Land Use Plan Update-1980

TOWN CF SWANSBORO
LAND USE PLAN UPDATE
NCVEMBER, 1980
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

Prepared for...........................................Town of Swansboro
Mayor:
Linwood D. Williams
Commissioners:
Walter V. Bizzell
Andy D. Ennett
Mary S. Wood
Vernon H. Taylor
Town Clerk:
Patti Sue Chandler
Prepared by............................................Town PAministrator
& Planner:
Jack Di Sarno
Secretary:
Nancy C. Dameron (Typist)
Technical Assistance Provided by....... .... .........Onslow County Planning
Director:
Kenneth Windley
The preparation of this report Was financed, in part, through a grant
by the North Carolina Coastal Management Program, through funds provided by
the Coastal Zone Management Act of 1972, as amended, which is administered
by the Office of Coastal Zone Management, National Oceanic and Atmospheric
Administration.

TABLE OF CONTENT'S
I. Introduction........... .................................. 1
II. Existing Conditions .........................0. ........... 6
A. Population ............................................ 6
B. Economy...............................................11
C. Existing Land Use......................................13
D. Current Plans, Policies, and Regulations..............21
III. Constraints...............................................23
A. Land Suitability......................................23
1. Physical Limitations ............................. — 23
a. Flood Hazards.................................23
Flood Hazard Map..............................24
b. Soil Limitations ...................... .......25
General Soil Map........ ........ oo— ... — .26
cf Water Supply...... ..........................28
d. Fragile Areas... .............. o ..... o ......... 29
B. Community Facilities...... .........................— 31
1. Water System......................................31
2. Sanitary Sewer System ................... o - ......33
3. Streets and Street Lighting System., .... o ......... 36
a. Traffic Control Devices .......................36
b. Curb and Gutter...............................36
4., Firefighting Facilities..... .....................37
5. Recreation Facilities... ........ o o ....... — .37
6. Schools ... ........................................ 38
IV. Estimated Demand..........................................40
A. Population............................................40

B. Economy .................................. ............... 42
C. Community Facilities....................................43
V. Future Land Needs...........................................47
VI. Policy Statements and Implementation Methods................48
1. Resource Protection.....................................48
2. Resource Protection Issues..............................57
3. Resource Production and Management ......................59
4. Economic and Comn=ity Development ......................62
A. Implementation Methods..............................65
5. Continuing Public Participation .........................66
VII. Town -County Coordination....................................68
Appendix: State and Federal Land Use Regulations.................70

