1990 Land Use Plan Update-1991

Town of Swa n s b o ro
1990 Land Use Update
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Local Adoption: July 16, 1991
CRC Certification: July 26, 1991
THE PREPARATION OF THIS DOCUMENT AND/OR MAPS, 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 OFRCE OFOCEAN AND COASTAL RESOURCE MANAGEMENT NATIONAL
OCEANIC AND ATMOSPHERIC ADMINISTRATION.
Ken Weeden & Associates - Planning Consultants
5041 New Centre R*"'p w'iminatnn_Nnrth.Carnlina_7Rd113_l_19191395_1R9R
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

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TOWN OF SWANSBORO, NORTH CAROLINA
1990 LAND USE PLAN UPDATE
TABLE OF CONTENTS
ANALYSIS OF EXISTING CONDITIONS
AND PROJECTED DEMAND
A. Establishment of Information Base
B . Present Conditions
1. Population
a. General
b. Population Projections
C. Racial Composition
d. Gender Breakdown
e. Age Breakdown
2. Economic Analysis
a. Labor Force
b. Employment and Unemployment
C. Industry Mix
d. Income
C. Existing Land Use Analysis
1. General Patterns
a. Residential Uses
b. Commercial Uses
C. Recreational Uses
d. Public Uses
e. Industrial Uses
f . Vacant Land
2. Significant Land Compatibility Problems
3. Major Problems From Unplanned Development
4. Areas ExperiencingLikely to Experience Majo
Land Use Changes
5. Identification of Areas of Environmental Concern
a. Coastal Wetlands
b. Estuarine Waters and Estuarine Shorelines
C. Public Trust Waters
d. Outstanding Resource Waters (ORWs)
D. Review of Current Plans. Policies and Regulations
E. Constraints: Land Suitability
1. Physical Limitations
a. Man -Made Hazards
b. Natural Hazards Areas
1. Flood Hazard Areas
2. Estuarine Erosion Areas
C. Areas With Soils Limitations
d. Slopes In Excess of Twelve (12) Percent
e. Stream Water Classification
f. Closed Shellfishing Areas
2. Fragile Areas
a. Natural Resource Fragile Areas
1. Prime Wildlife Habitats and
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F.
G.
Areas That Sustain Remnant Species 29
b. Cultural Resources Fragile Areas 30
3. Areas With Resource Potential
a. Agricultural and Forest Lands
b. Productive Water Bodies
C. Nursery Areas
1. General
2. Primary Nursery Areas
3. Secondary Nursery Areas
Constraints: Capacity of Community Facilities
1. Water System
2. Sewer System
3. Solid Waste
4. Schools
5. Transportation
6. Rescue Squad
7. Fire Department
8. Police Department
9. Library
10. Recreational Facilities
Population Growth and Impacts on Community Facilities
1. General
2. Water System
3. Sewer System
4. Solid Waste
5. Schools
6. Transportation
7. Rescue Squad
8. Fire Protection
9. Police Department
10. Library
11. Recreational Facilities
SECTION II: POLICY STATEMENTS
A.
B.
C.
General Information
Resource Protection
1. Areas of Environmental Concern:
Development Policie
a. Coastal Wetlands
b. Estuarine Waters and Estuarine Shorelines
c. Public Trust Areas
d. Outstanding Resource Waters (ORWs)
2. Development In Areas With Constraints
3. Hurricane and Flood Evacuation Needs and Plans
4. Other Resource Protection Policy Areas
a. Protection of Potable Water Supply
b. Use of Package Treatment Plants
c. Stormwater Runoff
d. Marina and Floating Home Development
e. Development of Sound and Estuarine Islands
Resource Production and Managment Policies
1. Productive Agricultural and Forest Lands
2. Commercial Forestry
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3. Mining Resource Areas 51
4. Commercial and Recreational Fisheries 51
5. Off -Road Vehicles 52
(� 6. Residential and Commercial Land Development 52
D. Continued Public Participation 53
E. Economic And Community Development Policies
56
1.
General Statement Toward Growth
56
2.
Attitude Towards Various Types Of Development
56
3.
Local Commitment To Service Provision
57
a. Public Water Supply
57
b. Sewage Treatment Service
57
C. Transportation System
57
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d. Fire, Police and Rescue Services
57
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e. Recreational Facilities
57
4.
Desired Urban Growth Patterns
57
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6.
Redevelopment and Revitalization of Developed Areas
Commitment to State and Federal Programs
58
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7.
Assistance to Channel Maintenance
58
8.
Energy Facilities Siting
58
9.
Tourism
58
10.
Coastal and Estuarine Water Beach Access
58
11.
Density of Development
58
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F. Storm Hazard Mitigation, Post Disaster Recovery and
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Evacuation Plans
60
1.
Storm Hazard Mitigation: Discussion
60
Gb.
a. High Winds
Flooding
61
61
C. Wave Action
61
d. Erosion
62
D e. Summary: Storm Hazard Mitigation
Considerations 62
f. Policy Statements: Storm Hazard
Mitigation 63
2 Post -Disaster Reconstruction Plan 63
a. Recovery Task Force 64
b. Damage Assessment Team (DAT) 65
c. Repair/Reconstruction Schedule 65
d. Utility and Town Facility Reconstruction 67
e. Reconstruction Development Standards 67
SECTION III: LAND CLASSIFICATION SYSTEM 68
A. General 69
B. Developed 70
C. Urban Transition 70
D. Limited Transition 72
(� E. Community 72
U F. Rural 72
G. Rural With Services 72
O H. Conservation 73
I. Land Classification Summary 74
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SECTION IV: RELATIONS OF POLICIES AND LAND
CLASSIFICATIONS
75
A. General
76
B . Developed and Urban Transition Classes
76
C. Limited Transition Class
76
D. Community Class
76
E. Rural Class
76
F. Rural With Services Class
77
G. Conservation Class
77
SECTION V: INTERGOVERNMENTAL COORDINATION
78
A. General
79
Appendix I: Review of Policies From 1986 Land Use
Plan Update
80
Appendix II: Results of Swansboro Citizen Survey
89
Appendix III: Assessment of the Thoroughfare Plan for the
Town of Swansboro on Existing Land Uses,
Future Land Uses and Zoning
100
Appendix IV: N.C. Natural Heritage Program and Plant
Conservation Program Element List
104
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TOWN OF SWANSBORO
1990 LAND USE PLAN UPDATE
LIST OF TABLES AND MAPS
TABLE
PAGE
1.
TOWN OF SWANSBORO POPULATION, 1930-1988
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2.
ONSLOW COUNTY POPULATION, 1930-1988
9
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3.
TOWN OF SWANSBORO POPULATION PROJECTIONS,
1989-2000 ARITHMETIC METHOD
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4.
TOWN OF SWANSBORO POPULATION PROJECTIONS,
1989-2000 GEOMETRIC METHOD
11
5.
ONSLOW COUNTY POPULATION PROJECTIONS,
1989-2000
11
6.
7.
POPULATION AGE DISTRIBUTION
AGE DISTRIBUTION OF 1988 GROWTH MANAGEMENT
13
STUDY SURVEY RESPONDENTS
13
8.
PERCENT DISTRIBUTION OF 1989 HOUSEHOLDS
BY INCOME
15
9.
CURRENT SWANSBORO AREA SCHOOL SYSTEM
35
10.
FUTURE SWANSBORO AREA SCHOOL SYSTEM
36
MAPS PAGE
1.
LOCATION MAP
9-A
2.
EXISTING LAND USES
Attached
3.
ESTUARINE SHORELINES
20-A
4.
100 YR. FLOOD ZONES & V-ZONES
25-A
5.
SOILS
26-A
6.
SALT WATER CLASSIFICATION
27-A
7.
CLOSED SHELLFISHING AREA
27-B
8.
GENERAL WETLANDS
28-A
9.
PRIMARY NURSERY AREAS
32-A
10.
LAND CLASSIFICATIONS
ATTACHED
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SECTION I:
ANALYSIS
OF
EXISTING CONDITIONS
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0 A. ESTABLISHMENT OF INFORMATION BASE
This 1990 Land Use Plan Update for the Town of Swansboro has been prepared in
(�f accordance with requimments of the North Carolina Coastal Area Management Act
(� (CAMA). Specifically, this document complies with Subchapter 7B, "Land Use
Planning Guidelines" of the North Carolina Administrative Code as amended on
October 25, 1989.
The initial Land Use Plan was prepared for Swansboro in 1976. The first update
was done in 1980 and the second update was done in 1986. According to the
(� "Land Use Planning Guidelines" the major purpose of periodically updating local
U land use plans is to identify and analyze newly emerging community issues and
problems. Another purpose is to re-examine the existing policies and to decide
whether these policies have been effective and whether they should be continued or
changed.
The guidelines further give the following objectives the update should meet:
- to further define and refine local policies and issues;
- to further examine and refine the land classification system and the land
classification map;
- to assess the effectiveness of the existing land use plan and its
implementation; to further explore implementation procedures; and;
R - to promote a better understanding of the land use planning process.
�j The 1976 Land Use Plan, along with the 1980 and 1986 updates provided much of
the needed information base for this most recent update. However, in many cases,
D new information had to be developed. A number of data sources were tapped
during the preparation of this plan in order to prepare updated analysis of
population, housing, economics (including agriculture, fisheries, and forestry), and
existing land uses.
Most of the data came from primary and secondary sources in the form of direct
contacts with representatives of various state and federal agencies and/or previously
published documents or reports. Windshield surveys were also conducted to obtain
data on existing land use patterns. Interviews were conducted with various town
officials. Efforts were made to obtain data that was as up-to-date and accurate as
possible.
The data analysis showed in most cases the changes since 1986 (the last update
0 year) have not been dramatic, however, some trends appear to be emerging. Some
major conclusions of the updated land use plan are:
1. The Town of Swansboro's population continued to grow between 1980 and
1990. Population growth is projected to continue through the year 2000.
2. The economic importance of tourism is firmly established and will remain
dominant in the Town throughout the next ten years.
3. The majority of land use changes over the next ten years will likely occur in
the form of vacant land adjacent to NC 24 being converted to commercial,
while vacant land in the ETJ may be converted to residential uses.
4. Swansboro will continue to be, too a large extent, a retirement and bedroom
community for the labor force in Jacksonville/Camp LeJeune.

5. With a growing population and expanding labor force, it will perhaps be
necessary to pursue economic expansion in the form of industrial
development.
Some of the data sources used in preparing this document include:
1. U.S. Census of Population and Housing, 1980, U.S. Department of
Commerce.
2. N.C. Office of State Budget and Management.
3. 1986 Swansboro CAMA Land Use Plan.
4. 1980 Swansboro CAMA Land Use Plan.
5. 1976 Swansboro CAMA Land Use Plan.
6. Preliminary Soil Survey Report for Onslow County, North Carolina,
U.S.D.A. Soil Conservation Service, 1989.
7. Swansboro Growth Management Study, Department of City And Regional
Planning, University of North Carolina, April, 1988.

0 1. POPULATION
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a. General
The Town of Swansboro is located in Onslow County in southeastern North Carolina (see
Map 1, Location Map).
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The below
population trends of the Town of Swansboro are examined in Table 1.
Table 1: Town of Swansboro Population, 1930-1988
Year Population Numberical Change Percent Change
1930 394 --- ---
1940 454 60 15.2 percent
1950 559 105 23.1 percent
1960 1,104 545 97.5 percent
(�
1970 1,207 103 9.3 percent
1980 976 - 231 - 19.1 percent
1988 1,353 377 (8 yrs.) 38.6 percent
(8
yrs.)
Sources: 1976 Swansboro Land Use Plan, State Data Center
The population of the Town of Swansboro has generally been increasing, since at
least 1930, when there were only 394 inhabitants. The population's growth rate seems to
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have accelerated each decade through 1960. Swansboro's population grew 15.2 percent in
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the 1930s, 23.1 percent in the 1940s, and 97.5 percent in the 1950s.
Then the growth trend seemed to stall as the Town's population grew only 9.3
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percent during the 1960s - from 1,104 to 1,207. The Town's population actually declined
during the 1970s, when the population fell 19.1 percent from 1,207 in 1970 to 976 in
1980.
QThe
North Carolina State Data Center believes that this downward trend has now
been reversed. The 1988 estimate for the Town of Swansboro population is 1,353
persons. This represents an increase of 38.6 percent over the eight year period of 1980 to
1988.
For comparison purposes, Onslow County's population trends are examined in
(�
Table 2.
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Table 2: Onslow CounW Population 1930-1988
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Year Population Numerical Change Percent Chanae
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1930 15,289 --- ---
1940 17,939 2,650 17.3 percent
1950 42,047 24,108 134.0 ercent
1960 82,706 40,659 96.7 percent
1970 103,126 20,420 24.7 percent
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1980 112,784 9,658 9.4 percent
1988 125,506 12,722 (8 yrs.) 11.3 percent
(8 yrs.)
QSources:
1976 Swansboro Land Use Plan, State Data Center
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p: GEI
Scale In Mile:
0 25 50 75 100
IWN
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MAP 1
Location Map
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U As can be seen in this table, Onslow County has experienced continual growth
since the 1930 Census. The rate of growth is now much slower than the phenomenal
a growth of the 1950s and 1960s which was due to the establishment of Camp Lejeune in
1941. It is important to note that the growth rate of the Town of Swansboro for the last
eight years is more than triple that of Onslow County.
ab. Population Projections
Since the State Data Center does not make population projections for municipalities,
(� Ken Weeden & Associates developed projections of Swansboro's future population for
U planning purposes.
Two methodologies were used to make population projections for 1989, 1990,
1995, and 2000. These were the arithmetic method and the geometric method. Regression
analysis was not used to make population projections because of the limited number of
D historical observations (seven) upon which calculations would be based.
The arithmetic method is based upon the average numerical change per year since
the last census in 1980. This method assumes that the average annual numerical increase of
the past will continue in the future. As shown in Table 3, this annual increase was. and
u will continue to be, fourty-seven (47) persons each year.
Because the numerical change is constant with this method while the base total is
increasing the resulting percentage change is decreasing. The projected 1989 population is
1,400 for an increase of 3.5 percent since 1988. The 1990 population is projected to have
increased 3.4 percent since 1980 to 1,447. The 1995 projected population is 1,683 for an
Q average annual increase of 3.2 percent (1990 to 1995) and the 2000 population is projected
to be 1,919 for an average annual increase of 2.8 percent (1990 to 2000).
Table 3: Town of Swansboro Population Projections 1989-2000
D
Arithmetic Method
Year Population Numerical Change
Percent Change
1989 1,400 47
3.5 percent
1990 1,447 47
3.4 percent
Q1995
1,683 236
16.3 percent
(3.26 percent@)
0
2000 1,919 236
14.0 percent
(2.8 percent@)
OSource:
Ken Weeden & Associates
The geometric method is based upon the average percentage rate of change since the
last census in 1980. This method assumes that the average annual rate of change of the
past will continue into the future. As shown in Table 4, this
annual rate of increase was,
and will continue to be, 4.83 percent each year. This rate is
multiplied by the number of
years between the base year (1988) and the projection year.
This figure is then muthplied
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by the 1988 base population of 1,353 persons.
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The resulting population projection for 1989 is 1.418 for a numerical increase of
sixty-five (65) persons. The 1990 projected population increased sixty-five (65) persons to
1,483. Finally, the population projections for 1995 and 2000 are 1,810 and 2,137 persons
respectively.
Table 4: Town of Swansboro Population Projections 1989-2000
Geometric Method
Year
Population
Numerical Change
Percent Change
1989
1,418
65
4.83 percent
1990
1,484
66
4.83 percent
1995
1,810
326
24.15 percent
(4.83 percent@)
2000
2,137
327
24.15 percent
(4.83 percent@)
Source: Ken Weeden and Associates
While both methodologies are reasonable attempts to project the Town of
Swansboro's population, the remainder of this report shall be based upon the higher set of
figures produced through the geometric method. It should be remembered that these
projections assume no major changes will occur in the Town. Major changes would
include annexation of sizable developed areas, the construction of a large new residential
development, or the siting of a large employer in the Town.
Population projections from the North Carolina State Data Center for Onslow
County show that the County's growth rate will continue to decline over the next decade,
as can be seen in Table 5.
Onslow County's population is estimated to have increased 2.28 percent to 128,371
in 1989 (from 125,506 in 1988). The County's 1990 population is projected to have
reached 130,520 for an increase of 1.67 percent. This slowing trend is reflected in
population projections for 1995 and 2000. The 1995 population for Onslow County is
projected to reach 140,836 for an average annual increase of 1.58 percent. The 2000
population is projected to reach 147,086 for an average aimual increase of only 0.88
percent. The comparative growth rates for the Town of Swansboro are more than double
or triple those of Onslow County over the next decade.
Table 5: Onslow County Population Projections, 1989-2000
Year EgpWation Numerical Change Percent Change
1989 128,371
2,865
2.28 percent
1990 130,520
2,149
1.67 percent
1995 140,836
10,316
7.90 percent
(1.58 percent®)
2000 147,086
6,250
4.44 percent
(0.88 percent®)
Source: State Data Center

nC.
Racial Composition
(�
The last official breakdown of the Town of Swansboro's population into its racial
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components was in the last U.S. Census in 1980. Those figures indicate that Swansboro's
population was almost entirely white. Only four of the Town's 976 residents were non-
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white: two were American Indians, and two were of Japanese origin. There were only four
persons of Spanish origin in the Town of Swansboro in 1980. The racial composition of
the Town has probably not changed much since the last census was conducted,nor is it
expected to experience drastic changes during the ten year planning period.
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d. Gender Breakdown
aThe
last official breakdown of the Town of Swansboro's population by gender was in the
last U.S. Census in 1980. At that time 532 of the Town's 976 residents were female
(54.51 percent) and 444 residents were male (45.49 percent). These figures compare to a
1980 national breakdown of 51 percent female and 49 percent male, thus indicating a
slightly more intense female concentration in Swansboro, than in the nation. This
distribution is expected to remain relatively stable during the ten year planning period.
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Age Breakdown
e.
The population distribution of the Town of Swansboro is skewed more toward the older
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age brackets than that of the United States and North Carolina's populations, as may be
seen in Table 6.
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The largest age bracket is ages 45 to 54 which had 156 persons (16.0 percent of the total).
The next largest age group is ages 55 to 64 which had 147 persons (15.1 percent of the
total). Person's over the age of 45 comprised 46.5 percent of the Town's total population.
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Two other large age brackets were persons aged 5 to 14 years and persons aged 15 to 24
years. These groups represented 14.1 and 14.2 percent respectively of the Town's total
population.
f. Population Summary
0 (� Although not growing rapidly, Swansboro is expected to experience significant growth
over the next 10 years, i.e. gaining a total of 653 additional persons. If current patterns
continue, then nearly one-half of the Town's population will be 55 years and older. This
Dmay indicate a need for more facilities and services which serve a mostly retired population.
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Table 6: Population Age Distribution
Age Bracket Number In Bracket Percent Of Total
less than 5
30
3.1
5 to 9
71
7.3
10 to 14
77
9.0
15 to 19
88
5.2
20 to 24
51
4.0
25 to 29
39
5.8
30 to 34
57
12.3
35 to 44*
120
16.0
45 to 54*
156
10.3
55 to 59
101
4.7
60 to 64
46
8.9
65 to 74*
87
5.6
75 to 84*
55
0.8
Over 85*
8
Total
976
**100.9
*Date not available for 5 year age brackets.
**Rounding error
Source: 1980 Census Summary Tape 3A
According to a 1988 random survey of 100 residents of Swansboro, this distribution
pattern has not changed drastically. Of the 100 survey respondents, the vast majority were
over the age of 35 years old, as may be seen in Table 7 below.
Table 7:
AEe Distribution of 1988 Growth Manaaement Studv Survev Resnondents
Age Bracket
Number of Respondents
Percent of Total
less than 21
9
9
21 to 35
17
17
35 to 55
26
26
55 to 65
21
21
over 65
27
27
Total
100
100
Source: Swansboro Growth Management Study, 1988; Department of City and Regional
Planning, University of North Carolina at Chapel Hill.
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a2. ECONOMIC ANALYSIS
Oa. Labor Force
Detailed labor force statistics for municipalities were only available in the 1980 U.S.
O Census. Therefore, 1980 figures are the most recent labor force figures available for discussion.
Of the 743 residents of Swansboro in 1980 who were over 16 years of age, 358 were not in the
labor force. This meant that the Town had a labor force participation rate of only 48.8 percent.
This low participation rate is due in part to the presence in the Town of a large number of persons
(� of retirement age. As previously noted, 150 of the Town's 976 residents (15.3 percent) were over
U the age of 65. These 150 retirement age residents comprised 20.2 percent of the civilian labor
force. Another 187 residents of Swansboro (19.2 percent) were less than the age of 16 and
Otherefore were not included in the Town's labor force.
b. Employment and Unemployment
The Town of Swansboro had 21 residents in 1980 who were in the armed forces (all 21
were male). The remaining 410 residents comprised the Town's 1980 civilian labor force. Sixty
percent (225) of the Town's 1980 civilian labor force were male and fourty percent (185) were
female. Twelve of the 225 (5.3 percent) were unemployed in 1980, while thirteen (7.05) of the
females were unemployed. The Town's combined unemployment rate therefore was 6.1 percent.
f1 Over 74.1 percent of the Town's labor force worked in Onslow County, while 20.8
U percent worked in another North Carolina county and only 2.0 percent worked in another state.
The remaining 3.0 percent did not report their place of work. Of the 292 persons working in
Onslow County, fifty worked in Jacksonville and the other 242 worked in areas outside of the
central city. A large number of these, no doubt, worked in Camp Lejeune which has recently been
armexed by the City of Jacksonville.
(� C. Industry Mix
u The largest industries in the Town of Swansboro were services (28.5 percent), public
administration (24.4 percent), and retail trade (20.3 percent). The importance of governmental
employment is understated by these figures. If all occupations, including secretarial, were
classified by whether they were private or public in nature, then the figure would be much higher.
Government workers - federal, state and local - represented 43.6 percent of the jobs held by
lJ residents of Swansboro. White collar jobs accounted for 44.2 percent of Swansboro's residents
t.� jobs in 1980.
0 d. Income
(� Swansboro's 1980 median household income was $14,113. This figure has increased
75.6 percent to $24,783 in 1989. This 1989 median household income is fifty-four (54) percent of
0 the national median household income and sixty-one (61) percent of the state's figure. The median
household income for the Town of Swansboro is projected to increase only 2.4 percent to $25,374
by 1994. This small increase is partially due to the number of residents who are on fixed incomes
(� due to retirement. The Town's average household income was $29,158 in 1989, while the average
�.! family income was $32,232 and the per capita income was $11,526. Approximately 12.4 percent
of the Town's residents were living at or below the poverty level in 1980.
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The income distribution by households in 1989 was as shown in Table 8 below. D
Table 8:
Percent Distribution of 1989 Households by Income
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Percent
Percent
Percent Percent
Percent Percent
Percent
less than
$10,000
$10,000-
$14,000
$15,000- $25,000-
$24,999 $34,999
$35,000- $50,000-
$49,999 $74,999
$75,000
or more
14.9
12.9
22.8 18.4
16.6 10.9
3.6
Source:
CACI's Sourcebook
Demographics Buying
of and
Power for Every Zip Code
in the USA
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DC. EXISTING LAND USE ANALYSIS
III
GENERAL PATTERNS
The general land use patterns within the jurisdiction of the Town of Swansboro has
changed little since the 1986 Land Use Plan Update. The majority of the Town of Swansboro
displays a typical urban developed land use pattern with mixed land uses in a relatively dense
concentration (See Map 2. Existing Land Uses attached.). The developed portion of the Towns
extraterritorial jurisdiction (ETJ) is used mainly for residential and some commercial uses.
a. Residential Uses
A variety of residential uses exist in Swansboro and its ETJ. Within the downtown
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area, here defined as the area south of Wise Branch, residential uses are predominately
single family homes on small lots. There are only a few mobile homes, only a few vacant
lots and no multi -family units in this area known as Old Swansboro.
OMoving
away from Old Swansboro the lot sizes increase and become more
dispersed with an increasing incidence of mobile homes. This pattern becomes more
pronounced in the Town's ETJ. To the west of the Town lies a large mobile home
subdivision. This development, known as Seashore Estates straddles Hammocks Road and
contains approximately 110 lots with only about ten vacant lots. (This mobile home
subdivision contains a homeowner's association recreational area as discussed in the
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section on recreational land uses.) A mobile home park exists in the ETJ at the west end of
Town across from the existing Swansboro High School. The remaining mobile home
residences within Swansboro's jurisddiction are located on scattered lots throughout the
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uThere
ETJ area.
are three multi -family residential areas within the Town's jurisdiction. All
three of these are located in the western portion of the Town on the southern side of NC
24. These developments are called Port West Apartments, East Park Apartments, and
Swansboro Hills Apartments.
ab.
Commercial Uses
The majority of commercial land uses within the jurisdiction of the Town of
Swansboro are located along the White Oak River waterfront and along NC 24. These
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commercial uses range from small businesses located within residences to large strip
shopping centers. There are several auto dealerships and a mobile home sales lot along NC
24. Other commercial sites along NC 24 include service stattions, restraurants, realtors,
O
banks, and other businesses. Commercial uses along the White Oak River include several
antique stores and other speciality stores which cater to tourists. Several of these stores are
located in converted homes which may be of historical significance.
OC.
Recreational Uses
There are several recreational areas within the jurisdiction of the Town of
Swansboro. Four of the smaller recreational tracts are located in Old Swansboro. One of
these lots is adjacent to the White Oak River and is known as Wards Shore Recreational
Area. Another recreational lot is located at the intersection of Broad Street and Shore
0
Drive. This lot is known as the Swansboro Rotary Tots Park and contains some
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Drive. This lot is known as the Swansboro Rotary Tots Park and contains some
playground equipment. Also in Old Swansboro is the two small lots - one on either side of
NC 24 adjacent to the White Oak River - which form Bicentennial Park. These lots are
joined together by a pedestrian walkway that passes under the NC 24 bridge.
The Town's largest recreational tract is the 17.49 acre Swansboro Town Park
which is located within the Town limits off of secondary road 1447 (Main Street
Extension). This facility has two tennis courts, a basketball court, a volleyball court and a
soccer field. Public restrooms and a concession stand have recently been constructed on
this site.
Other recreational areas are accessible to Swansboro residents outside of the Town
limits. These include Sander's Little League Field in the Town's eastern most ETJ on
secondary road 1444 (Swansboro Loop Road). Hammocks Beach State Park is located
only a few miles from the Town and offers nature trails, swimming, fishing, picnic areas,
camping and 892 acres for enjoying the scenery, beaches and Bear Island which is
accessible by a thirty-six (36) passenger ferry or private boat. The park has public
restrooms, a bathhouse, and a concession stand.
At least one development, Seashore Estates Mobile Home Subdivision on
Hammocks Road, west of town, has a homeowner's association recreation area. Their
facility is approximately two (2) acres and includes a shelter.
d. Public Uses
There is a variety of public land uses within Swansboro's jurisdiction. These
public uses include three schools in the ETJ and one school within the Town limits (see
section on Community Facilities for more discussion). Municipal land uses include the
Town Hall, Town Police Department and the Town library - all of which are located in the
Town Hall building at the intersection of Church and Webb Streets. Other municipal land
uses include the rescue squad and the fire department which have individual sites inside the
Town limits. Other public uses include the post office, the Masonic Lodge, several
churches and cemeteries, and the Town's sewage treatment plant which is located in the
ETJ on Foster's Creek.
e. Industrial Uses
There is only one industrial site within the jurisdiction of the Town of Swansboro.
This is the Swansboro Garment Company which is located on Old Hammocks Road, east
of NC 24. This is a small, "clean" industry which employs approximately two hundred
(200) persons on a 1.8 acre site.
,�W71.
F.
'There are large tracts of vacant land in the ETJ. Some of these are wetlands and as
such may pose serious legal, environmental and engineering constraints to development
17

