT PROVIDED NI THE NORM Cmmm COASTAL IIAOAN HINT < ' : [ - �-SCOTCH
PIIO•IIAN. THRO•EN FUN" PROMO fI THE COASTAL 20M[ gRKT PI[D -
• MANAN[NENT ACT NK MTS.Y AMMom NMCH a Aomomik O DY - < w • a _ -
TNE OF"" of OCEY AM COASTAL RESOMRCE NAMalwNT. p
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