I. INTRODUMON
Throughout this document the terms "land use plan" and "land use
element" may be used interchangeably. The Town of Swansboro is attempt-
ing to integrate all comamity planning documents into a Camprehensive
Ccm amity Plan. In this approach the various individual planning docu-
wants are labeled "elements", that is elements of the omprehensive plan.
This does not mean that the Town must possess an element to regulate
every conceivable physical problem, it does however, indicate that the
individual documents will be written so that they are consistent with each
other. Further, the elements should utilize uniform terminology where
this is possible, and the various elements should be placed in a single
loose-leaf system.1 Placing the various elements in a single loose-leaf
system should encourage consistency, if local employees, officials, and
consultants utilize the comprehensive approach. The courts have also
indicated that local land use regulatory programs are more legitimate
when they are part of a comprehensive planning process.
The land use element is the foundation of the community planning
process. Although North Carolina laws authorize many different local
community planning programs, it is noteworthy that land use planning is
the only program which is legally required.2 This prominence of the land
use element is also built into the Comprehensive Planning grant-in-aid
prcgram of the U. S. Department Iof Hcusing and Urban Development ("701 Pro-
gram"), and the planning grant program of the U. S. Office of Coastal Zone
Elements which are regulatory in nature, for example, zoning must also be
adopted in ordinance form and placed in the ordinance book. North Carolina
law imposes this requirement for the provisions to be enforceable in a
court of law.
kand use plans presently are only required in the twenty coastal counties,
however, the North Carolina General Assembly has considered expanding the
program to the remainder of the state. The North Carolina State Building
Code, although enforced locally, is a possible exception to this state,
if it is considered a land use program.
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Management. The Comprehensive Planning Program assigns the highest
funding priority to the preparation of local land use plans. and re-
quires local governments to complete their land use plans before asking
for funds for community facilities documents, transportation studies,
or other planning documents. The North Carolina Department of Natural
Resources and Commnity Development which administers the coastal pro-
grams in this state assigns the highest funding priority to land use
planning.
In 1915 largely in response to the legal requirements of the Coastal
Management Act of 1974, the Town of Swansboro prepared its first Land Use
Plan. This Plan analyzed existing land uses and encouraged preparation
for future orderly growth within the Town boundaries. Any analysis of
existing land uses and the establishment of the municipal land classifi-
cation system were two of the most important features. Another important
J
feature was the designation of interim areas of environmental concern.
These interim areas of environmental concern were offered special protec-
tion by state regulations regulating how these areas could .be developed.
Probably the single most important portion of this document was the
section dealing with land use issues goals and objectives. It was here
that the local co iunity had an opportunity to express its priorities
concerning the future development of Swansboro. Throughout the process,
citizens were given meaningful opportunity to participate in the develop-
ment of the Plan. Public hearings were conducted, a citizen questionnaire
was distributed, and a citizen advisory committee was formed to offer
advice and guidance in the development of the plan. Basically the same -
citizen.advisory procedures have been used in this Land Use Plan up -date.
In addition to designating areas of environmental concern, the Coastal
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Resources Commission and the Town of Swansboro have jointly established
a permit system -to ensure that the areas of environmental concern are
protected from inappropriate development. This permit system is described
in detail in a separate segment.of this document.
This Land Use Element should mesh or be consistent with the Onslow
County Land Use Plan, and should be used by the Town's people and the lo-
cal governing body as a reference tool for guiding future growth. The
element is not a perfect document. It should be refined and up -dated on
a regular periodic basis. The Swansboro Land Use Element is the most
basic planning tool available, and should serve as the foundation of the
entire community planning program.
The original Land Use Plan stated that Swansboro "is a very attractive
and inviting community endowed with a rich, cultural and historical heritage,
and enhanced by a pleasant natural environment". The Plan went on to say
that, "the forces of change have begun to exert themselves upon the Town,
and if not controlled properly, could result in substantial irreversible
damage to many of the valuable features of the Town". These forces of
change are still affecting the physical,social,and economic nature of
the Town. The widening of N.C. 24 Highway, the continuing popularity of
coastal development, and the continued importance of Camp LeJeune Marine
Corps Base are all factors which will contribute to the growth of the
Swansboro area. Completion of the Swansboro Municipal Wastewater Works
Project in 1980 removed a substantial barrier to future development. Prior
to the completion of this project the N.C. Division of Environmental Manage-
• ment had issued a moratorium on new wastewater service connections in the
Town. Problems associated with the national economy may tend to off -set
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these growth factors, however, the future situation.here is unclear.
The credit tightening policies of President Carter and the Federal
Reserve.Board will probably continue to act as a break on development
for the next year or two. The overall situation does indicate steady
and continued growth for the Swansboro area. In recent years iruch of
the growth in the Swansboro area has been just over the Town limits line
in the N.C. 24 corridor. The Town should carefully consider the need for
future annexation to accommodate -this growth.
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DATA COLLECTION AND ANALYSIS
A. Establishment of Information Base
A variety of information sources were used in the preparation of
this Land Use Element revision. With the exception of data dealing
with population, all data used was adequate or better than adequate.
Of course, the 1976 Land Use Plan, Existing Land Use Map, and Land
Classification Map were heavily relied upon. Where data in the 1976
Plan was questionable, it was tested. Other available planning docu-
ments, such as the Swansboro Area 201 Facilities Plan, Harbor of Re-
fuge Feasibility Study,, and other documents were also utilized. The
planner in charge conducted windshield surveys to gather information
concerning existing land uses. The records of the Building Inspector
were also examined, and the Mayor, Town Clerk, and other local citizens
were interviewed concerning land use compatibility and other matters.
Minerals in the Economy of North Carclina by the U. S. Bureau of Loans
was used to confirm the absence of important mineral resources within
the Town limits of Swansboro.
B. Statement of the Major Conclusion
The conclusion concerning the adequacy of the data base used for
the preparation of this report is that the data generally was adequate
to good. The only exception to this is the data concerning population.
The timing of the preparation of this report is a major problem here.
When the 1980 Census data is available, it should be examined, and if
gross errors in this report are found, the Land Use Element should be
revised accordingly.
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II. EXISTING CONDITIONS
A. Population
At the present time it is extremely difficult to estimate the current
population since the 1980 decennial census of population and housing is
underway. The Town should amend the Land Use Element to reflect the off-
icial figures when the information is available. The official 1970 actual
count population figure from the Census Bureau is 1207. The original Land
Use Plan stated, "recent estimates have placed the 1975 population at approx-
imately 1250 persons". The most recent population estimate currently avail-
able is for 1478, and shows a population for Swansboro of 1359. This is
an increase of 109 persons or 8.7% over a period from 1975 to 1978. When
examining population
trends in
towns as small as
Swansboro, one should de-
emphasize percentage
increases
and emphasize the
actual increase in the
number of persons.
An examination of population data froan 1930 through 1970 reveals that
growth was molest in Swansboro for three of the four decades, but very
rapid during one of these decades. This was the period froan 1950 to 1960,
when the Town leaped from a total of 559 persons to 1104 (a gain of 97.5%).
This expansion could have been due to a "spinoff effect" of growth from
Camp Le7eune, the nearby Marine base. During the 1940's thousands of
military personnel moved into the area to staff the base, consequently,
the populations of both Onslow, County and Swansboro Township (in which a
large part of the base lies) grew tremendously. Swansboro's rapid growth
a decade later could probably be linked to Camp LeJeune's "loom period",
for some persons connected with the* base probably began to move into the
Town as time progressed. The sixties saw Swansboro return to a slower
rate of growth, approximating the pace experienced prior to the fifties.
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At the present time thf- Town's population appears to be growing at a
very slow rate. During the past year approximately two residential build-
ings and one commercial building have been added. However, a private
developer is proposing to build approximately 54 residential units near
N. C. 24 in the general vicinity of Swansboro Heights. If annexed, this
development would increase the population of Swansboro considerably.
Migration rates calculated from 1960 and 1970 census, figures reinforce
the idea that Swansboro's population is stable. These statistics are based
on the assumption that a certain age group in 1960 (e.g. 25-34) compared
with itself ten years later (e.g. 35-44 in 1970) illustrate haw many persons
have moved into, or out of, the Town during the decade. If less than 100%
of the 1960 group are present in 1970, that particular group have generally
been characterized by out- nigration; if more than 100% are present, in
migration has been the trend. Of the seven age groups studied in Swansboro,
only one, the 5-14 1960 cohort showed a major decline. The other six
groups hovered very near 100%, averaging about 99.5% remaining over the.
decade. The out-gigration of the 5-14 group is to be expected, however
since,children of this age of 1960 have by 1970 begun to enroll in college,
enlist in the Armed Forces, or become employed outside of their hometown.
The median age of the Town of Swansboro (defined by the Census as that
point at which half of the population is older and half are younger) was 29.6
years in 1970. This figure is about 3.1 years older than the median age of
the state as a whole, w3tich was 26.5 years. In most instances, this would
seem to indicate that less young and more elderly persons exist in the Town.
This is not true in Swansboro's case, however, for there are proportionately
both more persons under 18 and less over 65 than in North Carolina. The
answer appears to lie in the fact that there are a large number of persons
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in the middle range in Swansboro. Roughly 35% of North Carolina's pop-
ulation consisted of persons aged 25 to 54, while about 40% of the Tom's
total fell within this category.
Swansboro is somewhat uncharacteristic of the remainder of Onslow
Ccunty with regard to the distribution of males and females. Probably as
a result of the large military population, Onslow County is nearly two-
thirds male. In contrast, Swansboro more nearly reseirbles the national
average of half males and half females. It could be said that the in-
fluence of the military sector on population is weaker in the Town than
in the county as a whole.
The impact of seasonal population is also minimal. There are a handful
of non-resident property owners in the Town, but the vast majority of the
townspeople are year round inhabitants. Although Swansboro business
establishments profit from the summer season ( largely as a result of the
vacationers to nearby Carteret County beaches who patronize the Town's
merchants) the overall effect of seasonal population on the Town's acti-
vity patterns is not strongly felt.
The following tables list significant aspects of the population:
AGE DISTRIBiTrION OF SWANSBORO - 1970
Age
Male
Female
Total
%
0-4
36
43
79
( 6.5%)
5-9
67
_ 55
122
(10.1%)
10-14
80
85
165
(13.7%)
15-19
66
55
121
(10.0%)
20-24
35
25
60
( 5.0%)
25-34
63
65
128
(10.6%)
35-44
88
100
188
(15.6%)
45-54
75
86
161
(13.3%)
55-64
48
49
97
( 8.0%)
65-74
29
36
65
( 5.4%)
75+
4
17
21
( 1.7%
591
616
1207
(100D%)