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a2. SIGNIFICANT LAND COMPATIBILITY PROBLEMS
A land compatibility problem is generally identified when two or more land use types are
j� adjacent to each other and one is somehow restricted from expansion because of adverse
(� conditions, thus discouraging additional investment.
The major land compatibility problem in the Town of Swansboro is the location of single
family homes adjacent to high traffic generators like commercial sites, public use land (i.e.
churches, schools, etc.), and multi -family housing. It is generally desirable to have a smooth
transition from low intensity uses such as single family housing to more intense uses such as
U apartment complexes and shopping centers. A vegetative buffer zone may be substituted where a
u smooth transition of land uses is not feasible. However, in Swansboro there are sharp changes in
the intensity of adjacent land uses, without adequate buffer zones.
a3. MAJOR PROBLEMS FROM UNPLANNED DEVELOPMENT
The predominant problem from unplanned development in the jurisdiction of the Town of
Swansboro is poorly aligned street intersections. A citizen survey that was conducted as part of
this Land Use Plan Update found many complaints concerning intersections with poor sight
distances due to obtuse intersection angles which in some cases exceeded 130 degrees. These
Q intersections pose serious traffic hazards and reduce the efficiency of the Town's streets to move
traffic in and around the Town.
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4. AREAS EXPERIENCING OR LIKELY TO EXPERIENCE MAJOR LAND USE
CHANGES
There are three areas within the jurisdiction of the Town of Swansboro that have a strong
potential for rapid growth. These areas are the Oyster Bay and River Reach subdivisions and the
Hammocks area. The Oyster Bay and River Reach subdivisions are both existing projects with
homes under construction for the past several years.
Oyster Bay is within the Town's extraterritorial jurisdiction (ETJ) on the northeast side of
Town. There was an unsuccessful attempt to annex this area into the Town in 1989. The
subdivision has forty (40) lots on twenty-five (25) acres.
The River Reach subdivision is also on the northeastern side of Town, but it is located just
outside of Swansboro's ETJ. This area is included in this discussion because it will definitely
impact Swansboro's economy and community facilities. This subdivision is served by
Swansboro's sewer system (as is Oyster Bay). This subdivision has 151 lots on 104 acres.
Development has begun in the Hammocks area, with some lots along the Intercoastal
Waterway now being cleared and sold. There are plans being considered for 850 residential units
on 475 acres in this area.
5. IDENTIFICATION OF AREAS OF ENVIRONMENTAL CONCERN
There are two broad categories of statutorily defined Areas of Environmental Concern
(AFC's) found in coastal North Carolina. These are estuarine system AEC's and ocean hazard
AEC's. There are no ocean hazard AEC's in the jurisdiction of the Town of Swansboro because it
is an inland community located on the White Oak River without any direct ocean frontage. See
Map 3, for generalized locations of the estuarine sytem AFC's. It should be noted that this map
18

does not attempt to designate these areas, but instead only represents the approximate location of
these areas. Wetlands, for example, can only be determined by a site by site evaluation.
a. Coastal Wetlands
Coastal wetlands or marshlands are defined as any salt marsh or other marsh subject to
regular or occasional flooding by tides, including wind tides (whether or not the tidewaters
reach the marshland areas through natural or artificial watercourses). This does not include
hurricane or tropical storm tides.
Coastal marshlands also contain some, but not necessarily all, of specific marsh plant
species. These species are listed below:
Cord Grass (Spartina alterniflora)
Black Needlerush (Juncos roemerianus)
Glasswort (Salicornia spp.)
Salt Grass (Distichlis spicata)
Sea Lavender (Limonium spp.)
Bulrush (Scopus spp.)
Saw Grass (Cladium jamaicense)
Cat -tail (rypa spp.)
Salt Meadow Grass (Spartina patens)
Salt Reed Grass (Spartine Cynosuroides)
A 1989 report entitled "Swansboro, North Carolina Environmental Constraints Analysis"
indicates that coastal wetlands exist mainly in the southern portion of Swansboro's
jurisdiction along the White Oak River and Queens Creek's inlet to Hall's Branch.
b. Estuarine Waters and Estuarine Shorelines
Estuarine waters are defined in G. S. 113A-113 (b) (2) as "all the water of the Atlantic
Ocean within the boundary of North Carolina and all the waters of the bays, sounds, rivers
and tributaries thereto seaward of the dividing line between coastal fishing waters and
inland fishing waters as set forth in an agreement adopted by the Wildlife Resources
Commission and the Department of Environment, Health and Natural Resources, found in
the most current revision of the N.C. Fishing Regulations for Coastal Waters. Estuarine
waters may alternatively be defined as semi -closed coastal bodies of water that are fed by
the Atlantic Ocean and are comprised of seawater which is measurably diluted with fresh
water drained from the adjacent land areas.
Estuarine shorelines are those non -ocean shorelines which are especially vulnerable to
erosion, flooding, or other adverse effects of wind and water and are intimately connected
to the estuary. These shorelines can be wetlands as well as dry land. This area extends
from the mean high water level or normal water level along the estuaries, sounds, bays,
and brackish waters as set forth in an agreement adopted by the Wildlife Resources
Commission and the Department of Environment, Health, and Natural Resources, for a
distance of seventy-five (75) feet landward. It should be noted, however, that estuarine
shorelines are only located adjacent to coastal or joint waters, and not inland waters.
As an AEC, estuarine shorelines, although characterized as dry land, are considered a
component of the estuarine system because of the close association with the adjacent
estuarine waters. Estuarine waters and adjacent estuarine shorelines make up the most
significant components of the estuaries system in the Town of Swansboro.
The significance of the estuarine system is that it is one of the most productive natural
environments of North Carolina. It not only supports valuable commercial and sports
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fisheries, but is also utilized for commercial navigation, recreation and aesthetic purposes.
Species dependent upon estuaries include menhaden shrimp, flounder, oysters and crabs.
These species make up over ninety (90) percent of the total value of North Carolina's
(7 commercial catch. These species must spend all or part of their life cycle in the estuary.
(,J The preservation and protection of these areas are vitally important.
The estuarine waters and adjacent estuarine shorelines are vast in the jurisdiction of the
0 Town of Swansboro (see Map 3). Estuarine waters and estuarine shorelines in
Swansboro's jurisdiction include all of the White Oak River up to Grants Creek (which is
well beyond the Town's jurisdiction).
QC. Public Trust Waters
Public trust waters are partially defined as all waters of the Atlantic Ocean and the lands
thereunder from the mean high water mark to the seaward limit of state jurisdiction; all
natural bodies of water subject to measurable lunar tides and lands thereunder to the mean
high mark, all navigable natural bodies of water and lands thereunder to the mean high
water level or mean water level, as the case may be. In other words, public trust areas are
waters and the lands thereunder, the use of which, benefits and belongs to the public.
In Swansboro's jurisdiction all of the waters are Estuarine Waters, and are also considered
public trust waters.
Q Currently, all development and development -related activities within the designated AEC's
in Swansbom's jurisdiction are regulated by the CAMA permit process and are guided by
local policy (regulations allow a local government to develop its own use standards for
O AEC's if they are more restrictive than the State's).
d. Outstanding Resource Waters (ORWs)
Q In 1989, the N.C. Environmental Management Commission designated certain waters as
Outstanding Resource Waters, (ORWs). Outstanding resource waters (ORWs) are defined
as being unique and special surface waters that are of exceptional state or national
recreational or ecological significance with exceptional water quality. As an AEC, these
areas may also be subject to the CAMA permit process. ORWs should also meet the
following conditions as set forth by the Environmental Management Commission (EMC):
O 1. There are no significant impacts from pollution with the water quality rated as
excellent based on physical, chemical and/or biological information;
O 2. The characteristics which make these waters unique and special may not be
protected by the assigned narrative and numerical water quality standards.
The EMC also requires that an ORW exhibit one or more of the following values or uses to
Qdemonstrate its exceptional state or national recreational or ecological significance.
1. There are outstanding fish (or commercially important aquatic species) habitat and
Ofisheries;
2. There is an unusually high level of water -based recreation or the potential for such
Qrecreation;
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Map 3:
0 * 0 * Estuarine Shorelines
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRA
THROUGH FUNDS PROVIDED BY THE COASTAL ZONE
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC AOMINISTRAT
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3 . The waters have already received some special designation such as a North Carolina
or National Wild and Scenic River, Native or Special Native Trout Waters, National
Wildlife Refuge, etc., which do not provide any water quality protection.
4. The waters represent an important component of a stage or national park or forest: or
5. The waters are of special ecological or scientific significance such as habitat for rare
or endangered species or as areas for research and education.
la ORWs are a type of Area of Environmental Concern (AECs) but they impose more
l.1 restrictions on development than those imposed upon estuarine shorelines. ORWs have
development restrictions which extend 57 5 feet landward from the mean high water line,
n whereas the restrictions on estuarine shorelines extend only seventy-five (75) feet
J landward.
The only ORWs in the general vicinity of Swansboro are the Western Bogue Sound and
Bear Island ORWs which are located several miles downstream of Swansboro in Carteret
County. Swansboro therefore has only an indirect relationship to this ORW, as the White
Oak River empties into Bogue Inlet and Bogue Sound. These ORWs do, however, come
O close to Hammocks Beach. The Town of Swansboro should work with Carteret County to
aid in the preservtation of the ORW status of Bogue Sound.
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D. REVIEW OF CURRENT PLANS. POLICIES. AND REGULATIONS
The Town of Swansboro has adopted the following plans, studies and regulations:
1. TOWN OF SWANSBORO LAND USE PLAN, ADOPTED 1976
This was the original CAMA Land Use Plan for the Town of Swansboro. It was prepared
by the Town of Swansboro with assistance by the Department of Natural and Economic
Resources. It described the current population and economy, existing land uses, land use
constraints, and community facilities constraints. Based upon these existing conditions, it
projected future needs and demands, and set goals, objectives and policies to meet those needs.
2. TOWN OF SWANSBORO LAND USE PLAN UPDATE, ADOPTED 1980
This was the first five year update of the original CAMA Land Use Plan of 1976. It was
prepared by the Town Administrator/Planner, with technical assistance by the Onslow County
Planning Director. It revised the population, economic and land use data base and projections
used in the original 1976 report. It also reviewed the land use and community facilities constraints.
This updated information was then used to identify and analyze emerging community issues and
problems and to re-examine the existing policies for effectiveness and implementation.
3. TOWN OF SWANSBORO LAND USE PLAN UPDATE, ADOPTED 1986
This report was prepared by the Town of Swansboro with planning assistance by Satilla
Planning Consultants of St. Marys, Georgia. It was the second update of the original 1976 CAMA
Land Use Plan, and served to revise the base data, issues, policies, goals and objectives of the
1980 Update.
4. SWANSBORO AREA 201 (WASTE WATER) FACILITIES PLAN
Ibis plan evaluates the long range needs for waste water collection, treatment and disposal
for the Town and the unincorporated areas of Onslow County to the general vicinity of N.C.
Highway 172. It identifies the Town of Swansboro as the lead agency for identification and
resolution of problems concerning waste water and septic tanks within this area.
5. COMMUNITIES FACILITIES ELEMENT, ADOPTED 1980
This report evaluated the provision of community facilities within the Town of Swansboro.
It compared the existing facilities and needs, as well as future needs and plans for facility
expansion.
6. SWANSBORO GROWTH MANAGEMENT STUDY. 1988
This study was conducted by Dr. Raymond Burby and a group of graduate students from
the Department of City and Regional Planning of the University of North Carolina at Chapel Hill.
The study evaluated the local environment, infrastructure and community services and methods of
growth management needed to meet citizen preferences and needs.
22

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7. CAPITAL IMPROVEMENTS PROGRAM
This section of the annual budget focuses on existing and long term maintenance and repair
(� needs of the Town's water and sewer systems, improving on system capabilities, efficiency of
U daily operations, and efforts to comply with changes in state and federal requirements.
n 8. N.C. STATE BUILDING CODE
u The Town of Swansboro has adopted all volumes of North Carolina's state building code.
O The electrical codes are enforced by an inspector who is shared with the Town of Emerald Isle. All
other portions of the State's Building Code are enforced by Swansboro's building inspector.
9. NATIONAL FLOOD INSURANCE PROGRAM, ADOPTED 1985
aThe Town of Swansboro is a member of the regular phase of the National Flood Insurance
Program.
10. N.C. TRANSPORTATION IMPROVEMENT PROGRAM, 1990-1996
This plan, prepared by the N.C. Department of Transportation, is a statewide schedule of
highway improvements to be undertaken during the 1990-1996 period.
O 11. SWANSBORO MUNICIPAL ZONING ORDINANCE, ADOPTED 1968, AMENDED
1985, 1989
Q The original zoning ordinance was established in 1968. Due to its limited number of
zoning categories and its inconsistency with the Onslow County Zoning Ordinance, it was
amended in 1985. The 1985 amendment expanded upon the old ordinance by adding seven new
residential districts, a new business district and a light industrial district to the existing six district
Q code. The 1989 amendment provided for sprinkler systems in new large buildings and for loop
water systems in certain developments.
12. SWANSBORO SUBDIVISION REGULATIONS, ADOPTED 1968, AMENDED 1988
This ordinance established a set of regulations which must be followed by land developers
in creating new subdivisions for residential development, including planning unit developments
(PUD's).
13. SWANSBORO IMPACT FEE ORDINANCE, ADOPTED 1985
oThis ordinance establishes that the cost of providing water and sewer services to new
developments shall be incurred by the users.
14. SWANSBORO SEWER ORDINANCE. ADOPTED 1985, Revised 1987
This ordinance requires that households in the extraterritorial jurisdiction who want to be
O served by the Town's sewage treatment system must formally request service and must incur the
cost of extending the service to their households.
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15. SWANSBORO WASTE AND SEWER EXTENSION REGULATIONS
These regulations established a system for extension of water and/or sewer services to
areas in the adjacent unincorporated areas. This system established a method for reviewing request
for service extension, summarizes the state agency approvals and engineering specifications
required and provides a method of financing such extensions. At the time of this report's writing
(July, 1990) the Town Council is in the process of revising and updating the Town's existing
policies.
16. SWANSBORO SANITARY SEWER SYSTEM INVESTIGATION. 1987
This study was conducted by Henry Von Oesen Inc., an engineering consulting firm from o
Wilmington, N.C. This 1987 study attempted to identify points of infiltration into the sewer
system as well as other problem areas. The study also evaluated the Town of Swansboro's present D
sanitary sewer system and made recommendations to improve the present system, eliminate these
problem areas and to meet future needs of the area.
17. SWANSBORO WATER SYSTEM STUDY, 1987
This 1987 study was conducted by Henry Von Oesen Inc., an engineering consulting firm
from Wilmington, N.C. This study evaluated the Town of Swansboro's present water system and O
made recommendations to improve the present system to meet future needs of the area.
18. THOROUGHFARE PLAN FOR THE TOWN OF SWANSBORO, 1990 O
This plan is the first such thoroughfare plan conducted for the Town of Swansboro and is
designed to serve the needs of the area through 2015. It identified eleven transportation needs for ry
the area and evaluated the cost and benefits of each proposed project. u
19. COMPREHENSIVE WASTEWATER PLANNING STUDY, 1990
This study will delineate drainage basin boundaries, estimate service areas, estimate the O
potential of consolidating pumping stations, and plan for new stations strategically located to
service future development. O
20. COASTAL INITIATIVES PROGRAM
While not technically a "Plan", in 1988 the Town of Swansboro received special
designation as a pilot community through the Governor's Coastal Initiatives Program. This
program provided special technical assistance to selected communities to aid in their overall
community and economic development. Since 1989, Swansboro has been involved in several O
coastal initiatives projects, including the completion of a Town boat dock and the dredging of
Hawkins Creek. Other activities are also planned.
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aE. CONSTRAINTS: LAND SUITABILITY
This section of the Swansboro Land Use Plan proposes to identify features of the land or
a landscape in the Town's jurisdiction which are or could pose serious constraints to development.
Land suitability constraints are considered under the broad categories of:
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1) physical limitations - hazardous (man-made or natural) areas, areas with soil
limitations, hazardous slopes, etc.
2) fragile areas - AEC's, complex natural areas. or areas with cultural (architectural or
archaeological) significance, and
3) areas with resource potential -productive or prime agricultural or forest lands, or
potential valuable mineral sites.
Some of these elements were discussed in the 1980 and 1986 Land Use Plan Updates, but because
of the implications for updating certain policies, additional discussion will be presented below.
1. PHYSICAL LIMITATIONS
a. Man -Made Hazards
There are no conventional man-made hazards in Swansboro's jurisdiction, however, there
is a large automobile junk yard on the north side of NC 24 behind the Mini -storage facility
(opposite side of secondary road 1514). Although there are some military aircraft activity
in the vicinity of Swansboro, this has not been perceived as a serious hazard to
development.
b. Natural Hazard Areas
O1. Flood Hazard Areas
The Federal Emergency Management Agency (FEMA) conducted a detailed study
of flood hazard areas and base elevations for the Town of Swansboro (see Map 4).
The resulting flood insurance rate map (FIRM) became effective on October 18,
1983.
The flood insurance rate maps show that there are areas along the White Oak River
shoreline that are susceptible to the one hundred (100) year coastal flood with
velocity, that is with wave action. These areas are designated as Zone V on the
FIRM's.
There are also sizable areas within the Town's jurisdiction that are subject to
inundation by the one hundred (100) year flood. These areas are designated as
Zone A on the FIRM's. Still other portions of the Town's jurisdiction are subject
to the five hundred (500) year flood. These areas are designated as Zone B on the
FIRM's. However, the majority of the Town's jurisdiction is classified as Zone C.
These areas are subject to a minimal threat of flooding.
2. Estuarine Erosion Area
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Map 4:
® 100 yr. Flood Zones &
V-Zones
25 (a)
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRA
THROUGH FUNDS PROVIDED BY THE COASTAL
Z F
MANAGEMENT ACT OF 1972. AS AMENDED
\� WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRA
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NORTH CAROLINA 0
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The only documentation concerning estuarine erosion is a 1976 study by the
USDA's Soil Conservation Service. This study showed that none of the estuarine
shoreline areas within Swansboro's jurisdiction were subject to estuarine erosion.
In fact, there is some evidence that portions of Swansboro's estuarine shorelines
have increased in land area.
Qc.
Areas With Soils Limitations
The 1986 Swansboro Land Use Plan Update's soil analysis was based upon a 1984 special
soil survey report for Onslow County. This data has been updated by The USDA Soil
Conservation Service and is currently being prepared for publication.
The report includes detailed descriptions of the soil types and properties for the Swansboro
area with discussion of the suitability for various uses such as croplands, urban
development, and recreation. The most important feature, or property, of soils to be
considered in the Swansboro area is its drainage capability, since well -drained, stable soils
can be used for a variety of development purposes, i.e. croplands or residential (septic tank
suitability).
In general, the soils in Swansboro's jurisdiction have limitations for many uses because of
a
wetness or flooding and slope. Of the thirteen (13) local soil classifications contained in
the soil survey report, all except two were characterized as being excessively wet with
limitations for urban development uses. (See Map 5.)
d. Slopes in Excess of 'Twelve (12) Percent
There are no steep slopes in excess of twelve (12) percent anywhere in the jurisdiction of
the Town of Swansboro.
e. Stream Water Classification
aThe
Division of Environmental Management (DEM) of the Department of Environment,
Health and Natural Resources samples water bodies and classifies them based upon water
quality and recommended usage. These waters are grouped into two general groups - the
freshwater classification and the tidal salt water classification.
The basic freshwater classifications and the allowed uses are as follows:
Class C: freshwaters protected for secondary recreation, fishing and aquatic life
including propogation and survival; all freshwaters are classified to protect these uses at
(� a minimum;
U Class B: freshwaters protected for primary recreation which includes swimming on a
afrequent and/or organized basis and all Class C uses.
The basic tidal salt water classifications and the allowed uses are as follows:
o Class SC: saltwatets protected for secondary recreation, fishing, and aquatic life
including propogation and survival; all saltwaters are classified to protect these uses at a
minimum;
a 26
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Map 5:
Q Soils with Severe Limitations
to Developmetit
THE PREPARATION OF THIS MAP WAS FINANCED
W PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGR
THROUGH FUNDS PROVIDED BY THE COASTAL 1-141
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRA h
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1 NORTH CAROLINA
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Class SB: saltwaters protected for primary recreation which includes swimming on a
frequent and/or organized basis and all Class SC uses;
Class SA: suitable for commercial shellfishing and all other tidal saltwater uses.
The water bodies in Swansboro-s jurisdiction are classified as shown on Map 6 and as
follows:
White Oak River
SA
White Oak River Restricted Area
(*see description below)
SC
Fosters Creek
Sc
Dennis Creek
SC
Hawkins Creek
SC
Wise's Branch
Sc
Halls Branch (Branch of Queens Creek)
SA
Pickett Bay
SA
Corbetts Creek
SA
Montford Creek
SA
Stevens Creek
SA
The White Oak River Restricted Area noted above is described as "that portion of (the)
White Oak River within an area bounded by a line running in an easteriy direction from a
point below Foster Creek to (the) east end of (the) Swansboro Bridge (NC Hwy. 24), thus
across (the) bridge to (the) west end of (the) bridge, thus running along (the) shoreline to a
point below Foster Creek."
Stevens Creek is listed because its source is within Swansboro extraterritorial jurisdiction
(near SR 1448 - Mt. Pleasent Road) but the majority of the creek is outside the ETJ.
Hominy Creek is not listed because it was too small to have a classification. At this
writing, (July, 1990) an appeal has been made to the North Carolina Water Quality
Division of the Department of Environmental Management to upgrade the waters near the
marsh islands and the mainland near which the northeastern most Town limit passes.
These waters are currently SC, but the appeal request that they be upgraded to SB which
would allow for swimming.
f. Closed Shellfish Areas
As a general rule, all waters classified by the Division of Environmental Management as SA
waters are open for commercial shellfishing (see previous section on Stream Water
Classification above). All other waters are closed for commercial shellfishing. Causes of
high bacteria counts which may result in the closure of shellfish beds include sewage
treatment outfalls, septic tank seepage, and nonpoint source urban runoff.
There are some areas within generally designated SA waters which have been closed for
shellfishing due to discharges or runoff from an accident or a severe storm. These areas
are often closed only temporarily. In other instances portions of waters initially designated
as SB or SC may have improved to the point where some shellfishing may be permitted.
For these reasons a Closed Shellfishing Map (Map 7) has been included in addition to the
Stream Classificaion Map (see Map 6). The Closed Shellfishing Map should be updated as
necessary to reflect changing water quality.
27

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Map 6: —,
Stream Water Classification
THE PREPARATION OF THIS MAP WAS FINANCED
N PART THROUGHA GRANT PROVIDED BY THEryORTH CAROLINA COASTAL MANAGEMENT PROGR� iHROUGH
FUNDS PROVIDED BY THE COASTAL
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HICH IS ADMINISTERED BY THE OFFICE
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SWANSBORO
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THE PREPARATION OF THIS MAP WAS FINANCED
O IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZON
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF -COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC AOMINISTRATIO!
r
,�,^itj f M•
0
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-.7,: s'-z'
• •'••:••••:••••:�:•.••••:••• SWANSBORO
Map 7: • •' ' ' ' ' •''•' NORTH CAROLINA
• • Closed Shell Fishing Areas
Q27 ` b / •� ww •••

Closed shellfish areas in the Swansboro area include the restricted area of the White Oak
River. This area is defined as:
All waters beginning at a point on the west shore in Picketts Bay at 34° 41'
28" N - 77" 07' 08" W; thence to a point on Marsh Island at 34" 41' 21" N -
77' 06'55" W; thence in a straight line to the eastern end of Highway 24
Bridge at Swansboro, 34' 4F 08" N - 77' 06' 58" W; thence to a point on
the southwest shore of the ICWW at 34° 40' 13" N - 77' 08" 00" W. near
Beacon #49, ICWW; thence across the ICWW to a point on the shore at 34'
40' 18" N - 77' 08' 05" W.
Also closed for shellfishing is all of the waters of Stevens Creek upstream of a straight line
across the mouth of the creek. (Stevens Creek has its source in Swansboro's extraterritorial
jurisdiction near secondary route 1448 (Mt. Pleasent Road).
It should be noted that these are only general descriptions. When gathering shellfish,
citizens should avoid areas declared polluted and hazardous as designated by lime -green
signs on posts in the area.
2. FRAGILE AREAS
These are areas which could easily be damaged or destroyed by inappropriate or poorly
planned development. There are several fragile areas in Swansboro's jurisdiction including those
areas previously identified and discussed as Areas of Environmental Concern (AFC's). These
included coastal wetlands (or marshlands); estuarine waters, estuarine shorelines, public trust
areas, and Outstanding Resource Waters (ORW's). (See pages 18 through 21).
There are other fragile areas in the Towns jurisdiction which are not classified as Areas of
Environmental Concern, but nevertheless, due to either natural or cultural significance, these areas
are environmentally sensitive. An example are the 404 wetlands, as designated by the U.S. Army
Corps of Engineers. The U.S. Army Corps of Engineers and the U.S. Environmental Protection
Agency have defined wetlands as follows; 'Those areas that are inundated or saturated by surface
or ground water at a frequency and duration sufficient to support a prevalence of vegetation
typically adapted for life in saturated soil conditions. Wetlands generally include swamps,
marshes, bogs, and similar areas." These areas are extensive in Swansboro's jurisdiction and
function similarly to AEC's. The 404 areas are regulated by the Corps and not by the State. (See
Map 8.)
Additional fragile areas will be identified and discussed below as either Natural Resource
Fragile Areas, or Cultural Resource Fragile Areas.
a. Natural Resource a Areas
Natural resource fragile areas are generally recognized to be of educational, scientific, or
cultural value because of the natural features of the particular site. These areas include
complex natural areas, areas that sustain remnant species, unique geologic formations,
pocosins, wooded swamps, prime wildlife habitats, or registered natural landmarks. There
are no unique geologic formations or registered natural landmarks in Swansboro's
jurisdiction.
28

-�r-
�V
I
j1� •:
LW
' "Generaill Locations of
1 .l.
G
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE
NORTH CAROLINA COASTAL MANAGEMENT PROGRAM.
THROUGH FUNDS PROVIDED BY THE COASTAL ZOH
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATIO.-
;F
a
+r`
SWANSBORO
` NORTH CAROLINA
11
28 (a) .�

1. Prime Wildlife Habitats and Areas That Sustain Remnant Species
There are no areas within the jurisdiction of the Town of Swansboro that have been
identified by the North Carolina Natural Heritage Program as prime wildlife habitats or
as sMcific areas that sustain remnant species. No detailed study of the area has been
conducted. A small marsh island south of the Town is the site of a nesting colony for
gulls, terns and skimmers.
The only specific data for the greater Swansboro area is for nearby Huggins Island. A
species of plant, the small -flowered buckthorn (Sageretia minutiflora), is found on
Huggins Island. This species is being considered as a candidate for legal protection as
a threatened species within North Carolina. This island is not in Swansboro's
jurisdiction.
The State's Natural Heritage Program believes that there is some evidence that areas
located north and west of the Town have potential for rare natural community types.
These include Coastal Fringe Evergreen Forest, Coastal Fringe Sandhill, and Estuarine
Fringe Loblolly Pine Forest, as well as rare species.
There are significantly rare species located on the one hundred acre Huggins Island
which is located outside Swansboro's jurisdiction in the sound south of the NC 24
Highway bridge. This island has an occurrence of Maritime Forest and Maritime
Swamp Forest which are particularly rare on sound islands and are rare community
types of concern in North Carolina. This island, and eight others along the North
Carolina coast, have been listed by the North Carolina Coastal Resources Commission
as needing more study as to whether development restrictions are needed to prevent
their destruction.
Even though this island is outside of Swansboro's jurisdiction it may be indirectly
affected by policies set forth by the Town. For example, permitting development on
smaller marsh islands that are within the Town's jurisdiction, may make the battle to
protect Huggins Island harder.
There is also no Town specific data available for federally listed endangered or
threatened plant and animal species, however federal data is available for Onslow
County. There are several species listed as endangered within Onslow County. These
species may or may not be found within Swansboro's jurisdiction. but no official
records exist.
The species listed as endangered are the eastern cougar (Felis Concolor Cougar), the
red -cockaded woodpecker (Picoides Borealis), the rough -leaved loosetrife (Lysimachia
Asperulaefolia), and Coolery's meadowrue (Thalictrum Cooleyi). There are also two
federally listed threatened species in Onslow County. These are the green sea turtle
(Chelonia Mydas) and the loggerhead sea turtle (Caretta Caretta).
In addition to the species listed above there are several species that are listed as under
status review. These status review species are not legally protected but are being
considered for study and inclusion as threatened or endangered, which would give
them legal protection.
29

These status review species include the pine barrens treefrog (Hyla Andersonii), sea -
beach pigweed (Amaranthus Pumilus), riverbank sand grass (Calamoviifa Brevipilis),
Carolina grass-of-pamassus (Parnassia Caroliniana), spring -flowered goldenrod
a (Solidago Verna), wineleaf dropseed (Sporobolus Teretifolius), Boykin lobelia
(Lobelia Boykhm) and awned meadow -beauty (Rhexia Anstosa).
The State of North Carolina maintains an independent listing of endangered or threaten
species. This list is included in this report as Appendix IV.
I
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b. Cultural Resource Fragile Areas
Fragile areas may be particularly important to a locale either in an aesthetic or cultural
sense. Fragile cultural resource areas are generally recognized to be of educational,
scientific, aesthetic, or cultural value because of their special importance to our
understanding of past human settlement of, and interaction with, the coastal zone. Their
importance serves to distinguish the designated areas as significant among the historic
architectural or archaeological remains in the coastal zone, and therein establish their value.
The North Carolina Department of Cultural Resources (NCDCR) indicates that the
Swansboro Historic District is listed on the National Register of Historic Places.
The Swansboro Historic District includes the original 48 lots that were plotted by
Theophilus Weeks when the Town was created in 1770. The historic district also includes
the buildings which were built by the Swansboro Land and Lumber Company through
1910. This historic district encompasses an area approximately four blocks by three blocks
and extends three hundred feet into the White Oak River. An additional seventeen sites in
the greater Swansboro area were recorded during the historic architectural resources survey
of Onslow County but have not been evaluated for inclusion in the National Register.
The Department of Cultural Resources also list twenty-three historic and prehistoric
archaeological sites within the limits of the Town of Swansboro. All twenty-three sites are
located within the existing historic district,. Many of these known sites have been adversely
affected or destroyed by man's development activities.
The Department of Cultural Resources predicts that as new development and redevelopment
occurs, new sites will be unearthed. Most of these new discoveries will be related to
existing, known historic structures. They also recommend that new development proceed
with caution and that their department be contacted if cultural remains are encountered.
The Department of Cultural Resources also list a number of archaeological sites in the
extraterritorial jurisdiction of Swansboro. Most of there sites are clustered along the White
Oak River, Hawkins Creek, Dennis Creek, Fosters Creek, and Corbetts Creek. Most of
these sites are related to prehistoric Native American dwellings.
Again, the majority of these sites have been severely damaged or destroyed by
development. The Department of Cultural Resources recommended that the undeveloped
lands along these waterways should be considered archaeologically sensitive. The
Department also recommends that these areas be surveyed for evidence of additional
significant archaeological resources. If such evidence is found then the Department
recommends that the Town's zoning ordinance be modified to "protect and preserve" any
significant sites.
30

3.
The Department of Cultural Resources has only one significant underwater archaeological
site listed for the Swansboro area. This site is the Deer Island Wharf which is located in
the Town's ETJ just outside of the Town limits in Hawkins Creek. It should be noted that
no real study of underwater archaeological sites has been conducted for this area. The
Department considers the adjacent river bed to have a high potential for submerged
archaeological remains. The Department recommends a project -by -project evaluation for
any development which may disturb underwater archaeological resources.
AREAS WITH RESOURCE POTENTIAL
a. Agricultural and Forest Lands
The primary areas with resource potential to be considered in this update of the Town of
Swansboro's Land Use Plan are agricultural and forest lands and productive water bodies.
In August, 1983, the Governor of North Carolina issued a formal policy declaration
(Executive Order 96) concerning the State's desire to promote the "Conservation of Prime
Agricultural and Forest Lands" in support of, and to assist with, compliance of the Federal
Farmland Protection Policy Act of 1980. The declaration of Executive Order 96 recognized
the fact that in many areas of the State, prime agricultural and forest lands are being
converted to other uses at such a significant rate that these irreversible uses may ultimately
reduce the capacity of food and fiber production.
Prime agricultural and forest lands were defined as those lands "...which possess the best
combination of physical and chemical characteristics for producing food, feed, fiber
(including forest products), forage, oilseed, and other agricultural products (including
livestock), without intolerable soil erosion."
The Governor directed the Secretary of the Department of Natural Resources and
Community Development to assume the responsibility of carrying out the order. The
program proposed in the Executive Order involved the identification and mapping of prime
agricultural and forest lands by the Soil and Water Conservation Commission through the
assistance of local Soil and Water Conservation Districts. The impact of any development
proposed on prime agricultural or forest lands would also have to be assessed beginning
January 1, 1984 by means of the existing State Clearinghouse review process.
Prime agricultural and forest lands have been indentified and mapped in accordance with
Executive Order 96 in Swansboro's jurisdiction. These designations are done as a part of
Onslow Cou ity's soil survey and are listed by the most productive soil types as noted in
the Soil Survey of Onslow Court. North Carolina. Most of the prime agricultural and
forest lands in Swansboro's jurisdiction are located in the Town's extraterritorial
jurisdiction. These lands are also used for hunting, camping and other recreational uses.
b. Productive Water Bodies
Because of the significance of commercial and recreational fishing in Swansboro's
jurisdiction the primary fishing areas should also be considered as an area with resource
potential. Most fishing activities occur in the White Oak River: Fishing also occurs in the
creeks that branch off of the White Oak River. These branches include Fosters, Dennis,
31

0 Hawkins, Corbetts, Montford and Stevens Creeks. All of these waters are also valued for
their recreational uses such as boating, swimming and for their asethetic value.
Oc. Nursery Areas
1. General
General nursery areas are defined as "those areas in which. for reasons such as
food cover, bottom type, salinity, temperature and other factors, young hniish and
(� crustaceans spend the major portion of their initial growing season."
U 2. Primary Nursery Areas
Primary nursery areas are defined by the North Carolina Marine Fisheries
Commission as "those areas in the estuarine system where initial post -larval
development takes place. These areas are usually located in the uppermost sections
of a system where populations are uniformly very early juveniles."
The only primary nursery area within Swansboro's planning jurisdiction is a
f 1 portion of Hawkins Creek which is shown on Map 9, page 32-A. Holland's Mill
Branch, which is located outside of Swansboro's ETJ, also contains a primary
nursery area.
3. Secondary Nursery Areas
Secondary nursery areas are defined as those areas in the estuarine system where
a later juvenile development takes place. Populations are usually composed of
developing sub -adults of similar size which have migrated from an upstream
primary nursery area to the secondary nursery area located in the middle portion of
Dthe estuarine system.
There are no permanent or special secondary nursery areas in Swansboro's
jurisdiction.
0
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F��o
h
Map 9:
Primary Nursery Areas
THE PREPARATION OF THIS MAP WAS FINANCED
IN PART THROUGH A GRANT PROVIDED BY THE fl NORTH CAROLINA COASTAL MANAGEMENT PROGR
THROUGH FUNDS PROVIDED BY THE COASTAL t �N
MANAGEMENT ACT OF 1972. AS AMENDED
WHICH IS ADMINISTERED BY THE OFFICE
OF COASTAL RESOURCE MANAGEMENT
NATIONAL OCEANIC AND ATMOSPHERIC AOMINISTR � JO
a O
SWANSBORO
NORTH CAROLINA Q
U
32(.) U

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F. CONSTRAINTS: CAPACITY OF COMMUNITY FACILITIES
1. WATER SYSTEM
The Town of Swansboro purchases its water supply from Onslow County's central water
system, which in turn gets its water from deep wells which tap into the Black River Aquafier. The
County's maximum daily capacity is 6.4 million gallons and its peak load is 5.4 million gallons,
leaving a surplus of one million gallons. This usage represents 84.4 percent of capacity with a
surplus of 15.6 percent.
The Town's maximum daily capacity is 590,000 gallons per day based upon the carrying
capacity of the main water lines from the Onslow County system. The Town's peak load for water
usage is about 150,000 gallons per day and its average usage is 100,000 gallons per day. The
Town's peak load is only 25.4 percent of its possible capacity, while the Town's average usage is
16.9 percent of capacity. This leaves excess capacity of 74.6 percent during peak load conditions.
This excess capacity of 440,000 gallons per day (at current peak load) leaves a sizable water
supply that should be more than adequate to meet the needs of new development in Swansboro's
jurisdiction during the ten year planning period.
U Onslow County has 3.15 million gallons of storage capacity at various tanks throughout the
U County. The closest storage tank is a 500,000 gallon elevated tank near Hubert The Town's
storage capacity has declined from 350,000 gallons to only 100,000 gallons since the adoption of
O the 1986 Land Use Plan. This decline is due to the discontinued use of the Town's ground level
250,000 gallon storage tank. The 100,000 gallons mentioned above is the storage capacity of the
Town's elevated tank.
L
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The majority of the Town's water system is comprised of six inch water mains. The Town
has recently replaced leaking, two inch galvanized water lines at various locations throughout the
Town. In particular, approximately 1500 feet of six inch lines were installed on Broad Street and
Shore Drive. Another 1500 feet of six inch lines were installed on Pineland Drive. These
upgrading5 leave about only five percent of the Town's water lines with the faulty, two inch
galvanized Imes. The majority of this five percent is in the vicinity of Park Lane and Lisk Drive.
The Town replaced most of these faulty lines with the new six inch lines during the Summer of
1990.
The Town's existing water system should meet the needs of the Town through the ten year
planning period. However, the Town should consider reviving its 250,000 gallon ground level
storage tank, require new developments to donate their water lines to the Town, extension of water
lines on the south side of NC Highway 24 and possibly, the purchase of the existing water lines
from Onslow County.
2. SEWER SYSTEM
The Town of Swansboro's sewage treatment plant is an activated sludge and tentiary filter
system. The plant is highly efficient in its removal of impurities. The plant is located off of
Fosters Road near Fosters Creek in the Town's E U The plant has a operating permit capacity of
300,000 gallons per day, but an average daily usage of only 130,000 gallons (43.3 percent of
capacity), leaving a surplus of 170,000 gallons per day (56.7 percent of capacity).
33
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Even though the Town has separate storm sewer system, rain water occasionally forces the U
sewage treatment plant to exceed its permitted limit with peaks of about 400,000 gallons. The U
plants absolute capacity in severe weather is 600,000 gallons per day. This level of operation can
be substained for only a couple of hours. This problem is being resolved by the installation of a ('1
surge Lank at the plant. This tank, often called a flow equalizer, will regulate the flow into the plant U
and allow the plant to stay below its maximum permitted operating level.
The sewer system is comprised of thirteen lift stations located throughout the Town and the
Q
ETJ and of teracotta sewer lines. These lines are more than forty (40) years old and are susceptible
to frequent breaks and leaks. Several of the pump stations are being redesigned or are in need of
expansion so they can handle the growth that is occurring in Swansboro. In particular a new pump
(�
station will probably be needed to handle sewage from the development that is excepted off of
Hammocks Road. Another pump station may be needed east of NC Highway 24 on Swansboro
Loop Road.
�J
The Town may also experience future problems with the disposal of the plant's sludge.
Currently the Town's sludge is moved by truck to the County landfill. The State of North Carolina
no longer permits the disposal of sludge in landfill cells; sludge is now only permitted as a cover
on landfill cells. The State has recently become even more strict by requiring that only dry sludge
be spread over the cells, thus necessitating a means of drying the sludge at the sewage treatment
plant before removal to the landfill. Alternate means are being considered in order to properly
(�
dispose of the sludge. These alternate methods may result in a change in the plants classification.
U
This classification change may, in turn, result in additional budgetary constraints, as well as
additional state and federal requirements.
Q
The State's recent designation of Bogue's Sound as an Outstanding Resource Water
(ORW) means that the State ma not allow the Town to expand its sewage treatment plant. The
^
State inay wish to prevent this expansion in order to limit the affluent that is being pumped into
,Uf
Fosters Creek which indirectly filters into Bogue's Sound. This could possibly limit future
development to only four hundred or five hundred new dwelling units. The State has stated that it
would strongly encourage the Town to develop a land application system. For this reason the
Town may need to develop a land application plant. A proposed golf course/residential
development near Hammocks Beach Road may be the answer to the problem. The Town could
develop the land application system and spray the affluent onto the golf course.
3. SOLID WASTE
The Town of Swansboro has no municipal trash pick-up, instead these services are
provided by the Windfish Disposal Company. Windfish is a private waste removal service that 0
makes two collections of solid waste each week within the Town. Residents of the ETJ must
arrange for their own solid waste disposal. The Town's solid waste is transported by truck to the O
Onslow County landfill. Currently the landfill has an expected life of six more years. The Town
currently has no plans to take over these services.
4. SCHOOLS D
There are four schools located in the Swansboro area. These schools are currently (1990)
named Swansboro Primary School, Swansboro Elementary School, Swansboro Nfiddle School n
and Swansboro High School. These same schools were known as the elementary school, the U
middle school, the junior high school and the high school respectively in the 1986 Land Use Plan
Update. 0
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The name changes were made to reflect the changing school system structure adopted by
the Onslow County School Board. At the end of the 1988-89 school year, the County moved to a
middle school system and left the junior high school system. This change was made to allow for a
more gradual, smoother adaptation for the students.
Students at Swansboro Elementary School and the Swansboro Primary School switched
school sites at the end of the 19 88- 89 school year. This change was made due to overcrowding at
the primary school, excess capacity at the elementary school and in anticipation of the long range
plans by the Onslow County School Board. The results of all these changes is the local school
system outlined in Table 9.
In anticipation of the needs of the Swansboro school district, the Onslow County Board of
Education has purchased an eighty (80) acre tract of land across NC Highway 24 from the present
high school site (on Queens Creek Road) for the construction of a new high school. The second
phase of construction has yet to be funded by the County, therefore the school's completion date is
uncertain. School officials hoped that the new high school will be open for the start of the 1991-92
school year.
When the new high school opens, all of the other schools will relocate, except for the
primary school which will remain at its current location off Phillips Loop Road. The current
(1990) elementary school site near the intersection of NC 24 and Main Street will be closed. These
students will move to the current (1990) middle school site on Norris Road. The middle school
will relocate to the current (1990) high school location on NC 24. And as noted earlier, the high
school will relocate across the highway to the new location on Queens Creek Road. These changes
are outlined in Table 10.
O
TABLE 9:
NAME OF
O
SCHOOL
DSwansboro
Primary
I
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Swansboro Elementary
Swansboro Middle
Swansboro High
CURRENT SWANSBORO AREA SCHOOL SYSTEM
# OF DESIGN
LOCATION GRADES STUDENTS CAPACITY
Off Phillips Loop Rd.,
next to Hall's Branch K to 2 * 572 N/A
Near intersection of NC
24 and Main St. 3 to 5 476 500
Off NC 24, on
Norris Rd. 6 to 8 396 N/A
On NC 24, next to
Middle School 9 to 12 481 550
* Includes 10 classroom addition bunt in 1988.
N/A - Not Available
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TABLE 10:
FUTURE SWANSBORO AREA
SCHOOL SYSTEM
SCHOOL SITE
CURRENT SITE OF
*FUTURE SITE OF
Near intersection of NC 24
and Main St.
Swansboro Elementary
closed
a
Off Phillips Loop Rd.,
next to Hall's Branch
Swansboro Primary
Swansboro Primary
0
Off NC 24 on Norris Rd.
Swansboro Middle
Swansboro Elementary
On NC 24 next to
O
Middle School
Swansboro High
Swansboro Middle
Proposed, Queens
Creek Rd. and SR 1509
Vacant
Swansboro High
U
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* Depends upon timing of funding of Phase 2 of the New High School - possibly opened by 1991- ('j
92 school year. - U
Once these changes are complete the school system should meet the needs of the area through the
ten year planning period
5. TRANSPORTATION
The road system in the Town of Swansboro may be the weakest link in the community
facility network. This is not due to excess traffic volumes on area roads, but instead is due to
unpaved roads, poorly aligned roads, and roads more narrow than the ideal design cross -sections O
as recommended by the North Carolina Department of Transportation. The limited on -street and
off-street parking facilities, especially in the downtown area, is also a significant component of the
traffic problem.
Average 1989 annual daily traffic counts for the Town of Swansboro were all below design
capacity - except for NC 24 between Church Street and the White Oak River. This section of NC
24 had about 14, 800 vehicles daily traveling on it as it funnels down from five lanes uptown to O
only two lanes several blocks before the bridge across the White Oak River.
Other recorded daily traffic volumes included 12,300 vehicles on NC 24 above Church
Street and 15,600 on NC 24 above its intersection with secondary route (SR) 1512. Main Street
Extension (SR 1447), near its easternmost intersection with NC 24 carried about one hundred
(100) vehicles daily. Mount Pleasent Road (SR 1448 and Swansboro Loop Road (SR 1444)
carried eight hundred and fifty (850) and eight hundred (800) daily vehicles respectively. There
were 1800 vehicles per day using Old Hammock Road SR 1512. The final recorded traffic count
in Swansboro was for SR 1513 which carried about three hundred (300) vehicles daily.
The Thoroughfare Plan for the Town of Swansboro identified eleven proposed projects o
which should eliminate existing problems and allow for safe and efficient traffic flow within and
through the Town of Swansboro well beyond the ten year planning period. These projects include
the construction of two new routes and the widening of nine other roads.
The most expensive road project proposed for the Town of Swansboro area is the
construction of a four lane bypass for Highway 24. Without this bypass, NC 24 will exceed its (�
36 0