MIGRATION:
1960 to 1970
Age in 1960
Number
Age in 1970
Number
Percent Reemainin
0-4
�33'-
10-14
—i65-
01%
5-14
241
15-24
181
75
15-24
128
25-34
128
100
25-34
171
35-44
188
110
35-44
163
45-54
161
99
45-54
108
55-64
97
90
55-64
67
65-74
65
97
POPULATION CHARACTERISTICS:
1970
Total
Male
Female
White Black
Under 18
Over 65
Med. Age
Swansboro
1207
49%
51%
99% 0%
38.1%
6.9%
29.6
Swansboro Twp.
208000
85
15
87 12
14.6
1.3
20.8
Onslow
103126
62
38
84 15
32.2
2.3
21.1
North Carolina
5082059
49
51
77 22
34.6
8.1
26.5
Onslow
1930
15,289
1940
17,939
(+17.3%)
1950
42,047
(+134.0%)
1960
82,706
(+96.7%)
1970
103,126
(+24.7%)
POPULATION CHANGE 1930-1970
Swansboro TWP
2106
2455 (+16.6%)
11662 (+375.0%)
18176 (+55.9%)
20800 (+14.4%)
394
454 (+15.2%)
559 (+23.1%)
1104 (+97.5%)
1207 (+9.3%)