O capacity in the not so distant future. It is estimated that sixty (60) percent of NC Highway 24's
traffic will use the bypass route.
The other proposed, new route is the Deer Island Crosstown Connector which will connect
existing roads with new roads to move traffic from the intersection of secondary road 1509 and
NC 24 (near the site of the proposed high school) to the intersection of Main Street and NC 24.
OThis road will serve the four schools, residential areas and downtown.
One of the nine proposed road widenings is to expand NC Highway 24 to five lanes from
Church Street to the White Oak Rover Bridge. This is the only road section in Swansboro that is
O over its designed capacity. This projection is currently scheduled for widening to four lanes
(including the bridge) in the 1990-1996 Transportation Improvement Program.
O Vivo of the proposed road widenings are to four lane secondary roads 1509 and 1511 from
their current two lanes. Secondary road 1512 between secondary road 1511 and NC Hibghway 24
is to be widened to three lanes from the existing two lanes, part of which is presently unpaved.
0 The five remaining road projects in Swansboro throughfare Plan call for expanding
secondary roads 1448, 1447, 1445, 1444 and 1512 (from NC to 1447) to two twelve foot wide
lanes.
OThese eleven projects are evaluated for economical and environmental impacts in Appendix
II of this report,
Q6. RESCUE SQUAD
The Town of Swansboro has an Onslow County funded rescue squad located on NC
O Highway 24 at Wise's Branch. The department is comprised of fifteen (15) active members and
over forty (40) honorary and associate members. The fifteen (15) active members have various
levels of training and certifications such as paramedics, emergency medical technicians, IV
f technicians and ambulance attendants. All members are volunteers, however, Onslow County
Emergency Services may add two paid paramedics to the staff in the near future. There are
currently two (2) registered nurses and one licensed practical nurse on the active member staff.
U Like the Town's fire department, the rescue squad is dispatched by the Onslow County
Sheriffs Department's 911 emergency service. The rescue squad serves an area within about a
forty (40) mile range, and has a mutual aid agreement with the neighoring rescue squad units. The
0 squad is currently second in calls answered in Onslow County.
The rescue squad is located in the 6,400 square foot Frank P. Stivers building which was
built in 1961 and had an addition in 1987. The squad's equipment includes three ambulances, one
O crash truck, one mass casuality truck, one truck to pull boats, two boat trailers, one nineteen (19)
foot rescue boat wtih an eighty-five (85) horsepower motor, one fourteen (14) foot rescue boat
O with a forty (40) horsepower motor, a XP-1 saw, a Kinman tool (similar to Jaws of Life), a power
winch, base station, several electrical generators, search lights and various other equipment for
rescue operations. This equipment should meet the area's needs through the ten year plarming
n period.
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7. FIRE PROTECTION
The Town of Swansboro has an all -volunteer fire department comprised of thirty-eight (38)
men and women. The Town's fire department has two 750 gallons per minute pumper trucks and
one 500 gallons per minute pumper truck. These trucks, along with the remainder of the Town's
fine fighting equipment is currently located in its new facility on Highway 24. All of these vehicles
are in working order despite their age (one is a 1966 model, one is a 1973 model and the last is a
1975 model) but may need to be replaced during the ten year planning period.
The Town's fire department is jointly funded by the Town and Onslow County. As such,
the Town has a mutual aid agreement with Onslow County. Jointly, they operate a hazardous
materials unit which responds to spills of hazardous materials in the area. The fire department's
acutal fire district is roughly defined to be within the area extending three miles from the Town's
corporate limits, however, the department will respond to any location that requests its assistance.
To aid the firemen in fire protection there are approximately ninety (90) fire hydrants located within
the Town and its ETJ and approximately one hundred and twenty (120) hydrants in the fire district.
The Town's fun insurance rating has improved since the adoption of the 1986 Land Use
Plan Update. In 1986, the Town's rating was an eight on the scale of one to ten, with one being
the safest possible rating. The Town's rating has been upgraded to a six for all areas inside the
Town limits and for an area extending 1500 feet from the Town's limits. Areas beyond this 1500
feet limit is rated 9A. The department is dispatched through Onslow County's 911 Emergency
system.
Partially responsible for the improvement in the fire insurance rating is the training level of
the personel of the Town. Most of the Town's fire fighting personnel have more than the required
thirty-six (36) hours of annual training. There are three or four certified instructors in the fire
dpeartment and eight level -three firemen.
8. POLICE DEPARTMENT
The Town of Swansboro has a Town funded police department comprised of four full time
officers, three volunteer reserve officers (minimum sixteen hours of service per month) and three
1989 patrol cars. The department makes regular patrols of the Town and provides backup
assistance to the Onslow County Sheriffs department in the Town's ETJ.
The department is currently located in the Town Hall at 502 Church StreeL The police
department uses approximately 400 square feet at this location. The new patorl cans and weapons
recently acquired by the department should be adequate for the Town's short term needs
(approximately five years), before they will need to be replaced.
The Swansboro police department is generally dispatched by the City of Jacksonville Police
Department's 911 Emergency service. The Swansboro police department has a mutual aid
agreement with the Jacksonville police, Onslow County and Carteret County Sheriffs
Departments, and with the Cape Carteret and Emerald Isle police departments.
0309ic);7j3'�
The Town of Swansboro's library is funded by Onslow County and is located in Town
Hall at 502 Church Street The library occupies four small rooms in that building for a total of
1,316 square feet The library contains 11,738 volumes, a record polayer, a tape recorder and a
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0 copy machine - all are available for use by residents of the Town.
The library has three part time employees and one full time employee. In addition to these
staff members, several volunteers help out when needed. Onslow County has a 280 square foot
bookmobile which serves the Swansboro area. The bookmobile has an additioal 3,100 books and
visits the Town of Swansboro once every two weeks.
DThe library is in need of renovation and expansion, but there are no fum plans at the time
of this writing (1990).
0 10. RECREATIONAL FACILITIES
The Town of Swansboro has four park areas within the Town limits. The largest of these
O is the 17.49 acre Swansboro Town Park located off of secondary road 1447 (Main Street
Extension). This facility has two tennis courts, a basketball court, a volleyball court and a soccer
field. Public rest rooms and a concessions stand have recently been constructed on this site.
OThere is a small park area, Ward's Shore Recreational Area, located on the White Oak
River, at the end of Spring and Water Streets. Swansboro Rotary Tots Park is a small municipal
park with playground equipment and is located at the divergence of Broad Street and Shore Drive.
O The final park inside the Town limits is Bicentennial Park, which is actually two lots - one on
either side of N.C. Highway 24 adjacent to the White Oak River. These lots are joined together by
a pedestrian walkway that passes under the N.C. 24 bridge.
Other recreational areas are accessible to Swansboro residents outside of the Town limits.
These include Sander's Little League Field in the Town's northern most ETJ on secondary road
O 1444 (Swansboro Loop Road). Hammocks Beach State Park is located only a few miles from the
Town and offers nature trails, swimming, fishing, picnic areas, camping and 892 acres for
enjoying the scenery and beaches. Bear Island is accessible by a thirty-six (36) passenger ferry
(which leaves from the Hammocks Beach State Park) or private boat. The park has public
Orestrooms, a bathhouse, and a concession stand.
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At least one development, Seashore Estates Mobile Home Subdivision on Hammocks
Road, west of Town, has a homeowner's association recreation area. Their facility is
approximately two (2) acres and includes a shelter.
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G. POPULATION GROWTH AND IMPACTS ON COMMUNITY FACILITIES
a. General
As discussed in the section entitled "Present Conditions - Population" (see page 3) the
population of the Town of Swansboro is expected to have increased from 976 in 1980 to 1,353 in
1998. The Town's population is projected to reach 1, 447 in 1990, 1,683 in 1995 and 1,919 in
2000. The geometric method of population projection is used in this report to predict future
population of the Town of Swansboro (see page 5). This is viewed as the most reliable of the two
population projection methodologies - and also results in the larger projections.
It should be noted that these projections are based upon existing past trends. Any
unexpected changes such as large annexations, or major developments (residential, commercial or
industrial) could invalidate these projections. Each of the community facilities and services are
examined below for their current (1990) capacities, usage rates and for the impact that population
growth may have on them. More details on each community facility or service are available in
Section I's Constraints: Capacity of Community Facilities.
b. Water System
The Town's water system should be more than adequate to meet the future development
needs of the Town through the ten year planning period as based upon its 1990 excess capacity of
74.6 percent (440,000 gallons per day). The Town may need to reactivate the usage of its 250,000
gallon ground level storage tank in order to ensure an adequate emergency supply of water.
c. Sewer System
The Town's sewage treatment plant has an operating permit capacity of 300,000 gallons
per day and an average daily usage of only 130,000 gallons per day (43.3 percent of capacity) with
an excess capacity of 170,000 gallons (56.7 percent of capacity). This would limit future
development to only four hundred (400) to five hundred (500) new dwelling units. These figures
are based upon current sewage treatment usage rates and an average of 2.6 persons per dwelling
unit. Therefore it may become necessary to expand the existing sewage treatment plant (see
Section I, page 31). As discussed earlier it nay be necessary for the Town to develop a land
application system or some other alternative system to properly handle the affluent.
d. Solid Waste
The Town's current solid waste disposal system involves contracting out these services.
The contract may be adjusted to meet the needs of the Town's growing population. There are
currently (1990) no plans for the Town to take over these services.
e. Schools
The school system in the Swansboro area is under Onslow County's jurisdiction. The
school system should be adequate to meet the future needs of the greater Swansboro area after the
proposed improvements to the existing (1990) school system are completed. The tentative
completion date of these projects is 1992, but depends upon the tuning of project funds
availability.
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Qf . Transportation
The Town has only one road section - NC 24 between Church Street and the White Oak
River - which is operating above its design capacity. This road section is currently scheduled for
widening in the State's 1990-1996 Transporation Improvement Program. The State Department of
Transportation has also identified eleven projects to better serve the Swansboro area (see Section I,
page 33 and Appendix 11 for discussion of these projects). These projects, if realized should be
more than adequate to efficiently move traffic in and around the Town of Swansboro throughout
the ten year planning period
(� g. Rescue Squad
(,J Swansboro is served by a volunteer rescue squad from Onslow County. This squad
a answers calls for an area that extends well beyond the Town's jurisdiction. As with any rescue
squad there is always a need to update equipment and personnel to reflect changing technology and
methods. The squad's existing equipment, however, should be adequate to meet the area's needs
through the ten planning period.
h. Fire Protection
Q Swansboro is served by a volunteer fire department from Onslow County. This
department answers calls for an area that extends well beyond the Town's jurisdiction. As with
any fire department there is always a need to update equipment and personnel, to reflect changing
Q technology and methods. The department's existing equipment includes three rather aged pumper
t (19666,d. , 1973 and 1975 models). These vehicles may need to be replaced during the ten year
planning p
aL Police Department
The Town of Swansboro's police department consist of four full time officers, three
O volunteer reserve officer and three 1989 patrol cars. These vehicles should be adequate to meet the
Town's short term needs (approximately five years) before they will need to be replaced. As with
any police department there is always a need to update equipment and personnel to reflect changing
atechnology and methods.
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(� The Town's library is a branch of the Onslow County system. It occupies 1,316 square
U feet of Town Hall and contains almost twelve thousand (12,000) volumes. The library employs
one full time librarian and three part time clerks. The library is also served by the Onslow County
{� bookmobile. The library is in need of renovation and expansion, but there are no current (1990)
U plans.
k. Recreational Facilities
The Town has four park areas including a 17.49 acre improved park which contains tennis,
basketball and volleyball courts, a soccer field, public restrooms and a concessions stand. There
are several more recreational areas - both improved and unimproved - in the Town's extraterritorial
jurisdiction and in the general area beyond the Town's jurisdiction. These areas should be
adequate to meet the Town's needs through the ten year planning period.
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(� A. GENERAL INFORMATION
The formulation of specific policies regarding growth and management objectives is perhaps the
most important part of this updated Land Use Plan. Those policies must, in some cases, strike a
delicate balance between objectives of the Coastal Resources Commission and the desires and
objectives of the citizens of the Town of Swansboro. Most of the trends identified in the 1986
Q Plan are still continuing, so in many instances, policies set forth in the 1986 Plan will not require
modification. As the analysis of existing conditions showed, these ongoing trends include: a
moderately growing population and increased waterfront and highway commercial development.
a The Coastal Resources Commission, recognizing the diversities which exist among the Coastal
counties and communities, requires the Town to specify particular development policies under five
rather broad topics. In most cases, policies developed under these topics will cover most of the
local development issues, but in some cases, they do not. In the latter case, the locality has the
flexibility to address its own locally defined issues. The five required broad topics are:
O - Resource Protection
- Resource Production and Management
- Continued Citizen Participation
Economic and Community Development
O- Storm Hazard Mitigation
Following an analysis of the existing conditions and trends, input from the Town's citizens, and a
0 review of the effectiveness of previous policy statements, the foregoing policies were developed to
provide an overall framework for guiding growth and development in Swansboro throughout the
10-year planning period (1990-2000). (See Appendix I for an analysis of the 1986 Land Use Plan
Policies.)
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B. RESOURCE PROTECTION
1. AREAS OF ENVIRONMENTAL CONCERN: DEVELOPMENT POLICIES
The Town of Swansboro recognizes the primary concern of the Coastal Resources
Commission, in terms of protecting resources, as managing areas of environmental concern
(AEC's). The Town also shares this concern for the protection and sound management of these
environmentally sensitive lands and waters. The AECs which occur in Swansboro's jurisdiction
were identified in Section I of this Plan on pages 12 through 16.
Most of these areas are within the estuarine system. In terms of developing policies, the
estuarine system AECs, which include coastal wetlands, estuarine waters, estuarine shorelines,
public trust areas and outstanding resource waters (ORWs), will be treated as one uniform group
since they are so closely interrelated. Another reason for grouping these AECs together is the fact
that the use of maps to detail exact on -ground location of a particular area pose serious limitations.
Swansboro's overall policy and management objective for the estuarine system is "to give
the highest priority to the protection and coordinated management of these areas, so as to safeguard
and perpetuate their biological, social, economic, and aesthetic values and to ensure that
development occurring within these AECs is compatible with natural characteristics so as to
minimize the likelihood of significant loss of private property and public resources." (15 NCAC
7H. 0203)
In accordance with this overall objective, Swansboro will permit those land uses which
conform to the general use standards of the North Carolina Administrative Code (15 NCAC 7H)
for development within the estuarine system. Generally, only those uses which are water
dependent will be permitted. Examples of such uses may include: utility easements, docks, boat
ramps, dredging, bridges and bridge approaches, revetments, bulkheads, culverts, groins,
navigational aids, mooring pilings, navigational channels, simple access channels, and drainage
ditches. Specifically, each of the AECs within the Estuarine System is discussed below.
a. Coastal Wetlands
Coastal wetlands or marshlands are defined as any salt marsh subject to regular or
occasional flooding by tides, including wind tides (whether or not the tide water reach the
marshland areas through natural or artificial watercourses). This does not include hurricane
or tropical storm tides.
Coastal marshlands also contain some, but not necessarily all, of specific marsh plant
species. A 1989 report entitled "Swansboro, North Carolina Environmental Constraints
Analysis" indicates that coastal wetlands exist mainly in the southern portion of
Swansboro's jurisdiction along the White Oak River and Queens Creek's inlet to Hall's
Branch. There are also fringe borders of salt marsh cordgrass along Hawkins, Dennis, and
Foster Creeks. 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, floating homes, parking lots, private
roads, and highways.

Ob. Estuarine Waters and Estuarine Shorelines
The importance of the estuarine waters and adjacent estuarine shorelines in Swansboro's
(� jurisdiction was discussed in Section I of this document oil pages iy - 2.v. SWatisDUTU 1S
�J very much aware that protection of the estuarine waters and adjacent estuarine shorelines --
both vital components of the estuarine system -- is of paramount importance to both
o commercial and recreational fishing and to the continued attractiveness of the area to tourist
and residents alike.
Swansboro recognizes that actions within the estuarine shoreline, which is defined as the
area extending seventy-five (75) feet landward of the mean high water line of the estuarine
waters, could have a substantial effect upon the quality of these waters. This area may be
subject to erosion and occasional flooding, which could affect the quality of the adjacent
estuarine life, and threaten the security of personal property.
In order to promote the quality of the estuarine waters as well as minimize the likelihood of
significant property loss due to erosion or flooding, Swansboro will permit only those uses
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which are compatible with both the dynamic nature of the estuarine shorelines and the
values of the estuarine system. Residential, recreational, and commercial uses may be
permitted within the estuarine shoreline, provided that all standards of NCAC 15
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Subchapter 7H relevant to estuarine shoreline AECs are met, that development complies
with existing zoning and:
O1.
A substantial chance of pollution occurring from the development does not exist;
2. Natural barriers to erosion are preserved and not substantially weakened or eliminated;
3. The construction of impervious surfaces and areas not allowing natural drainage is
limited only to that necessary for development;
O4.
Standards of the North Carolina Sedimentation Pollution Control Act 1973 are met:
5. Development does not have a significant adverse impact on estuarine resources;
6. Development does not significantly interfere with existing public rights or access to, or
use of, navigable waters or public resources:
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7. Appropriate uses within estuarine waters may include simple access channels,
structures which prevent erosion, navigational channels, boat docks, marinas, piers,
and mooring pilings.
Oc.
Public Trust Areas
Swansboro recognizes that the public has certain established rights to certain land and water
a
areas. (For definitions and geographic locations of public trust areas, see page 20 in
Section I). These public areas also support valuable commercial and recreational fisheries
and contain significant aesthetic value.
Swansboro will promote the conservation and management of public trust areas.
Appropriate uses include those which protect public rights for navigation and recreation.
oProjects
which would directly or indirectly block or impair existing navigation channels,
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increase shoreline erosion, deposit spoils below mean high tide, cause adverse water
circulation patterns, violate water quality standards, or cause degration of shellfish waters,
shall generally not be allowed. Exceptions may be made in the presence of significant
public benefit.
Allowable uses shall be those which do not cause detriment to the physical or biological
functions of public trust areas. Such uses as navigational channels, drainage ditches,
bulkheads to prevent erosion, piers, docks or marinas, may be permitted.
d. Outstanding Resource Waters (ORWs)
Outstanding Resource Waters (ORWs) are defined as being a unique and special surface
water that is of exceptional state or national recreational or ecological significance with
exceptional water quality. ORWs should also meet the following conditions as set forth by
the Environmental Management Commission (EMC):
1. There are no significant impacts from pollution with water quality rated as excellent
based on physical, chemical and/or biological information;
2. There is an unusually high level of wager -based recreation or the potential for such
recreation;
3. The waters have already received some special designation such as a North Carolina or
National Wild and Scenic River, Native or Special Native Trout Waters, National
Wildlife Refuge, etc., which do not provide any water quality protection;
4. The waters represent an important component of a state or national park or forest; or
5. The waters are of special ecological or scientific significance such as habitats for rare or
endangered species or as areas for research and education.
There are no ORWs in Swansboro's jurisdiction, however the nearby Western Bogue
Sound, is an ORW.
e. Policy Alternatives: Development in AECs
Sections a, b, c and d of this part have presented details of Swansboro's position on land
uses in the statutorily defined Areas of Environmental Concern (AEC's). Policy
alternatives include:
1. Revising and strengthening the existing subdivision and zoning ordinances to impose
stricter design standards, particularly in waterfront areas, or areas with water
accessibility.
2. Continue to utilize the current system of the existing subdivision and zoning ordinances
along with federal and state permit review processes - that is 404 and CAMA.

af. Policy Choices
Swansboro will continue to utilize the current system of the existing subdivision and
zoning ordinances (with no modifications) along with federal and state permit and review
O processes - that is 404 and CAMA.
2. DEVELOPMENT IN AREAS WITH CONSTRAINTS
The constraints to development in Swansboro were discussed in Section I (pages 15 - 16)
and relate to both physical constraints and limitations of community facilities. The physical
constraints include man-made hazards, high hazard flood areas, estuarine erosion areas, sons with
limitations for development, and natural and cultural resource fragile areas (including the historic
adistrict and other architectural and archaeological sites in the Town).
Portions of the Town of Swansboro and its ETJ contain areas threatened by periodic
flooding. Some of the areas along the shore of the White Oak River is subject to the one hundred
(100) year coastal flood with velocity (Zone V on map 4). Other areas are subject to a one hundred
(100) year flood without wave velocity (Zone A on map 4), and to a five hundred (500) year flood
(Zone B on map 4). Development in these areas are subject to damage or destruction, and as such,
j� require stricter guidelines or maybe even prohibition.
U All new development must conform with the provisions of the North Carolina Building
D Code.
The Town's flood plain development policies conform with all Federal and State
requirements.
Lands in FEMA A -zones are subject to elevation standards and insurance requirements
which help ensure that damage to any new development which occurs will be minimized in the
O event of a severe tropical storm. There are no estuarine erosion areas in the jurisdiction of the
Town of Swansboro.
Most of the soils in Swansboro's jurisdiction have moderate or severe limitations for
development Swansboro will encourage growth in areas already served by the Town's sewer
system and will discourage growth in areas where soils are not suitable for septic tanks and where
sewer lines are not available or not feasible.
The natural resource fragile areas are closely linked with the previously identified AECs.
Most of the wetlands in the Town consist of freshwater marshes such as the 404 wetlands as
n designated by the U.S. Army Corps of Engineers. Other natural and cultural resources include
u complex natural areas, areas that sustain remnant species, unique geologic formations, and
significant architectural and archaeological sites.
a The Town does not believe that all land uses in these areas should be prohibited. The first
priority of uses of land in these areas should be the allowance of uses which promote conservation
of the sensitive areas, with conservation meaning the lack of imposition of irreversible damage to
the wetlands. Generally, uses which require water access and uses such as utility easements,
fishing piers and docks will be allowed, but must adhere to use standards of the Coastal Area
Management Act (CAMA: 15 NCAC 7H).
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Existing community facilities such as the water and sewer systems, solid waste collection,
etc., do not pose serious constraints to development.
a. Po :gy Alternatives
Possible policy alternatives regarding the management of growth and development m areas
with identified constraints include:
1. Amend subdivision regulations to include stricter design standards.
2. Continue to enforce regulations such as the zoning ordinance or Flood Insurance
Program guidelines to regulate or prohibit all development in areas with identified
physical constraints.
3. Permit development in those areas, utilizing current state, federal and local regulatory
processes such as CAMA, the flood insurance program, current subdivision
regulations, and Corps of Engineers' 404 permits, and where adequate protective
measures have been taken.
4. To preserve and protect the historic district and other areas of architectural or
archaeological value.
b. Policy Choices
Swansboro adopts the following policies regarding development in areas with constraints.
1. Development will be permitted in some areas subject to erosion, provided proposals
comply with provisions outlined for development within estuarine shorelines (see page
41).
2. Swansboro will continue to participate in the National Flood Insurance Program and
promote enforcement through the Town Building Inspection Program. Proposed
developments which are not otherwise damaging to AECs may be permitted, provided
protective measures which comply with flood insurance requirements are imposed.
3. Development in areas where soil types have limited bearing capacity will not be
encouraged
4. In areas with possible septic tank limitations, Swansboro will remain committed to
decisions rendered by the Health Department's Sanitarian.
5. Swansbom will seek to protect these areas, partially through enforcing the policies and
guidelines stated in Subchapter 7H of NCAC 15 relevant to these resources.
6. To preserve and protect the historic district and other areas of architectural or
archaeological value.
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3. HURRICANE AND FLOOD EVACUATION NEEDS AND PLANS
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An entire section within the Policy Statement discussions is included separately for
hurricane and flood evacuation, as well as storm mitigation and post storm redevelopment policies,
beginning on page 52.
4. OTHER RESOURCE PROTECTION POLICY AREAS
There are some additional resource protection issues which are required to be addressed by
the CAMA planning guidelines and which have lesser definition in Swansboro's jurisdiction than
in some other coastal areas. These areas, along with relevant policy discussion and statements are
included below.
As discussed in Section I, pages 30 - 31, Swansboro's water distribution system is based
on Onslow County's water system. Groundwater drawn through deep wells, is the source
of the system. Land uses near groundwater sources are regulated by the North Carolina
Division of Environmental Management through NCAC Subchapter 21, and Subchapter
2C. Swansboro recognizes the importance of protecting potable water supplies and
therefore supports the enforcement of these regulations.
b. Use of Package Treatment Plants
a The Town of Swansboro shall continue to encourage all new development to use the
Town central sewage treatment plant, as is presently required by Town ordinance for
those developments within the Town limits. However, for developments within the ETJ
a which Cannot tap onto the Town's sewer system and be annexed, then Package Treatment
plants may be permitted.
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Development can result in an increase in the discharge of pollutants and soil washed off
impervious surfaces such as streets, roofs and parking lots. These pollutants can result in a
decline in the quality of local waters and a related decline in the health and productivity of
the estuarine system.
Swansboro currently tries to minimize this runoff by requiring new developments to
include an adequate storm drainage system. This is encouraged through the Town's
subdivision regulations which encourages developments to tie into the existing storm water
system. Planned unit developments are required to designate at least twenty percent of the
project's gross land area as open space.
The Town of Swansboro is the site of a marina and several docking facilities. These are
regulated by the Town's zoning ordinance and by state and federal permitting systems such
as CAMA. The Town of Swansboro allows for the expansion of existing marinas and
construction of new marinas, consistent with policies stated elsewhere in this plan.
However, the Town would not encourage the construction an excessive number of marinas
within its jurisdiction. The Town will continue to discourage permanently occupied
floating homes in its jurisdiction.

e. Development of Sound and Estuarine Islands
There is only one estuarine island located within the Town's jurisdiction, i.e. Deer Island.
This island has been developed for a long time and has historically been utilized for a
variety of purposes. Currently, the island is zoned R-8, which allows single-family
dwellings with an 8,000 square -foot minimal lot size. Lot density residential use is viewed
as an acceptable use for this island.
f. ! rUstack Storage Facilities
The Town of Swansboro views drystack storage facilities as being inconsistent with the
character and aesthetics of the Town. Such facilities are not considered to be desireable
uses.
g. Industrial Impacts Upon Fragile Areas
The Town of Swansboro is very much aware of the unique value of its special natural and
cultural resources provided by the lands, waters, and history of its jurisdiction. Therefore,
the Town does not wish to host any industrial use which would adversely impact these
special resources.
h. Upland Excavation For Marina Basins
Upland excavation, which could possibly involve cutting through existing marshlands, is
viewed as an undesireable activity by the Town of Swansboro.
i. Damage to Existing Marshes by Bulkhead Construction
Similar to item h, above, Swansboro will permit those construction activities which result
in a minimal amount of damage to the existing sensitive marshes. Bulk heads, which are
water -dependent uses generally allowed under the Town's overall development policies for
the Estuarine System, will only be permitted under State and/or federal regulations and
where minimal damage to the marshes result.
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Q Tl lL7/�T TT/17T TT/1TT T/ Vt+T/�li • 1TT1 M A 1T A / %1MIL S 7\TT T/�T TeNTnn
C. KEJVUKCE YRODYLA 1 LO AND MtiiVAl7EMEP11 rULLLAEJ
a Appropriate management of productive resources is very important to any locality. In Swansboro
the productive resources are intricately tied to the predominant economic sectors of the Town
which makes the necessity of balanced management policies of paramount importance. The major
D productive resources to be considered relate to agriculture, commercial fisheries, and recreational
uses (including tourism).
1. PRODUCTIVE AGRICULTURAL AND FORESTLANDS
OMuch of land in the ETJ is used for agricultural purposes while portions remain forested
(non-commercial). The Town of Swansboro will encourage these lands to remain in their current
('l use. All development, except for low density residential uses, will be encouraged to locate in
U other, less productive areas. Other uses will be permitted in these areas, but only if no other
suitable site is available. The Town's zoning ordinance shall continue to be used to discourage
development in these productive resource areas.
L2. COMMERCIAL FORESTRY
There are no major commercial forestry activities within Swansboro's jurisdiction and as
Qsuch this policy area is irrelevant to the area.
3. MINING RESOURCE AREAS
OThere are no minable resources in Swansboro's jurisdiction and as such this policy area is
irrelevant to the area.
O4. COMMERCIAL AND RECREATIONAL FISHERIES
The Town of Swansboro has a heavy reliance upon the water bodies that surround it,
(� especially the White Oak River. These water bodies are used for recreational and commercial
fishing, tourism and for recreational purposes such as boating and skiing. Therefore protection of
the water quality of these areas is very important to the Town.
DIn recent years, concern has been raised by commercial fisherman along North Carolina's
coast and the State Division of Marine Fisheries, that freshwater run-off has been detrimental to
estuarine waters by altering the salinity content. Concern also has been raised because of incidence
(� of fecal coliform, coming from septic tank seepage. Fecal coliform has been detected in primary
U shellfishing waters and has forced the closing of such waters. Swansboro would like to see water
quality in all of the productive water bodies maintained. For this reason there are several areas in
(� Swansboro's jurisdiction that are closed to shellfishing. These closed waters include Foster
U Dennis, Hawkins and Stevens Creeks, Picket Bay and the portion of the White Oak River south of
NC 24.
The Town will discourage any development which have significant adverse impacts upon
the estuarine system. For any allowed development, developers must make efforts to mitigate
negative effects on water quality and fish habitat both during construction and operational
Oactivities.
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The Town of Swansboro will support public and private projects such as channel and inlet �1
dredging and stabilization projects. The Town will not support such projects if they do not attempt �J
to minimize their effects on fish habitat. The Town will support these projects if they improve boat
access, water quality or water circulation through fish habitats. Q
5. OFF -ROAD VEHICLES
There are no real recreational beaches in Swansboro's jurisdiction. Therefore the O
conventional threat of off -road vehicles is not relevant to Swansboro.
6. RESIDENTIAL AND COMMERCIAL LAND DEVELOPMENT Q
Besides the limitations presented in other policy discussions in this report (particularly
those relating to protection of sensitive natural and cultural resources), Swansboro views itself as
being in a position to accommodate growth and development Additional development particularly
commercial and industrial development is regarded as desirable because of the important local
revenue and employment generating impacts. The Town is very concerned with development
outside of its jurisdiction. Development in these areas may heavily impact the Town and the
community facilities, but the Town has no means of controlling or guiding the growth in these
areas. The other policy statements regarding resource protection arequately voice the Townes
concerns regarding these resources. Land development, whether for residential, commercial or (j
industrial uses and is conformance with existing regulatory controls will be encouraged in ( j
Swansboro.
A more detailed discussion of the specific types of development along with relevant policy
statements are included in the following section, "Economic and Community Development
Policies".
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D. Continuing Public Participation Plans
From the beginning of the 1990 Land Use Plan Update process, the Town of Swansboro
gave full recognition to the requirements contained in the guidelines that the planning
process be conducted in the 'Public Arena." A formal Public Participation Plan was
developed. The plan, along with other supporting elements, are contained in Appendix
II of this Land Use Update. Some of the major elements in the Public Participation Plan
included:
1. The designation of the Swansboro Planning Board, as the primary citizen
liaison group for the Town of Swansboro, and proposed to conduct a
town -wide citizen's survey questionnaire. The Planning Board met with
the Planning Consultant throughout the planning process.
2. A monthly meeting schedule was established in the beginning, which
included several advertised public information meetings, the first being
held January 23, 1990. The second one being held July 24, 1990, and
thirdly, August 28,1990. Prior to the meetings, notices were published in
either the Tideland News and/or the Jacksonville Daily News.
The Town of Swansboro took extraordinary steps to help inform, and educate its citizens
that the CAMA plan was indeed being developed. At the beginning of the process, a
news release was developed and submitted to the two newspapers cited above. The
release resulted in news stories in both publications.
Meetings with the Planning Board were held on the following dates in 1989 and in 1990:
November 28,1989; January 23,1990; February 27; March 27; April 24; May 22; June
26; July 24; and August 28. Meetings in 1991 were held March 26 and April 30; with the
public hearing being held on July 16,1991.
The most significant citizen participation effort, however, was the Citizen Survey
Questionnaire. The Planning Board, determined to make every household in town
aware of the CAMA Planning Process, hand -delivered 800 survey forms to every home.
Although citizens were informed of the process, only 98 completed forms were returned,
for a response rate of 12.25%. Nevertheless, the input was useful in developing final
policy statements. The survey instrument is shown on pp. 54-55, while other details are
provided in Appendix II, p. 90.
1. POLICY STATEMENT
It shall be the policy of the Town of Swansboro to continue to use the local news
media and public posted notices to inform the citizens of the various opportunities for
input into land use planning and related policy matters.
53

SWANSBORO CITIZEN SURVEY: 1990 LAND USE PLAN
The Town of Swansboro is in the process of updating its Land Use Plan and wishes to
involve residents of Swansboro and its extraterritorial area in the planning process. If you are a
resident of Swansboro or live within its one mile planning jurisdiction, we encourage you to fill
out this questionnaire and RETURN IT TO THE SWANSBORO TOWN HALL by February 28,
1990. All answers will be kept confidential.
04
3.
4.
5.
6.
7.
Where do you live in the Swansbom area ?
Within city limits
Outside city limits
What do you feel is the most critical traffic hazard on N.C. 24 ?
a.
b.
Do you feel multi -family or condominium development is appropriate or desirable for our
Town?
Yes No
If these developments are appropriate or desirable, where should they be allowed? (e.g.,
inside town limits, only in ETJ; adjacent to commercial areas, etc.).
Should the current height limitation of 35 feet be changed to allow for high rise
construction ?
Yes No
Do you think that Swansboro should actively recruit industrial development ?
Yes No
Are you generally satisfied with the level and delivery of services offered by our Town?
Yes No
What facilities or services need change or improvement, or what additional services would
you Bice to see?
a.
b.
M

Swansboro Citizen Survey
Page Two
8. Do you feel our Town should annex those areas currently receiving town sewer services ?
Yes No
9. Should Swansboro promote or work to attract additional tourism?
Yes No
If yes, suggest some means our Town should use.
a.
b.
C.
10. Do you believe our Town should take steps to exercise more control over development ?
Yes No
11. In your opinion, what will be the most critical problems facing Swansboro over the next 10
years?
a.
b.
C.
Thank you for taking the time to answer this questionnaire. Please feel free to submit any
additional comments you may have.
The results of this survey will be presented and discussed in a Public Meeting.
55

E. ECONOMIC AND COMMUNITY DEVELOPMENT POLICIES
1. GENERAL STATEMENT TOWARD GROWTH
Generally speaking the residents and officials of Swansboro are in favor of growth in the
form of environmentally responsible economic and community development which keep with the
character of the Town. The attitude of the Town's citizens towards growth and development is
apparent from the citizen survey which was conducted as part of this 1994 plan. While many
citizens were in favor of growth, most wanted better planning and control over it (see Appendix
Ii). There are several factors which drive the residents and the elected and appointed officials of
Swansboro to favor growth. Chief among these factors are:
The Town has few job opportunities for its citizens;
The Town has a heavy reliance upon tourism and the associated retail business;
Tourism is considered an unstable industry and is subject to wide fluctuations as a
result of economic conditions.
2. A'iI MJDE TOWARD VARIOUS TYPES OF DEVELOPMENT
Swansboro favors all types of development as long as it does not adversely affect the
environment, especially designated critical areas. These critical areas include AEC's (areas of
environmental concern) and hazardous or fragile areas. Therefore, development is desired if it can
occur in an orderly, environmentally safe manner and in areas that are suitable for development.
Here suitable includes consideration of physical constraints and limitations of community facilities
and services.
The Town of Swansboro adopts the following policies for residential, commercial and
industrial development
a. Residential development should be compatible with the scale and density of existing
residential areas without adversely affecting them.
b. Continued revitalization and new investment in compatible, small scale commercial
uses in the waterfront area will be encouraged including innovative methods of providing
parking by businesses.
C. Commercial development along NC 24 will be encouraged.
d. Industrial development should also keep with the existing scale and character of the
Town and should be limited to only small or medium scale, clean industries.
e. Swansboro would like to see industry developed which could take advantage of
existing natural resources and fit the scale and character of the Town.
Implementation:
a. Residential, commercial and industrial development will be controlled through the
Town's zoning ordinance and other regulations.
56

Q b. Apply for 75 percent funding through the Division of Coastal Management's Beach
and Shoreline Access Program to enhance the waterfront area's attractiveness to residents
and visitors. (It should be noted that Swansboro did receive an estuarine access grant to
help refurbish the Town pier. This was in connection with the Town's designation as a
Coastal Initiatives Community)
0 3. LOCAL COMMITMENT TO SERVICE PROVISION
a. Public Water Sunnly
The Town of Swansboro will continue to cooperate with Onslow County in the provision
of water services to newly developing areas.
b. Sewage Treatment Service
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The Town of Swansboro will continue to provide sewage treatment services to areas inside
the Town limits. The Town will also provide these services to areas in the ET J if capacity
permits, if the cost of extending service is borne by the developer or user, and if the area
agrees to be annexed into the Town.
C. Transportation System.
The Town of Swansboro will continue to seek ways of improving its transportation
system. This may be in the form of continuing lobbying of the State Department of
Transportation to ensure that the proposed Thoroughfare Plan is realized andthat new
projects are added to the ten year plan as they become necessary. Detailed study of the
citizen's transportation concerns has been conducted via the citizen survey which was
conducted as part of this 1990 plan (see Appendix II) and via Town meetings to discuss the
Thoroughfare Plan (which is discussed in detail in Appendix III).
d. Fire. Police and Rescue Services
The Town of Swansboro will continue to cooperate with Onslow County in the provision
of fire, police and rescue services to the Town and its ETJ.
Recreational Facilities
The Town of Swansboro will continue to seek means of providing expanded and improved
recreation facilities to the area. This may include joint ventures with Onslow County. As a
part of this goal the Town should conduct a shoreline access improvement study and seek
to improve its waterfront areas by adding or upgrading docks, piers, boat ramps, parking
or general recreation areas.
4. DESIRED URBAN GROWTH PATTERNS
The Town of Swansboro would like to encourage in -fill development. This would ease the
burden on existing municipal service lines, eliminate gaps and holes in the Town and provide for a
smoother transition of land uses. This in -fill development will include a smoothing out of the
Town's boundaries and discourage satellite annexation. Also, the Town will discourage the
extension of municipal services to developing areas unless they agree to be annexed. The Town
57
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also realizes that its existing zoning ordinance is inadequate and needs to be examined for possible
revisions and modifications.
5. REDEVELOPMENT AND REVITALIZATION OF DEVELOPED AREAS
The Town of Swansboro shall encourage redevelopment and revitalization efforts in areas
that have experienced deterioration or abandonment. This redevelopment is reflective of the in -fill
development policy stated in policy IV. C.3 above. Redevelopment is especially desirable if it
takes the form of historic restoration and preservation within the Town's historic district. This
district is listed in the National Register of Historic Places. The Historic District Commission
should be consulted for redevelopement projects in this area.
6. COMMITMENT TO STATE AND FEDERAL PROGRAMS
The Town of Swansboro shall continue to support state and federal programs that impact
upon or are relevant to the Town. Examples include the NCDOT road and bridge improvement
program, the National Historic Properties Program, and others which provide benefits to the
Town. This may also include, after careful review, military facilities.
7. ASSISTANCE TO CHANNEL MAINTENANCE
The Town of Swansboro recognizes the importance of the White Oak River and other area
waterways. These waterways are the lifeline to commercial and recreational fishing - and to an
extent to tourism. Therefore, the Town shall give whatever assistance possible and feasible to the
Corps of Engineers and the State of North Carolina in the maintenance of these waterways.
8. ENERGY FACILITIES SITING
This policy area is generally not relevant to the Town of Swansboro. The current zoning
ordinance does not permit electric generating plants within the Town's jurisdiction.
9. TOURISM
The Town of Swansboro acknowledges tourism as having an important contribution to the
Town's economy. The Town will continue to encourage tourism by encouraging the development
of lodging facilities, better water access, preservation of the historic district. continuance of local
festivals, development of informational brochures and protection of the Town's character.
to. COASTAL AND ESTUARINE WATER BEACH ACCESS
The Town of Swansboro will seek to improve access to its waterways and shorelines as (�
noted in other areas of this report. 0
11. DENSITY OF DEVELOPMENT
The types, location and densities of new residential development are controlled by the
Town's zoning ordinance subdivision regulations, this Land Use Plan Update and various other
Federal, State and local land use regulations.
The availability and constraints related to those services necessary for new development
were discussed in other portions of this report. All facilities have sufficient capacity to support
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Ocontinued growth and development
The Town of Swansboro will not identify an area within the Town or its ED for
a use as a landfill. This is due to the urban nature of the Town and the abundant presence of
wetlands which are unsuitable for use as a landfill. The Town will continue to rely on the services
of a waste disposal service and usage of the Onslow County landfill. This statement does not
opreclude the Town from developing its own waste collection system.
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F. STORM HAZARD MITIGATION, POST -DISASTER RECOVERY, AND
EVACUATION PLANS
The entire North Carolina Coastal region, including Swansboro, faces strong threats of damage
each year from hurricanes, Northeasters, or other major storms. For over twenty years, there was
a marked slowdown in hurricane activity along the State's coast Since such a storm is long
overdue, predictions are that a major storm could strike the State at any time during the hurricane
season.
In September, 1984 Hurricane Diana, with some of the strongest sustained winds ever recorded,
rammed into the Southeast coast near Wilmington. Although damage was extensive, the potential
destruction was much greater. The damage would have been greatly escalated had the storm hit
land at a slightly different location. 'Ibis time the State and the Southeast coastal area were
relatively fortunate. But what about next tine?
Notice this excerpt from Before the Storm: Managing Development to Reduce Hurricane
Damages, McElyea, Brower, & Godschalk, 1982, concerning development in coastal
communities:
"At the same time, development along the coast has grown leaps and bounds.
Unless this development is wisely located and built to withstand hurricane forces,
North Carolina's coastal communities will face massive destruction. Local
governments, as the primary protectors of the public health, safety, and general
welfare, have a responsibility to ensure that reconstruction following a major storm
can occur quickly and leave the community safer from disaster in the future. These
are the goals of hazard mitigation and reconstruction planning." (p. iii)
The purpose of this section of the 1990 CAMA Land Use Plan Update is to assist Swansboro in
managing development in potentially hazardous areas through establishing storm hazard mitigation
policies. It will also help to reduce the risks associated with future hurricanes by developing better
post -disaster reconstructionfrecovery policies, and reviewing the adequacy of current evacuation
plans. The overriding concept of this exercise is simply planning ahead of time.
"Hazard mitigation includes any activity which reduces the probability that a
disaster will occur or minimizes the damage caused by a disaster. Hazard
mitigation includes not only managing development, but also evacuation planning
and other measures to reduce losses of life and property. Reconstruction involves
the full range of repair activities in the wake of a disaster which seek to return the
community to a normal level of operation." (McElyea, Brower, & Godschaik, p.
iii).
1. ' STORM HAZARD MITIGATION: DISCUSSION
Storm hazard mitigation is actions taken to reduce the probability or impact of a disaster.
This could involve a number of activities or policy decisions. The starting point is to identify the
types of hazards (including the relative severity and magnitude of risks) and the extent of
development (residential, commercial, etc.) located in storm hazard areas.

oHurricanes are extremely powerful, often unpredictable, forces of nature. The two most
severe effects are fatalities and property damage, which are usually the result of four causes: high
owinds, flooding, wave action, and erosion, each of which are briefly discussed below:
a. Highds
aHigh winds are the major determinants of a hurricane. By definition a hurricane is a
tropical disturbance with sustained winds of at least 74 miles per hour. Extreme hurricanes
(� can have winds of up to 165 miles per hour, with gusts of up to 200 miles per hour. These
(� winds circulate around the eye, or center, of the storm.
Although the friction or impact of the winds hitting land from the water causes some
dissipation of the full force, there is still a tremendous amount of energy left to cause
damage to buildings, overturn mobile homes, fell trees and power lines, and destroy crops.
Hurricanes often spawn tornadoes - another destructive force of nature. It is likely that all
of Swansboro would be subject to the same wind velocity in the event of a storm.
b. Flooding
Flooding, on the other hand, may not affect all areas with equal rigor. The excessive
amounts of rainfall and the storm surge which often accompany hurricanes can cause
massive coastal and riverme flooding which could cause extensive property damage and
a deaths by drowning. (More deaths are caused by drowning than any other cause in
hurricanes.) Flooding is particularly a problem ui coastal areas because of the storm surge
in low-lying areas.
Flooding can also cause extensive damage in inland area since many coastal areas have
low elevations and are located in high hazard or Zone A flood areas according to the
Federal Emergency Management Agency Maps. There are significant portions of the Town
of Swansboro which are subject to the one hundred (100) year flood (Zone A), the one
hundred (100) year flood with velocity (Zone V) - also known as wave action - and the five
hundred (500) year flood (Zone B). These areas are threatened with flooding in the event
(� of a major storm or hurricane. Most of the Town, however, is Zone C which has a
11 minimal threat from flooding.
D
These threatened areas lie adjacent to the shorelines of the White Oak River and its bays and
inlets such as Picket Bay, Corbett's Creek, Hawkin's Creek, Dennis Creek and Fosters
Creek. These flood zone areas include a large member of residential, commercial and
o public use structures. A portion of Swansboro's historic district is also included in these
danger areas.
c. Wave Action
ODamage from wave action is closely related to the storm surge. A storm surge is wind -
driven water with high waves moving to vulnerable shoreline areas. Areas most likely to
be affected are ocean erodible areas and estuarine shoreline areas. There are no ocean
erodible areas in Swansboro, but there are some Zone V flood zones as noted above.
These zones are subject to wave action velocities which could increase erosion. These are
located within the extensive estuarine shoreline areas in the Town's jurisdiction. Estuarine
a
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shorelines extend seventy-five (75) feet inland from the mean high water mark of estuarine
waters.
Wave action damage would have the most significant impact along the White Oak River
shoreline. As the existing land use map (Map 2), and the flood zone map (Map 4) show
there is a significant amount of residential and commercial development in or near the
estuarine shoreline area. Wave action can cause erosion as well as push flood waters to
areas not reached by the storm surge itself.
The estuarine shorelines along Swansboro's riverine shores are sufficiently inland from an
open coast so that the wave energy is dispersed and diffracted but may still have destructive
power.
The final major consideration in storm hazard mitigation is severe erosion caused by high
winds, high water, and heavy wave action. In Swansboro's jurisdiction the area most
susceptible to storm -related erosion is the estuarine shoreline AEC along the White Oak
River. This is essentially the same area that would be affected by the action of damaging
waves as described in part c above. Shoreline erosion could lead to loss of property
through portions of waterfront lots being washed into the river or even actual structural
damage to buildings. Potential erosion is an important factor to consider in developing
storm hazard mitigation policies.
e. Summary: Storm Hazard Mitigation Considerations
In summary, all four of the major damaging forces of a hurricane - high winds, flooding,
wave action, and shoreline erosion - could have a potential impact upon Swansboro's
jurisdiction in the event of a major storm. The degree of susceptibility to losses and/or
damages was generally alluded to in the previous discussions. Table 11 provides a better
projection of the percent of the County's building structures (residential, commercial, etc.),
subject to the potentially devastating effects of a major storm:
Table 11 *Percent of Structures Subject to Storm Damage Factors, Swansboro and its ETJ
Percent Structures 1989 Tax Value
Storm Impact Possibly Affected (Millions)
1. High winds
100 percent $31.7
2. Flooding
10 percent 3.2
3. Wave Action
5 percent 1.6
4. Shoreline Erosion
5 percent 1.6
*Based on preliminary pmjections derived form examination of Existing Land Use Map.
Map prepared by Ken Weeden and Associates. Tax value provided by Onslow County Tax Office.
The information in the table above is preliminary and is not intended to convey the
impression that every single structure would be affected, only that the potential is there. Knowing
that the potential is there forms the basis for setting forth storm hazard mitigation policies, keeping
in mind that mitigate means actions which may reduce the probability of disaster, or minimize the
damage caused by a disaster (McElyea, Brower, & Godschalk, p. iii).
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Df. Policy Statements: Storm Hazard Mitigation
Q In order to minimize the damage potentially caused by the effects of a hurricane or other
major storm, Swansboro proposes the following policies.
1. High Winds
Swansboro supports enforcement of the N.C. State Building Code, particularly
requirements of construction standards to meet wind -resistive factors such as a
(� design wind velocity. The Town will also support provisions in the State Building
�j Code requiring tie -downs for mobile homes, which help prevent wind damage.
O2. Flooding
Swansboro is supportive of the hazard mitigation elements of the National Flood
Insurance Program. Swansboro has participated in the regular phase of the
Q insurance program since 1985. Swansboro also supports continued enforcement of
the CAMA and 404 wetlands development permit processes in areas susceptible to
flooding, and with State policies and regulations for development in areas of
aenvironmental concern (AECs).
3. Wave Action and Shoreline Erosion
OSwansboro is supportive of the CAMA development permit process for estuarine
shoreline areas and the requisite development standards which encourage both
(� shoreline stabilization and facilitation of proper drainage.
lS g. Implementation: Storm Hazard Mitigation
O 1. Swansboro will continue to support a building inspection program, with the
services of a building inspector, enforcing provisions of the N.C. State
Building Code for new construction. These provisions will include
Q designing for wind resistance and mobile home tie -downs for newly placed
mobile homes.
2. Swansboro will continue to participate in the Flood Damage Prevention
O Ordinance of the Regular Phase of the National Flood Insurance Program.
This ordnance requires basic flood proofing for all new construction,
including all first floor elevations being at or above the base flood
O elevations. It will be enforced as part of the Town's building inspection
program. The base flood elevation, as shown on the flood insurance maps,
is the elevation of the one hundred (100) year flood
O 3. The Town will continue to support enforcement of State and Federal
programs which aid in mitigation of hurricane hazards, including CAMA
and the U.S. Army Corps of Engineers 404 permit process.
2. POST -DISASTER RECONSTRUCTION PLAN
(� The Town of Swansboro acknowledges that in the event of a major storm it will be very
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important to have a general recovery and reconstruction plan in place. All parties involved in the
implementation of such a plan shall be appointed prior to any storm occurring and shall be familiar
with the details of the plan. This will reduce confusion and increase efficiency during the post -
disaster recovery and reconstruction.
a. Recovery Task Force
A special Recovery Task Force (RTF) shall be appointed. The RTF should contain both
elected and appointed officials of the Town as well as experts in various fields. These
experts should include persons familiar with construction, public facilities, and safety
personnel. This shall be a standing group. Vacancies shall be filled as soon as possible
and the new member shall be provided with all the needed information to ensure that they
understand the plan.
In particular the Recovery Task Force should include the Mayor and Town Council, the
Town Administrator, the Building Inspector, the Police Chief, the Fine Chief, the Town
Clerk, the Public Works Supervisor, and a member of the construction/architecture/
engineering profession. Other members may be added if necessary.
The RTF shall be responsible for the management and implementation of the disaster
recovery plan. The Mayor and Town Council, as elected officials, shall be the chief
decision makers in this process. The RTF's responsibilities include:
1. Establishing an overall restoration schedule.
2. Setting restoration priorities.
3. Determining requirements for outside assistance and requesting such assistance
when beyond local capabilities.
4. Keeping the appropriate County and State officials informed.
5. Keeping the public informed.
6. Assembling and maintaining records of action taken and expenditures and
obligations incurred.
7. Recommending to the Mayor to proclaim a local state of emergency if warranted. O
8. Commencing and coordinating clean up, debris removal, and utility restoration
which would include coordination of restoration activities undertaken by private n
utility companies. U
9. Coordinating repair- and restoration of essential public facilities and services in
accordance with determined priorities. O
10. Assisting private businesses and individual property owners in obtaining
information on the various types of assistance that might be available to them from
federal and state agencies. j
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b. Damage Assessment Team (DAT)
As soon as the storm has passed and as safety permits, a predetermined Damage
a Assessment Team (DAT) shall begin to make an evaluation of the extent of damage that has
occurred in the Town's jurisdiction. The Town Building Inspector shall lead this group.
The Inspector will ensure that all members of the DAT are familiar with the State guidelines
for evaluating structural damage. In particular damaged structures shall be classified as
0 follows:
• Destroyed (repairs would cost more than 80 percent of value).
OMajor (repairs would cost more than 30 percent of the value).
• Minor (repairs would cost less than 30 percent of the value, but the structure is
currently uninhabitable).
• Habitable (some minor damage, with repairs less than 15 percent of value).
The color coding of tax maps is a very efficient way of recording this information.
o Along with these items notes should be made as to the most likely cause of the structural
damage. This information ma be useful when re-evaluating the storm mitigation policies
before allowing reconstruction. For example, if there are an unexceptionably high number
O of buildings damaged from the intensity of the storm, then the storm mitigation policies
may not be restrictive enough. These policies then may need to be upgraded to better
protect the public health, safety and welfare.
(� Once the field surveys are completed the Town should begin to estimate the dollar value of
(� the damage. The pre -storm value of each structure should be taken from the Onslow
County or Town of Swansboro tax records. Then working from the color coded field
surveys tax maps, the relevant damage percentage should be multiplied by the pre -storm
value. These should be aggregated to estimate the total value of damages for the Town. A
total should also be calculated for the number of residential and non-residential structures
damaged for each damage category. These figures should then be reported to the Onslow
OCounty Emergency Operations Center.
C. Repair/Reconstruction Schedule
DThe first steps taken during reconstruction shall be to protect property and inhabitants from
further harm. This protection would include police protection to prevent looting, stabilizing
n damaged structures and shorelines, securing down power lines and other damaged public
uutilities, and clearing primary transportation routes.
The following schedule of activities and its time frame are proposed below with the realistic
idea that many factors of a hurricane may render the schedule infeasible.
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ACTIVITY
TIME FRAME
1.
Begin repairs to Critical
As soon as possible
Utilities and Facilities
after the disaster.
2.
Complete Damage Assessment
Within two weeks
after storm.
3.
Prepare Summary of
Completed 48 hours
Reconstruction Needs
after damage assess-
ment is completed.
4.
Begin Re-evaluation of Hazard
Can be initiated
Areas and Mitigation Policies
once damages are
in Areas subjected to
assessed and input
Development Moratorium
is received from the
State.
5.
Decision Regarding Imposition
Within one week
of Temporary Development
after damage assess -
Moratorium
ment is completed.
6.
Permitting of Reconstruction
Within one week
Activities for all Damaged
after damage assess -
Structures (Major and Minor)
ment is completed.
not included in Development
Moratorium Areas.
7.
Set Reconstruction Priorities
Completed two weeks
and Prepare Master
after damage assess -
Reconstruction Scheduled
ment is completed.
8.
Revise Mitigation Policies and
Within two months of
Development Standards for
imposition of
Areas Subjected to Development
Temporary Develop -
Moratorium and Lift Development
ment Moratorium
Moratorium.
(variable due to
circumstances
encountered).
9.
Permit new development.
Upon suspension of
any temporary
development
moratorium.
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d. Utility and Town Facility Reconstruction
If any portion of the Town's water or sewer system is significantly damaged, the affected
portions shall be relocated or modified to prevent damage from recurring. Components
damaged by flood waters shall be relocated out of the one hundred (100) year flood plain or
shall be made flood proof.
e. Reconstruction Development Standards
Generally, reconstruction shall be held at least to the same standards as existed before the
storm. Structures which were destroyed and which did not conform to the Town's storm
hazard mitigation policies, that is, with basic measures to reduce damage by high winds,
flooding, wave action or erosion, must be redeveloped according to those policies.
The Town will support the decision of the Sanitarian if the loss of property containing
shoreline structures is substantial enough to prohibit the reissuing of a septic tank permit.
This may mean relocation of construction, or no reconstruction at all. Such relocation will
be placed in less hazardous areas if feasible.
Building permits to restore destroyed or damaged structures, which were bunt in
conformance with the State Building Code local ordinances and Town storm hazard
mitigation policies shall be issued automatically. All structures suffering major damage will
be repaired according to the State Building Code, the Swansboro Zoning Ordinance and the
Swansboro Flood Plain Management Regulations. All structures suffering minor damage,
regardless of location, will be allowed to be rebuilt to the original pre -storm condition.
If there is excessive damage in any particular area, then the Town may place a temporary
development moratorium on reconstruction m that specific area (or the entire jurisdiction)
until a review (and if necessary revision) of the Town's development standards and storm
mitigation policies can be performed. This moratorium shall be imposed by the Town of
Swansboro Mayor and Town Councfl and based upon recommendations by the Recovery
Task Force. They shall lift the moratorium once the development standards have been re-
evaluated and declared to be sufficient or after new development standards have been
adopted. In the later case new development should meet the newly adopted development
standards.
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SECTION III:
CLASSIFICATION
SYSTEM
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DA. General
a The land classification system provides a uniform way of looking at how the planned use of land
interacts with environmentally sensitive areas and with the development of a Town or County. It is
not a strict regulatory device in the sense of a zoning ordinance or zoning map. It represents more
a of a tool to understanding relationships between various land use categories and how these
relationships help shape local policy.
Particular attention is focused on how intensely land is utilized and the level of services required to
U support that intensity. Land classification is also useful in the staging of services necessary to
U support development. The regulations for the Coastal Area Management Act (CAMA) state:
a 'Me land classification system provides a framework to be used by local
governments to identify the future use of all lands. The designation of land classes
allows the local government to illustrate their policy statements as to where and to
Q what density they want growth to occur, and where they want to conserve natural
and cultural resources by guiding growth." (7B.0204) (b)
There are seven general land use classifications under CAMA: Developed; Urban Transition;
o Limited Transition; Community, Rural; Rural with Services; and Conservation. In applying the
land classification system, each local government should give careful consideration to how, where
and when certain types and intensities of development will be either encouraged or discouraged. A
O brief summary of the seven broad classifications, as contained in the CAMA. rules Subchapter 7B
might illustrate this. For example:
0 "Urban land uses and higher intensity uses which presently require the traditional
urban services should be directed to lands classified developed. Areas developing
or anticipated to develop at urban densities winch will eventually require urban
services should be directed to lands classified transition. Law density development
(� in settlements which will not require sewer services should be directed to areas
U classified as community. Agriculture, forestry, mineral extraction and other similar
low intensity uses and very low density, dispersed residential uses should be
O directed to lands classified rural. Generally, public or private water or sewer
systems will not be provided in areas classified rural as an incentive for intense
development." (7B.0204) (d)
"The Rural Services Class is to provide for very low density land uses including
residential use where limited water services are provided in order to avert an
existing or projected health problem." (7B.0204)(5)(A)
'Me purpose of the conservation class is to provide for the effective long-term
management and protection of significant, limited, or irreplaceable areas."
D (7B.0204) (7) (A) Consequently, urban services (whether public or private) should
= be provided to those areas as an incentive to stimulate more intense
development. Each of these classes that are applied to the area must be represented
on a Land Classification Map.
DThe seven land classifications and the Land Classification Map are therefore intended to serve as a
visual reflection of the policies previously stated in Section H. Ideally, the map which depicts
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these classifications should be as flexible as the policies that guide them. (See Map 9, Land
Classification Map)
The seven land use classifications, as they will be applied in Swansboro's jursidiction, are defined
below and shown on Map 9.
B . Developed
The developed class of land use provides for continued intensive development and redevelopment
of existing cities or municipalities. Areas to be classified as developed include lands currently
developed for urban purposes or approaching a density of three (3) dwellings per acre and
provided with the usual municipal or public services and police and fire protection. In other
words, such area must currently be urban in character. Urban lands have mixed land uses such as
residential, commercial, industrial and institutional or other uses at high to medium densities.
In Swansboro's jurisdiction the area meeting the criteria of this classification is the entire Town of
Swansboro and three areas adjacent to the Town. The first of these areas includes a portion of the
extraterritorial jurisdiction to the north of Town. This area includes SR 1447 Main Street extension
at the Town limit and the area east of SR 1444 (Swansboro Loop Road) up to and including the
Oyster Bay development and thence extending along SR 1448 (Mt Pleasent Road) northward to
the Town's ETJ boundary and includes all land seaward of this line to the White Oak River.
The second of these three developed areas in the ETJ includes an area south of the Town. This
area extends from a point in Halls Branch at the western most corner of the large mobile home
subdivision that straddles SR 1512 (Old Hammocks Road), thence along the southwestern
property lines of said subdivision to the eastern shoreline of Fosters Creek and includes all land
between this line and the existing Town limits. This area includes Deer Island.
The third of these three developed areas in the ETJ includes the area northwest of the Town. This
area includes the area between SR 1447 (Main Street Extension) and the existing Town Limits (on
either side of NC 24) and the majority of small and medium sized lots on either side of NC 24
northwesterly to the Town's ETJ boundary. This area extends a short distance on either side of
SR 1511 (Hammock Beach Road), SR 1445 (Norris Road), Fisherman Lane, SR 1457
(Unnamed) and its tributaries - Viola Court and Rose Court.
These areas do not include any area classified as conservation.
C. Urban Transition
Urban transition land is classified as those lands providing for future intensive urban development
within the ensuing ten years on lands that are the most suitable and that will be able to support
intensive urban development; and provided with the necessary public utilities and services to
support intensive urban development They may also provide for additional growth when
additional lands in the developed class are not available or when the remaining lands in the
developed class are severely limited for development
Lands classified transition may include:
1. Lands included m municipal extraterritorial planning jurisdictions and areas being
considered for annexation;
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2. Predominately residential areas that are approaching densities of three (3) units per acre, or
have a majority of lots smaller than 15,000 square feet and will be provided with essential urban
services; or
Q3. Lands contiguous with existing developed municipal areas.
Urban transition lands must further:
1. be served or be readily served by public water, sewer, and other urban services; and
2. be generally free of severe physical limitations for urban development.
The urban transition class should not include:
a1. lands of high potential for agriculture, forestry, or mineral extraction, or;
2. lands where urban development might result in major or irreversible damage to important
Oenvironmental, scientific, or scenic values, or
3. land where urban development might result in damage to natural systems or processes of
Qmore than local concern; and
4. lands where development will result in undue risk to life or property from natural hazards
or existing land uses.
O5. lands that are designated as areas of environmental concern (AEC).
O The areas to be classified as urban transition in Swansboro's jurisdiction includes all of the land
located between the developed classification as described above and the Town's extraterritorial
jurisdiction boundary (seethe Land Classification Map). These areas do not include any area
oclassified as conservation.
The relationship between the developed and urban transition classification is important. The first
class is meant to define the already developed areas and/or those areas where public investment
O decisions will be required to provide the necessary urban services. These become important areas
to monitor closely. The Coastal Resources Commission has further clarified this relationship as
described below:
U The Developed and Urban Transition classes should be the only lands under
active consideration by the County or municipality for intensive urban
development requiring extensive urban services such as sewage treatment.
The area within these classes is where detailed local land use and public
investment planning will occur. State and Federal expenditures on projects
associated with urban development (water, sewer, urban street systems,
0 etc.) will be guided to these areas. Large amounts of vacant land suitable for
urban development within the Developed class should be taken into account
when calculating the amount of additional lands needed to accommodate
Oprojected growth.
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D. Limited Transition
The purpose of the Limited Transition classification is to provide for development in areas that will
have some services, but are suitable for lower densities than those associated with the Urban
Transition classification and/or are geographically remote from existing towns and municipalities.
Lands in this classification will experience increased development pressures during the planning
period. This development may necessitate some municipal type services but will be of only modest
densities. These lands are often comprised of soils unsuitable for high intensity development.
These lands may further be defined as lands with physical limitations or areas near valuable
estuarine waters or other fragile natural systems. These lands should not include areas which meet
the definition of Conservation Land. Lands in this classification should be predominantly
residential with densities of three (3) units per acre or less, or with the majority of lots larger than
15,000 square feet. Cluster or planned unit developments are allowed in this classification —
occasionally with closed water systems.
There are no areas in Swansboro's jurisdiction that meet the criteria of this classification.
E. Community
The Community classification provides for clustered mixed land uses to meet housing, shopping,
employment, and public service needs within the rural areas of a County. It is usually
characterized by a small grouping of mixed land uses which are suitable and appropriate for small
clusters of rural development not requiring municipal sewer service. These areas provide residents
with a sense of a community.
There are no areas in Swansboro's jurisdiction that meet the criteria of this classification.
F . Rural
The Rural class provides for agriculture, forest management, mineral extraction and other low
intensity uses on large sites including residences where urban services are not required and where
natural resources will not be unduly impaired. These are lands identified as appropriate locations
for resource management and allied uses; lands with high potential for agriculture, forestry or
mineral extraction; lands with one or more limitations that would make development costly and
hazardous; and land containing irreplaceable, limited or significant natural, recreatinal or scenic
resources not otherwise protected.
There are no areas in Swansboro's jurisdiction that meet the criteria of this classification.
G. Rural with Services
The Rural With Services classification was created to provide for very low density land uses
including residential uses where limited water services are provided or will be provided In order to
avert an existing or projected health problem. Other services such as sheriff and fire protection and
rescue services may also be available.
There are no areas in Swansboro's jurisdiction that meet the criteria of this classification.
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H. Conservation
The final land use category, according to CAMA guidelines, is the Conservation class, which
D provides for effective long-term management of significant, limited, or irreplaceable resources.
This classification will at a minimum include all of the statutorily defined AECs. Other areas
within the Town's jurisdiction with natural, cultural, recreational, productive or scenic value, may
also require similar effective long-term management.
aIn Swansbcro's jurisdiction, the environmentally sensitive areas identified as areas of
environmental concern (AECs - coastal wetlands, estuarine waters, estuarine shorelines, public
j� trust areas and oustanding resource waters) are classified as Conservation. Examples of other
j conservation areas include major 404 wetlands (wetlands other than statutorily defined coastal
wetlands); essentially undeveloped shorelines that are unique, fragile, or hazardous for
a development; lands that provide necessary habitat conditions (especially for remnant species);
pocosins; or publicly owned water supply watersheds and acquifers.
The Conservation designation should not be misconstrued to imply non-use, but does imply a need
for careful and cautious management of any allowable use. For example, within a conservation
area, there may be high ground areas which are suitable for development, in which case
development should be allowed to take place under carefully managed conditions. The term
Q preservation on the other hand implies total restriction of all uses. Within lands designated
conservation, each proposal, or application for any development should be reviewed on a case by
case basis.
a Since, as stated previously, conservation does not imply preservation, specific allowable uses in
the Conservation class shall include:
a1. Low density residential development if, and as, allowed by the Onslow County Health
Department and the U.S. Soil Conservation Service. Water and sewer services will not be
O extended to such a residential area merely to stimulate additional growth and development On -site
services, in the absence of centralized services, may be permitted.
a 2. Water -oriented uses such as piers, docks, and marinas, if they are shown not to cause
detriment to the estuarine waters or other Conservation areas. In designated 404 Wetland areas.
the Town will accept the permitting decisions of the U.S. Army Corps of Engineers.
3. Necessary utility service lines, such as water, sewer, electrical, natural gas, etc., when it is
demonstrated that the ecological system of the Conservation area will not be significantly altered.
As noted in Item 1 above, development of and/or extension of necessary utilities and services will
O not be done merely as a stimulus for additional growth and development, only to the extent needed
to meet an existing or expected health problem or to serve existing development.
4. Roadways, when construction of roadways can be conducted without significantly altering
the ecological system, and in compliance with existing federal, state, and local regulations.
In conjunction with the Policy Statements section of this Plan, each application for development in
a the Conservation classification shall be brought before the Town Planning Board. These shall be
reviewed on a case by case basis prior to approval. The Town Planning Board may recommend
modification of the proposed development.
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SECTION IV:
RELATIONSHIP OF POLICIES
LAND CLASSIFICATIONS
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I. Land Classification Summary
The proposed classification of land for varying levels of intensity and provision of public services
in Swansboro's jurisdiction were presented in parts A through H above. These classifications
related directly to the policy statements contained in Section II of this Plan. Additional information
on the relationship between the land classification system and policies will be presented in Section
IV.
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A. General
As required by the Coastal Area Management Act, the land use plan must relate the policies section
to the land classification map and provide some indication as to which land uses are appropriate in
each class.
B. Developed and Urban Transition Classes
As mentioned in the discussion of existing conditions, most of the Town's growth will occur along
NC 24 and the White Oak River in the ETJ. This is the area where basic services such as water,
sewer, and community support services are available or might be feasible within the planning
period. The developed and urban transition classes were specifically designated to accommodate
these more intensively developed areas and land uses, including residential, commercial, industrial,
parks and open space, community facilities and transportation. Hazardous or offensive uses such
as land application systems,power plants, airports and bulk chemical storage facilities will be
located away from these classes.
C. Limited Transition Class
The Limited Transition class was created to allow some low to moderate density development with
some services. This class often applies to areas that are geographically remote from existing
municipalities and may be on soils with physical lirnitations or near sensitive environmental,
scientific, aesthetic or cultural resources. This class applies mainly to residential areas and may
include planned unit developments or clustered housing.
There are no such areas in Swansboro's jurisdiction.
D. Community Class
Intensive development will not be encouraged in this class due to the lack of urban services and/or
physical limitations. The general range of acceptable uses are limited to residences, isolated
general and convenience stores, churches, and other public facilities. These areas are usually
found at crossroads within the rural classification.
There are no such areas in Swansboro's jurisdiction.
E. Rural Class
The rural class is the broadest of the land classes, and is designated to provide for agriculture,
forest management, mineral extraction and other low intensity uses. Residences may be located
within the rural class where urban services are not required. Some large developments may be
encouraged in the rural class when there is an absence of otherwise suitable land within the
developed and transition classes and/or when there is a possible threat to the urban populace. Such
large developments include airports and power plants. A community also reserves the privilege of
allowing specific types of industrial development in the rural areas if, in the opinion of the local
government there will be no harmful or advserse effects from such a location.
There are no such areas in Swansboro's jurisdiction.
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F. Rural with Services Class
This class provides for low density development in areas where limited water service is available.
This service was provided to prevent health problems and not to encourage development. This
class does not conflict with a community's policy of preserving agrarian land for those uses.
There are no such areas in Swansboro's jurisdiction.
G. Conservation Class
The Conservation class is designers to provide for effective long-term management of significant
limited or irreplaceable areas which include areas of environmental concern, areas that are unique,
fragile, or hazardous for development, publicly owned gamelands and parks, undeveloped forest
lands and cultural and historical sites.
Development in the estuarine system should be restricted to such uses as piers, bulkheads,
marinas, and other water -dependent uses. Policy statements under Resource Protection, and
Resource Production and Management in Section H of this plan address the Town's intentions
under this class. Also, a more detailed discussion of the Conservation classification, along with
permissible uses, is included Section III.
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SECTION V:
INTERGOVERNMENTAL COORDINATION
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A. General
Throughout the development of this Plan, effort was made to make the policies consistent and
compatible with other local, State and Federal requirements. Implementation of the Plan will
likewise follow the same intergovernmental concern.
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APPENDIX I
REVIEW OF POLICIES
FROM
1986 LAND USE PLAN UPDATE
Of

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TOWN OF SWANSBORO LAND USE PLAN UPDATE, 1990
Analysis of 1986 Policy Statements/Implementation Action
The CAMA Land Use Plan for coastal communities is essentially a policy document aimed at
guiding localities toward sound growth management. Because circumstances, conditions, and
issues change over time, the Coastal Resources Commission, under State law, requires the local
land use plans to be updated every five years in order to take a second look at old policies for their
relevance and effectiveness as well as to examine newly emerging trends and concerns.
The Commission is also requiring in all 1990 updates an assessment of the previous policy
statements and implementation steps taken to effectuate them. This summary analysis of some of
the major policies contained in the 1986 Plan is being presented as an appendix to the 1990 Plan
Update. A review of the current status of 1986 policies and proposed actions also helped to
identify new policy issues.
POLICY I IMPLEMENTATION
I. Resource Protection
A. Areas of Environmental Concern (AECs):
Development Policies
1. POLICY: To support and enforce the
policies and permitted uses defined below
for the AECs through its CAIViA permit
system with the State of North Carolina.
2. POLICY: To promote conservation
and management of the estuarine system
as a whole.
3. POLICY: To adopt a management
objective for the estuarine system of
giving the highest priority to the protection
O and coordinated management of all AECs
in order to protect biological productivity,
recreational and aesthetic resources,
common law and statutory public rights,
(� and to minimize the loss of private
L,1 property and public resources.
a
STATUS / RELEVANCY / ACTIONS
Ongoing concern.
Ongoing concern.
Ongoing concern.
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4. POLICY: In general, to permit only
water dependent fang uses in the coastal
wetlands, estuarine waters, estuarine
shorelines and public trust areas.
5. POLICY: To not permit land uses
which are not water dependent in coastal
wetlands and public trust areas.
6. POLICY: To enforce the general use
standards for coastal wetlands, estuarine
waters, estuarine shorelines and public
trust areas as stated in NCAC Subchapter
7H.
B. Coastal Wetlands
1. POLICY: Subject to Policy A.6 above
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, floating homes, parking
lots, private roads, and highways.
C. Estuarine Waters
1. POLICY: Subject to Policy A.6
above, appropriate uses may include
simple access channels, structures which
prevent erosion, navigational channels
boat docks, marinas, piers, and mooring
pilings.
D. Estuarine Shorelines
1. POLICY: Subject to Policy A.6 above
appropriate uses in estuarine shoreline
AECs arc 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 uses
along the estuarine shorelines provided
that all standards of NCAC 15 subchapter
7H relevant to estuarine shoreline AECs
are met and that development complies
with zoning controls.
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Ongoing concern.
Ongoing concern.
Ongoing concern.
Ongoing concerns.
Ongoing concerns.
Ongoing concern.

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E. Public Trust Areas:
1. POLICY: Subject to PolicyA.b
above, in the absence of overriding public
benefit, any use which significantly
interferes with the public right of
navigation or other public trust rights
which apply in the area shall not be
allowed. Projects which would directly or
indirectly block or impair existing
navigational channels, increase shoreline
erosion, deposit spoils below mean high
tide, cause adverse water circulation
patterns, violate water quality standards,
or cause degradation of shellfish waters
shall, in general, not be allowed.
Uses that may be allowed in public trust
areas shall not be detrimental to the public
trust rights and the biological and physical
functions of the estuary. Examples of
such uses include the development of
navigational channels or drainage ditches,
the use of bulkheads to prevent erasion,
the building of piers, docks or marinas.
F. Natural and Cultural Resource
Areas:
1. POLICY: To protect these areas from
irreversible damage resulting from
uncontrolled or incompatible development
by supporting the policies and guidelines
stated in Subchapter 7H of NCAC 15.
G. Storm Water Runoff
1. POLICY: To impose additional
standards in the Town's Subdivision
Regulations and Planned Unit
Development Ordinance to mitigate the
impacts of runoff generated by new
developments on surrounding properties
and receiving bodies of water.
2. POLICY: To develop generalized
guidelines to encourage the use of the best
available practices to minimize pollution
from storm water runoff.
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Ongoing concern.
Ongoing concern.
Not implemented (Separate Storm Water
Runoff Ordinance Needed)
Not implemented.
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3. POLICY: To increase the amount and
use of open space required in new
developments.
H. Marina and Floating Home Development:
1. POLICY: To support the Town's
position that the development of marinas is
undesirable unless central water and sewer
facilities are available to serve the facility.
2. POLICY: To support the Town's
position that floating homes are
undesirable and to consider adopting an
ordinance to regulate them.
I. Development of Sound and
Estuaring Islands
1. POLICY: To place all such areas
(except for the White Oak River Bridge
causeway, Deer Island, and those island
zoned otherwise on the Town's zoning
map) in the conservation land
classification and to allow devleopment
only if it is consistent with state and local
policies for this land classification.
II. Resource Production and Management
A. Productive Agricultural and
Forested Lands
1. POLICY: To encourage the continued
use of agricultural and forest lands for
those uses.
2. POLICY: To encourage all uses except
for low density residential uses to locate in
other areas. Other types of uses will be
permitted in these productive agricultural
and forest lands only if there are no other
suitable sites available. This policy also
applies to projects which require State or
Federal permits, licenses or funds.
%LA
Not implemented.
Ongoing concern.
Ongoing concern, but no ordinance was
developed or adopted.
Ongoing concern.
Ongoing concern.
Not fully implemented.

3. POLICY: To use zoning and other
O
adopted policies and regulations to
discourage growth and development in
Othese
productive areas.
B. Commercial and Recreational
O1.
Fisheries
POLICY: To protect commercial and
recreational fisheries by discouraging and
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development which will adversely affect
coastal and estuarine waters and by
allawmg only water dependent
development near these productive waters
and to require protective measures for
three uses during development and
construction.
2. POLICY: To support expansion of the
Town's sport and commercial fisheries
industries through encouraging public and
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private projects and safe channel and inlet
dredging and stabilization.
OC.
Physical Constraints to Development
1. POLICY: To discourage growth in
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areas with soils that are unsuitable for
septic tank usage and where there are no
sewer services.
Q2.
POLICY: To encourage new
development to use the Town's sewer
system to discourage the use of package
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treatment plants.
D. Provision of Services to Develop
O1.
POLICY: To continue to cooperate
with Onslow County m the provision of
Owater
services to developing areas.
2. POLICY: To continue to provide
sewage treatment services to developing
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areas if capacity is available and cost is
absorbed by the users or developer.
(� 3. POLICY: To continue to ensure that
(� adequate solid waste disposal service is
provided to Town residents.
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Not fully implemented.
Ongoing concern.
Ongoing concern.
Ongoing concern.
Ongoing concern.
Ongoing concern.
Ongoing concern.
Ongoing concern.

4. POLICY: To ensure that the
transportation system is adequate to
support development without adversely
affecting its service capacity.
5. POLICY: To review ingress and
egress plans for all news commercial and
major residential development located on
major corridors.
6. POLICY: To request NCDOT to
install a traffic signal at NC24 and
SR.1509.
Ongoing concern.
Done.
Done.
7. POLICY: To revise the sign ordinance Done by State regulation changes and Town
to include the ETJ and to severely regulate zoning ordinance.
the placement and size of visually
distracting signs along major corridors.
8. POLICY: To support the
reconstruction and widening of the White
Oak River Bridge (NC 24) and to try to
get this project added to the NCDOT Ten
Year Work Plan
9. POLICY: To encourage innovative
approaches to increase parking and/or
usage thereof in the downtown area
without negative impacts upon the Town's
character.
10. POLICY. To continue to workwith
Onslow County to provide fire protection
and rescue services through volunteer
departments.
11. POLICY: To continue to provide
police services as needed to Town
residents and to work with the Onslow
County Sheriff's Department in the ETJ.
12. POLICY: To continue to provide
recreation facilities to residents and to seek
ways of improving these facilities.
Done, added to DOT ten year plan.
Not implemented.
Ongoing concern.
Ongoing concern.
Ongoing concern.
13. POLICY: To consider improving Done, Grant received for town dock, need
existing water access points especially ramp or ladder at dock. No funds for parking.
downtown and to support pursuing a grant
to study shoreline improvements.
III. Economic and Community Development

DA.
General Land Use Policy
1. POLICY: To encourage new development
Ongoing Concern.
provided it is in keeping with the character
of Swansboro and consistent with other
o
relevant land use policies and all local land
use regulations.
B. Residential Development
0
1. POLICY: To encourage the
Done.
maintenance of existing residential areas
D
and to ensure that new development is
compatible with existing residential scale
and density via zoning and other land use
oregulatory
ordinances.
C. Commercial Development
0
1. POLICY: To encourage the continued
Ongoing concern.
revitalization of existing structures and
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location of new small scale business in the
Central Business District
(CBD).
2. POLICY: To seek improvements to
Ongoing concern (See D 13)
(�
and better usage of parking and water
access points in the CBD.
3. POLICY: To encourage Highway 24
Ongoing concern.
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commercial development to keep with
existing scale, to minimize negative
impacts on the transportation system and
not to encroach on existing or planned
residential areas.
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4. POLICY: To encourage only industry
Ongoing concern.
that keeps with the existing scale and
character of the community i.e. small or
medium scale "clean" industry.
5. POLICY: To promote and encourage
Ongoing concern, three bed and breakfast were
tourism via encouraging development of
built, need a motel, more signage.
an overnight lodging facility and tourist
information packets/signage.
6. POLICY: To encourage preservation
Ongoing concern.
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of the historic scale, mass, height and
populations density of the history district.
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III

APPENDIX II
CITIZEN PARTICIPATION PLAN AND
RESULTS OF
S WANS B ORO CITIZEN
SURVEY

Town of Swansboro
1990 Land Use Plan Update
(� Public Participation Plan
(� The Town of Swansboro Planning Board and Ken Weeden
uAssociates met on Tuesday, November28, 1989. The following
Public Participation Plan was agreed upon at that time:
U The Town of Swansboro Planning Board will conduct
U public monthly meetings. Progress reports on the 1990 Land
Use Plan Update are to be discussed at these meetings.
The Town of Swansboro Planning Board Planning Board
will ensure that all public meetings are advertized in the
n local newspaper(s).(Tideland News, Jacksonville Daily News)
uand/on the public service announcements on local television
and radio stations.
Q The Town of Swansboro Planning Board will conduct two.
(2) public information meetings. The first meeting is to be
held near the beginning of the planning process, while the
second is to be held after a draft report of policies and
classifications has been prepared.
. The Town of Swansboro will solicit public opinions
through the use of a questionaire. The Town of Swansboro
Town Council will make a public announcement encouraging public
response to the survey before it is delivered. The survey
will be mailed with the water bills to residents within
the city limits,and will be hand delivered to residents
within the extra territorial jurisdictibn• (ETJ).
This Public participation *Plan was designed to involve,
inform and educate the greatest number of residents possible.
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Tideland News, January 24,1990, Swansboro, N.C.-P
Swansboro official sa s land use plan update Will-, helptown's rowthSwa � p p g
(Continued from front page)
"Together, these plans form, in
essence, the state's coastal land use
plan," he said
"The plan itself was developed to
address issues regarding land use,
increasing development and the
need for growth management in the
coastal areas."
All those questions, as required
by law. will be answered in the
Swansboro plan, according to
Price. However, he said the update
will go beyond the mere required,
limits.
"We're going to make the docu
ment considerably more compre-
hensive," Price said. "Along plan-
: ning terms, it will be called a
'comprehensive plan: "
This will include future traffic
patterns, expansion of roads,
eco-nomic material and data, utilities
systems — "all aspects for the
town of Swansboro, projecting
what we foresee in the next five-
year period," Price said.
A critical component in this
planning process will be a citizens
% survey seeking input on various is.
sues.
ti Other thoughts and ideas will be
solicited from citizens at public
hearings and meetings. .
ra Citizen input is critical, accord-
ing to Price, if the plan is to be
comprehensive. And it must be all.
f, encompassing if it is to accomplish
the goal he has in mind. That goal
is for the plan to set a foundation
for the board of commissioners io
use in determining goals for the
town.
"This is going to set the hamf-
work ... for future policy," Price
said.
Total cost of the project is
$11,250, according to the admin' -
trator. This is being funded throu
a $9.000 CAMA grant. Swansbo
must then put up $1,125 in ca
and another $1.125 in staff and pe
sonnel time.
The update process was officiall
underway as of Oct. 1, howeve
work did not actually begin unti
the middle of November.
"What we are doing ... is makin
maximum use of the funds that ar
going to be made available for this
project," Price said "We will be in-
cluding a lot of information ... that,
typically in a land use plan update,
would be left out."
Necessity
Weeden said the plans and sub{
sequent updates were viewed as es
sential in the planning for growth
along the North Carolina coast.
"Growth management was
viewed as necessary because of the
increasing desirability of the coas-
tal areas as a residential area, the
big attraction of tourism ... and a
need to balance this growth and at-
traction with some concern to
maintaining the integrity of this
very sensitive environment,"
Weeden said
Through growth, there is great
potential for environmental
degradation.
The plans are supposed to help
strike a balance by having policies
that address a number of develop-
ment issues and environmental con-
cerns," he said.
Periodic updating gives the town
a chance to assess what impact the
previous plan -his had and to ro-
assess trends in the area
Changes in population, un-
expected land development, impact
of water and sewer and many other
factors which affect growth, are all„
considered.
Understanding these trends will
help determine whether the policies
need to be reviewed or revised in
light of the "newly emerging "In the proper sense, subdivision
trends." controls • and 'zoning ordinances
"'Ilse state gives a local govem- should be based upon a land use
ments flexibility within its plan," Weeden said
guidelines to develop its own plan," I ,
Weeden said. .% That's where a plan directly
Obviously, the town benefits by benefits a town. It is also an area
having some written guidelines and which requires a lot of citizen in -
policies regarding growth and de- puL
velopment, according to the plan- '' • "Swansboro plans to. have. a
ner. series of public meetings .„ and a
"As far as ... development is con-
cerned, it can help the town gel4• n
where it wants to Eu n d use,
he said'
Weeder stressedW that the plan '
and its updates are "just a plan. -
"It does not have the regulatory teeth, a to speak, like a zoning or-
dinance • '
dinanwould have." Swansboro's''
It is important, then, for the town
to establish its regulatory controls
to work ;n conjunction with the plan. Ppdating
C
By J.S. WILLIAMS JR.
twsu...waw
Swansboro's land use plan up-
date will do more than satisfy a
state requirement, it will be a
blueprint for the future of the town.
Bill Price, town administrator,
said the update, required every five
years of local governments in the
spate's 20 coastal counties, will be a
comprehensive planning tool.
"Many land use plans are done
Limply for the process of meeting
Mate requirements," Price said last
week.
citizen questionnaire," the planner
said This will "give citizens a
chance to voice their concerns."
As land use plans go, Swansboro
has high expectations.•
But, because, as Weeden says,
the plan is "designed to prepare a
local government for the future;
the town should be in excellent
position to anticipate what is to
come once the update is complete.
plan
to begin,
"Ours is ... going to be something
that the daily staff, the various
boards of the town ... and also other
organizations and groups ... will be
able to use."
Ken Weeden and Associates, a
Wilmington 'planning firm, has
been hired by the town to prepare
the update.
Weeden said the document is re-
quired of the local governments in
the coastal counties by the Coastal
Area Management Act (CAMA).
(See SWANSBORO, page 9) /

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Swansboro
Land use plan to be discussed
By J.S. WILLIAMS JR.
1JNt1a NM VMW
Swansboro residents will be
given an opportunity to comment
on the town's direction in growth.
As part of the updating process
of Swansboro's land use plan, r.4-
dents am invited to attend an in-
formation meeting on Aug. 28.
Land use plans are required of
local governnmonts in the state's 20
coastal counties as prescribed by
the Coastal Area Management Act.
The plans must be updated every
Ave years or so.
Using a guide for development,
the plan takes into account cham-
twistics of the region and suggests
directions for municipal planning
and growth.
Swmuboro put together its tint
land use plan in 1976. It was up-
dated in 1980 and again in 1986.
According to information sup -
piled by Ken Wooden and Associa.
tn. the Wilmington firm handling
Swansboro's update. the process is
needed "to identify and analyze
newly emerging community issues
and problems,"
Also, updating the land use plan
allows officials and residents an
opportunity to "ro-oxamino the ex-
isting policies and to decided
whether those policies have boon
effective and whether they should
be continued or changed"
According to Bill Price, town ad-
ministrator, citizen input on the up-
date is appropriate at the public
meeting planned for Aug, 28. That
meeting will coincide with the reg.
War meeting of Swansboro Plan-
ning and Zoning Board which be.
gins at 7:30 p.m.
"Ultimately. ' they (planning
board members) will get that input
and make recommendations" con -
coming changes to the update, he
said.
Once any changes are consider-
4 the update will be passed on to
Swansboro Board of Com.
missioners, which will than set a
public hearing "prior to acceptance
and approval of the land use plan,"
Price Maid.
Keith Lankford, a planner with
Wooden, said putting the proposal
together has involved an updating
of the town's "data base."
(See LAND, page 3)
Public forum is scheduled*
(Continued from front page)
This includes population projec-
tions, economic analysis and
determining existing land uses.
It is the latter item, land use, that
most often brings about comment
from the public.
"Vito went around the town and
the ' ETJ (extraterritorial jurisdic-
don); Lankfacd said. "We marked
every lot in the town and the ETJ ...
as to what was on that property.
"Iva protiy much the same classi-
fication as it was in the 1986 plan
although this 1990 plan is going to
show some areas as moving from
transitional to devoloped."
Lankford said oyster Bay Estates
is an example of an area that is bee.
oming developed.
"It's moving toward increasingly
high densities," he said. "There are
several other area that am moving
toward development." ,
While the plans are generally
considered guides, labols applied to
property do bring cortain rogula.
Lions.
For example, in 1985 one B77
resident complained' because his
property was _labeled "conserva-
don."
Under that label, the homeowner
said he would have faced severe
restrictions in attempting to rebuild
his home should it be destroyed for
some reason.
Property owners will be able to
obtain a copy of the proposed up-
date at Swansboro Town Hall on
Monday. according to Lenldord.
"We'll also have maps available
for public inspection at town hall."
he
Comments from cidrans as well
as from town officials will, be
sought at the Aug. 28 mooting.
"We're going to be incorpor�sting
those commons: into the draft
plan." Lankford said.
0
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Survey Responses
f1
Swansboro Citizen Survey
�1
1990 Land Use Plan Update
A total of 800 survey forms were distributed for the Swansboro Citizen Survey which was
O
conducted as a part of the Town's 1990 Land Use Plan Update. Niney-eight completed survey
forms were returned to the Town for a response rate of 12.25 percent. This is a good response
rate for such a survey. The responses to the survey questions are discussed in the following
(�
pages.
U
1. Where do you live in the Swansboro area?
(�
Within city limits Outside city limits
U
73 (74.5 percent) of the 98 lived within the Town limits
Q
25 (25.5 percent) of the 98 lived in the extraterritorial jurisdiction.
2. What do you feel is the most critical traffic hazard on NC 24?
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a.
b.
The responses to this question were as follows:
(It was possible to give more than one response to
0
this question).
Main Street intersection 15
ending of four lanes 15
O
Front Street intersection 13
speeding 11
Church Street intersction 9
O
Main Street Extention intersection 9
all intersections 9
access to/from Pak a Sak 7
O
access to/from businesses 7
military convoys 6
excessive traffic 5
school traffic 6 (15)
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school traffic at Main Street
Extension 4
speed limit too slow (35 mph min.
O
except for school hours) 3
complaints about police driving 3
traffic light at Hardee's
0
(Hammock's Road) 3
school traffic at Norris Road 3
all downtown street intersections 3
possibly 1509 intersection (once
O
new high school is built) 2
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possibly new fire station
intersection 2
Broad and Shore Streets
intersection 2
Sabiston Drive intersection 2
Post Office area 2
summer traffic from side streets 2
all left turns 1
Elm Street intersection 1
too many driveway cuts (i.e. - one
stopshopping places) 1
access from west side of NC 24 1
need traffic light on NC 24 1
width of lanes 1
dead end street by Waterway Realty 1
no answer 1
3. Do you feel multi -family or condominium development is appropriate or
desirable for our Town?
Yes No
52 (53.1 percent) of the 98 disapproved of such development.
46 (46.9 percent) of the 98 desired multi -family or condominium
development or felt that it was appropriate for the Town of Swansboro.
4. If these developments are appropriate or desirable, where should they be
allowed? (e.g., inside Town limits, only in ETJ; adjacent to commercial
areas, etc.).
39 (39.8 percent) of the 98 gave no response to this question.
21(21.4 percent) of the 98 said that these developments should be only in
the ETJ.
13 (13.3 percent) of the 98 said that these developments should be only in
areas adjacent to commercial areas.
13 (13.3 percent) of the 98 said that these developments should be built
wherever it was appropriate, (where existing zoning permitted, where there
was adequate land with good soils, or where land owners wanted to build,
etc..).
6 (6.1 percent) of the 98 said that these develoments should only be
constructed in areas adjacent to commercial areas which are in the ETJ (both
conditions).
3 (3.1 percent) of the 98 said that these developments should not be
permitted anywhere within Swansboro's jurisdiction.
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5.
1.1
7.
2 (2.0 percent) of the 98 said that these developments should be allowed
within the Town limits on (so as to increase the tax base).
1 (1.0 percent) of the 98 said that these developments should be allowed
anywhere except for on the water front or within the historic district.
Of the 39 persons who did not answer this question only eight had
answered yes to question #3 (desired this type of development).
Should the current height limitation of 35 feet be changed to allow for high
rise construction?
Yes No
68 (69.4 percent) of the 98 said that the height limitations should not be
changed.
26 (26.5 percent) of the 98 said that the height limitation should be changed
to allow for high rise construction.
2 (2.0 percent) of the 98 said they did not know whether or not the height
limit should be changed.
2 (2.0 percent) of the 98 gave no response to this question.
Do you think that Swansboro should actively recruit industrial
development?
Yes No
58 (59.2 percent) of the 98 said that the Town of Swansboro should
actively recruit industrial development.
39 (39.8 percent) of the 98 said that the Town of Swansboro should not
actively recruit industrial development.
1 (1.0 percent) of the 98 gave no response to this question.
Are you generally satisfied with the level and delivery of services offered by
our Town?
Yes No
63 (64.3 percent) of the 98 were satisfied wtih the general level and delivery
of services that are offered by the Town.
31(31.6 percent) of the 98 were not satisfied with the general level and
delivery of services that are offered by the Town.
2 (2.0 percent) of the 98 said both yes and no implying that they were
satisfied with some services and not satisfied with others.
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2 (2.0 percent) of the 98 gave no response to this question.
What facilities or services need change or improvement, or what additional
services would you like to see?
a.
road repair and paving
20
no answer
18
improve water system
14
price of water
13
need more stores
11
improve sewer system
8
need more recreation areas
7
taxes too high
police
5
needs of elderly
4
conflict among council members
4
need more parking
3
library
3
need recycling center
3
need pickup of yard debris
3
price of sewer
3
none
2
need hotel or motel
2
garbage fees
2
need for public transportation
2
expand sewer into ETJ
2
animal control
2
Town hall
2
schools
2
mail delivery
2
Town beautification
2
notify customers before
cutting off water
2
need for new police station
1
improve general service
1
remove abandoned cars
1
improve sidewalk system
1
reduce speed limit
1
need for non emergency
police number (already exist
needs publicizing)
1
need a marketing effort
for the Townes business
district
1
need for street sweeper
1
decrease Town staff
1
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need for western union
1
Q
need for downtown grocery
store
1
increase patrols of county
police in the area
1
need to work with businesses
1
decrease the number of police
officers
1
0
need better preparation for
snow handling
1
ETJ needs representation
1
need for ordinance to ensure
new construction "fits"
existing area
1
need "back door" road to
stores to avoid NC 24
1
8. Do you feel our Town should annex those areas currently receiving Town
a
sewer services?
Yes No
70 (71.4 percent) of the 98 said that the Town of Swansboro should annex
those areas which are currently receiving town sewer services.
21(21.4 percent) of the 98 said that the Town of Swansboro should not
annex those areas which are currently receiving town sewer services.
7 (7.1 percent) of the 98 gave no response to this question.
9. Should Swansboro promote or work to attract additional tourism?
Yes No
65 (66.3 percent) of the 98 said that the Town should try to attract additional
tourism.
29 (29.6 percent) of the 98 said that the Town should not try to attract
additional tourism.
3 (3.1 percent) of the 98 gave no response to this question.
1 (1.0 percent) of the 98 said both yes and no -implying that they thought
that the Town should attract additional tourism but with reasonable
limitations.
If yes, suggest some means our Town should use.
a.
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no answer
advertise
build a hotel or motel
build boat facilities
need more shops
build a fishing pier
need more parking
need more restaurants
promote Mullet Festival
build a boardwalk
revitalize waterfront
downtown revitalization
beautification of Town
upgrade park and recreational
area
change attitudes toward
tourism
need consistency in new
development
preserve historic district
better coordination of
chambers of commerce
need one way streets
eliminate alcohol
billboards
build welcome center
establish citizen task force
on tourism
promote fishing tournament
promote arts and crafts shows
establish tours of Town
develop a tourism plan
develop the planned golf
course
stop police excesses
against tourism
be a friendly Town
limit growth
prevent high rise waterfront
development
improve Bogue Inlet
expand historic district
establish boat tours
encourage waterfront
development
print and distribute maps
and brochures
add a ladder to Town dock
(for land access)
establish gambling
establish a nursing home
95
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20
14
10
8
6
6
5
4
4
4
3
3
3
2
2
2
2
2
2
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11.
place Town brochures at
State welcome centers 1
present efforts are
sufficient 1
Do you believe our Town should take steps to exercise more control over
development?
Yes No
57 (58.2 percent) of the 98 said that the Town of Swansboro should take
steps to exercise more control over development.
32 (32.7 percent) of the 98 said that the Town of Swansboro should not
take steps to exercise more control over development.
9 (9.2 percent) of the 98 gave no response to this question.
In your opinion, what will be the most critical problems facing Swansboro
over the next 10 years?
a.
b.
C.
meeting demand for water
35
meeting demand for sewer
26
controlling growth
21
conflict among council members
21
excessive traffic
14
street conditions
13
parking
8
schools
8
no answer
7
pollution spoiling envirnoment
7
taxes too high
6
street paving
5
meeting all utility demands
5
need for more growth
5
need for jobs to keep youth
from moving away
5
need to widen NC 24
4
need to keep small town
atmosphere
4
lack of year round employment
3
water pollution
3
garbage collection
3
out of town investors
2
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deteriorating homes downtown 2
overcrowding of housing -trailer
parks 2
housing 2
lack of industry 2
need for more annexation 2
water access 2
lack of concern for youth 2
need for fishing piers 1
need for river front walkway 1
need more revenues for Town
improvments 1
need for improved police force 1
vacant houses in Town due to
decline in size of Camp Lejeune 1
decline in business due to
decline in size of Camp Lejeune 1
need to make Front Street one way 1
industrial waste in river 1
water and sewer 1
abandoned cars, etc... in yards 1
need more control over animals 1
need better senior citizen care 1
need better maintainance of
services 1
need more diversified stores
downtown 1
need to preserve historic district 1
need for youth recreational
facilities 1
overspending 1
too many car lots 1
need 24 bypass l
need ordinance to ensure new
construction blends with
existing area 1
passible damage to Bicentennial
Park from 24 widening 1
need for a "back door" street to
avoid NC 24 1
Thank you for taking the time to answer this questionnaire. Please feel free to submit any
additional comments you may have.
97

OTHER COMMENTS
no answer
conflict among council members
control growth
need more industry
decrease duck population
need public meetings to increase
tourism
thanks for new firehouse
make Water and Elm Streets one way
open Town hall on Saturdays so
municipal bills may be paid
allow business on ground floor and
residence above
establish an elected development
board
build a community building for
youth and seniors
build a dance pavilion over water
change Town motto
improve level of education
sell old elementary school to
hi -tech industry
develop more defined zoning
don't reroute NC 24 onto Walnut
Street
need to lower business hook up fees
need NC 24 bypass, not widening
need aid for hearing impaired at
public meetings
need recycling program
need ornamental trees in park
(i.e. dogwood, etc.)
help young people
change attitude toward tourism
have home delivery of mail
to decrease traffic on Main
Street
need more attention to residents,
less to tourist
need picnic area in historic
district
keep small town atmosphere
protect historic district
need more development
offer to help (volunteer)
comment of feeling safe and
enjoying the Town
need pick up of yard debris
comment of improved police service
54
5
4
3
2
2
2
1

to
need to limit non -official
meetings of council members 1
revitalize downtown 1
comment of anger toward loss
a
of shopping center 1
police are too hard on tourist 1
a
need for better efficiency in
government 1
don't overextend services 1
problem with traffic congestion
near Post Office 1
a
thanks for having survey 1
change Town's name 1
need "Children at Play" sign at
Phillips and Pineland Streets 1
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APPENDIX III
0 ASSESSMENT OF TIC THOROUGHFARE PLAN
a FOR THE TOWN OF SWANSBORO ON EXISTING
LAND USES, FUTURE LAND USES AND ZONING
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THOROUGHFARE PLAN
The North Carolina Department of Transportation has developed a thoroughfare plan for the
Town of Swansboro. This is the first such plan prepared for Swansboro and was published in
February, 1990. This plan is comprised of eleven projections. The analysis of these eleven
proposed projects is only a preliminary assessment of the projects.
Five of these projects are to widen existing roadways to two twelve foot lanes and four foot
paved shoulders. These projects are secondary routes 1444, 1445, 1447, 1448, and a section of
1512 (from NC 24 to secondary route 1447). These routes may be expanded within their existing
rights -of -way and therefore will not directly affect adjacent land uses by displacing structures or
reducing setbacks.
These projects are merely improvements to existing roadways and as such they should not
create additional traffic. Instead these projects should increase the efficiency of the existing traffic
flow on these roads. Additionally, these improvements should enable these roads to better meet
future traffic needs.
O These proposed road improvements should not impact heavily upon the validity of the existing
zoning adjacent to these five proposed projects. Since these five projects are only improvements
to existing roads, there should not be any additional development pressure on the adjacent land
0 areas. The NC Department of Transportation foresees no measurable environmental impacts of
these projects.
A sixth project involves the widening of a section of secondary route 1512 to three lanes from
a SR 1411 to NC24. This widening will not require additional right-of-way and therefore will not
displace or infringe upon any existing land uses. Again, this project is being proposed to increase
the efficiency of the traffic flow through this area and to better meet the future transportation needs
of this portion of Swansboro.
This three-laning of an existing two lane road should result in a moderate increase in the
Q pressure to develop land between Seashore Drive and SR 1511. Currently this portion of the
existing roadway is unpaved and as such acts as a deterrent to development. Paving of this road
section may open up adjacent land areas to residential development. Land areas further to the west
of SR 1511 and southward toward Hammocks Beach may also be opened up for residential
0 development.
The North Carolina Department of Transportation foresees no environmental impact from this
0 project. They do, however, view this proposed project as having the greatest potential for
economic development impacts of the eleven proposed projects. This increased pressure on
development could possible result in a need to rezone all or part of the adjacent land areas.
Currently, the majority of this area is zoned R/A or Residential -Agricultural and very low density
residual uses. This area will probably require rezoning to permit more intense, denser residential
and perhaps some commercial development.
(� Two other projects involve the four laving of existing two lane roads. These roads are
(� secondary route 1509 and 1511. Each of these projects will require the acquisition of additional
right-of-way. This additional right of way will probably be only ten feet wide and therefore will
aprobably not displace any existing land uses.
101
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The North Carolina Department of Transportation foresees no notable environmental impacts
from these projects. They do, however, see significant potential for economic development from
these two proposed projects. The widening of SR 1511 is predicted to create slightly more
development pressure than the widening of SR 1509 and slightly less than the widening of SR
1512.
The four laving of SR 1511 is predicted to improve access to the Hammocks Beach area.
This area is being considered for the development of 850 units on 475 acres. Some waterfront lots
have already (1990) been cleared and sold. This improved access is predicted to open up that area
to development which will probably necessitate a change in the zoning ordinance to allow for more
dense residential and probably commercial development.
The ninth proposed project is the widening to five lanes of NC 24 from Church Street across
the White Oak River. Currently, the five lane NC 24 narrows to four lanes at Church Street then
narrows again to two lanes at Elm Street and has a two lane bridge across the White Oak River. It
may become necessary to increase the existing right of way for this project which may result in the
displacement of existing land uses. If additional right of way is required, as many as sixteen lots
may be affected.
This project is being proposed to correct an existing traffic problem. This section of NC 24
from Church Street to the White Oak River Bridge is the only road section in Swansboro's
jurisdiction that is already exceeding its designed capacity.
The Department of Transportation expects this project to have some minor negative impacts on
the environment. In particular, some additional estuarine shoreline will be affected by the
construction of a secondary two lane bridge across the White Oak River. They predict some
moderate economic development to result from this proposed project.
This economic development may result from the improved accessibility or more clearly stated
by the elimination of the existing traffic congestion problem. Most of the lots in this area are at
their highest or optimal land use, but a few residential uses in this area may be converted to
commercial uses as this location becomes more attractive. It should be noted that this area is
currently scheduled to be widened to four lanes in the State's 1990-1996 Transportation
Improvement Program. Three previously vacant lots on the north side of NC 24 are currently
being developed, perhaps in anticipation of this widening. Because the lots in this area are already
at their optimal use, it is improvable that there will be a need to modify the existing zoning of this
area.
Another major project would be the construction of the Deer Island Crosstown Connector
which would link a series of existing secondary routes (SR) and lcoal streets with sections of
proposed new roads. The existing roads are SR 1509, SR 1514, Swansboro Middle School Loop
Road, SR 513, Pineland Drive, Walnut Steet and Main Street. Almost one and a half mile (8,100
feet) of new road is proposed for this project.
This project will require the moving of two homes and the acquisition of two vacant lots at the
end of Pineland Drive. A sixy (60) foot right to way will be reuqired for this project which shall
be two, twelve foot lanes with four foot paved shoulders.
The Department of Transportation indicates that this project would have sigrufiant negative
impacts upon the environment. Most of these negative impacts would result from the need to crass
102

( Hawkins Creek for a distance of 150 feet This would result in the disurbance of a portion of the
j estuarine shoreline as well as some wetlands. There are also some wetlands in the upper portion of
the proposed Deer Island Crosstown Connector that will be disturbed.
U The Department of Transportation predicts that this project would have a moderate impact on
economic development. This ec000mic development may not be favorable. If the road serves the
purpose for which it was designed, (i.e., move traffic from the neighborhoods across Town
owithout getting onto NC 24) it may have adverse affects on the adjacent land uses.
The increased traffic may result in a decline in the local neightborhood's quality of life due to
a noise, pollution and safety hazards. It would also create pressure for the conversion of residential
land uses to commercial land uses. This would be especially true for corner lots at major
intersections with secondary routes 1511, 1512, 1513 and 1514,. It is possible that this project
O could result in a further splitting of the Town just as some say NC 24 has done. This project has
been rejected from further consideration by the Town Planning Board.
The final and largest poroposecd roadway would be the NC 24 Bypass. This road would
(� relieve an estimated sixty (60) percent of the traffic from NC 24 Business and carry it north of
U Town passing between Oyster Bay and River Beach, then across the White Oak River. This road
would require the relocation or removal of as many as six existing single famly homes and three
Q mobile homes. The road is planned to pass along the northern border of Sanders Little League
Field. The use of the ballfield may suffer due to negative affects of a major road being located
adjacent to it
o The Department of Transportation views this project as the most harmful to the environment
This is partially because the entire roadway will be new construction, but also because it will
disturb wetlands and a portion of the estuarine shorline. They also predict that this project will
have a moderate economic development impact
While concern has been expressed about businesses within Town being hurt by the loss of
n drive -by traffic, there is also the possibility that new bussnnesses will be established along the
U bypass route.. The widening of NC 24 from Fayetteville to Morehead City may result in a general
increase in traffic which would provide for the survivablity of business in both Town and along the
O bypass.
There is likely to be more residential development along the bypass especially near existing
housing clusters like Oyster Bay and those found along River Road, and Norris Road. This
development pressure,along with that of new business, may result in a need to modify the existing
zoning in the adjacent land areas to permit more intense land uses.
�71-
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APPENDIX IV
N.C. NATURAL HERITAGE PROGRAM AND
PLANT CONSERVATION PROGRAM
ELEMENT LIST
104

N.C. Natural Heritage Program and Plant Conservation Program Element List
E = Endangered T = Threatened SR = Significantly Rare SC = Special Concern
UNK = Undetermined C = Candidate
Scientific and Common Names
Felis Concolor
Panther (Mountain Lion)
Picoides Borealis
Red -Cockaded Woodpecker
Alligator Mississippiensis
American Alligator
Caretm Caretm
Loggerhead
Chelonia Mydas
Green Turtle
Neotoma Floridana Floridan
Eastern Woodrat
Crotalus Adamanteus
Eastern Diamondback Ratdesnake
Himantopus Mexicanus
Black -Necked Stilt
Laterallus Jamaicensis
Black Rail
Ammodramus Henslowii
Henslow's Sparrow
Porphyrvla Mar6nica
Purple GaMnule
Ursus Americanus
Black Bear
Hesperia Meskei
Meske's Skipper
Satyrium Kingi
King's Haristreak
ANIMALS
State Classification
E
E
T
T
T
T
SR
SR
SR
SR
SR
SR
SR
SR
105

Procambarus Plumimanus
A crayfish
Ophisaurus Mimicus
Mimic Glass Lizard
Hypsoblennius Ionthas
Freckled Blenny
Calephelis Virginiensis
Little Metalmark
Megathymus Yuccae
Giant Yucca Skipper
Poanes Viat:or
Broad -Winged Skipper
Asplenium Heteroresiliens
Carolina Spleenwort
Calamoviifa Brevipiiis
Pinebarrens Sandreed
Cystopteris Tennesseensis
Tennessee Bladder -Fern
Solidago Verna
Spring -Flowering Goldenrod
Lysimachia Asperulifoha
Rough -Leaf L.00sestrife
Parnassua Carolinian
Carolina Grass -Of -Parnassus
Thalictium Cooleyi
Cooley's Meadowrue
Amaranthus Pumilus
Seabeach Amaranth
Platanthera Integra
Yellow Fringeless Orchid
Rhexia Aristosa
Awned Meadow -Beauty
PLANTS
IFO
SC
SC
SC
UNK
UNK
UNK
E
E
E
E
E
E
E
T
T
T

Sporobolus Teretifolius
Wireleaf Dropseed
T
Cacalia Ovata
Savanna Indian -Plantain
SR
Cyperus Tetragonus
Four-Angeled Flatsedge
SR
Dionaea Muscipula
Venus Flytrap
SR
Eleocharis Cellulosa
Gulfcoat Spikerush
SR
Halodule Beaudettei
Beaudette's Shoalweed
SR
Litsea Aes&ahs
Pondspice
SR
Ludwigia Alata
Winged Seedbox
SR
Peltandra Sagittifolia
Spoonflower
SR
Rhynchospora Tracyi
Tracy's Beakrush
SR
Xyns Brevifolia
Short -Leaved Yellow -Eyed Grass
SR
Xyris EHiottii
Elliott's Yellow -Eyed Grass
SR
Agalinis Aphylla
Scale -Leaf Gerardia
C
Amphicarpum Purshii
Goober Grass
C
Asclepias Pedicellata
Stalked Milkweed
C
Lobelia Boykinii
Boykin's Lobelia
C
Sageretia Minutiflom
Small -Flowered Buckthorn
C
107

Solidago Pulchra
Carolina Goldenrod
Sphagnum Fitzgeraldii
Fitzgerald's Peatrnoss
108
A
A

THE PREPARATION OF THIS MAP 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 :972, AS
AMENDED, WH:-H IS ADN'.4-4ISTERED BY THE OFFICE OF OCEAN AND COASTAL
RESOURCE MANAGEMENT, k�.,..A.A.
O
v
LAND USES
SINGLE FAMILY RESIDENTIAL
MOBILE HOME RESIDENTIAL
y�
SCa'_E ar FEEI
1975
1 I
i
i
Nap apdated: 6 / 60
Sevres: 08c1e9 Ceaaty tai maps
. Is
KWA Ken Weeden & Associates - Planning Consu tents
1994 Eastwood Road, Wilminr,ton, Norti. Carolina 28403

LAND CLASSIFICATIONS
DEVELOPED
® URBAN TRANSITION
*SEE NOTE
BELOW CONSERVATION
--•---'- E.J.T• BOUNDARY
ONSWUNEW--- - TOWN LIMITS
*NOTE: ALL AEC'S ARE, BY STATUTE, CLASSIFIED
AS CONSERVATION. HOWEVER, THESE AREAS
SHOULD BE DETERMINED ON A SITE BY SITE
BASIS, AND ARE NOT DEPICTED ON THE LAND
CLASSIFICATION MAP.
1♦
�&algae: ��ham
',♦� • ♦ ��♦
ff
IN
Wi
a RIP
�
/�j�, � ♦ear . � t� � ��,�s o�.
'►w '+ PER A
Egg
IMP
1081
'�►'!� ��' �a � l��a► �'' IAEj
t
126.
i
04k
•
R��FR
ipWN u' ITleN
rS
THE PREPARATION OF THIS MAP WAS FINANCED IN FA;7 THROUGH A GRANT
PROVIDED BY THE NORTH CAROLINA COASTAL MANAGEMENT PROGRAM, THROUGH
FUNDS PROVIDED BY THE COASTAL ZONE MANAGEMENT ACT OF 1972, AS
AMENDE,, , WHICH IS. ADMINISTERED BY THE OFFICE OF OCEAN AND COASTAL
RESOURCE MANAGEtV.Z?:T . N.O.A. A.
A� MAP 10
1990 CAMA LAND CLASSIFICATION MAP
SWANSBORO
NORTH CAROLINA
p 400 ROO izuo *00
SCA_E IN FEEI
1975
Map updated: 6/98
Source: Onslor County to' maps
KWA Ken-Weeden & Associates - Planning Consultants
1994 Eastwood Road, Wilmington, North Carolina 28403