Year
1978
1977
1976
1972
1970
Year
1977-78
1976-77
1972-76
1970-72
WO) Oj P.110 0 Col «. •�e,a
Increase
-0-
109
50
7
1359
1359
1250
1200
1207
% Increase
. -0-
.09%
.04%
.01%
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B. Economy
The 1970 United States Census of Housing listed 410 total residential
units in Swansboro, all of which are classified as year-round dwellings.
This is in sharp contrast to many beach comnmities along the coast, most
of which are dominated by seasonal units which are occupied only a few
months out of the year. This tends to reinforce .the assumption that
Swansboro is an established, year-round, viable community rather than a
seasonally oriented vacation community. The primary seasonal influences
on the Town are more economic than demographic in nature --the increased
flow of traffic through the Town enroute to nearby beaches causes busi-
ness to increase in Swansboro's comnexcial establishments.
Presently, the Town is considering methods to further benefit from
the tourist and boating trade. According to a recent study by the North
Carolina Office of Civil Works, there are approximately 20,000 sport
boat launchings per year in the Swansboro area: The Board of Commissioners
have endorsed the concept of constructing a harbor of refuge and revital-
ization project.
Within the Town limits of Swansboro, economic activity is. centered
primarily around small retail trade establishments, commercial fishing,
and a textile firm. The major industry within the Town is the Swansboro
Garment Company, which was established in 1967 and is concerned with the
manufacture of clothing.. Approximately 250 persons are employed here,
of whom about 90% are female. The Uniflite Company, which is located
outside of the Town proper but within a few minutes driving distance,
employs 150 persons (90% male) in the manufacture of fiberglass yachts.
This firm was established in 1972. In recent months.Uniflite has ex-
perienced problems and has laid off part of its work force due to a
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decline in business.
The Central Business District of Swansboro, which is focused near the
intersection of Main and Front Streets, is relatively small but diverse.
A small grocery store, sandwich shop, restaurant, hardware store, bank, ,
post office, clothing store, barber shop, two florists, newspaper, stitch-
ery shop, and several antique shops and taverns are located here. Nearby
are a marina, real estate office, and the Town Hall. This commercial
area was the first to develop in Swansboro, and evidence of this fact is
found in the aging buildings and narrow streets. The lack of sufficient
parking and space for expansion is one of the reasons new commercial
activity has moved to the fringes of the center of Town. The causeway
lying in the White Oak River and North Carolina Highway 24 at Hammocks
Road are the two new nodes around which commercial development has become
clustered. The causeway caters primarily to marine -related trade, such
as marinas and seafood outlets. The Highway 24 - Hammocks Road area is
concerned with trade on a slightly larger scale than that found elsewhere
in Town, such as a supermarket, drug store, clothing shop, and tire company.
The Town is slowly evolving into a small-scale regional marketplace. The
growth of the beach commznities across Bogue Inlet in Carteret County
(Emerald Isle, Cape Carteret, Indian Beach, etc.) along with population
scattered along the eastern periphery of Camp LeJeune have combined to
create an additional demand for goods and services in the area. Swansboro,
by virtue of its central location, appears to be the logical choice of
some merchants to satisfy a portion of this demand.
The removal of the wastewater service moratorium, construction of I
the new Wastewater Treatment Plant, and the improvements to N.C. 24 High-
way should all prove to be positive influences on the local economy. In-
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flation, interest rates and the price and supply of gasoline are the
major negative influences. However, if gasoline problems are moderate,
Swansboro could capture retail trade presently going to Jacksonville and
Morehead City.
C. Existing Land Use
~ There are 321 acres of land within the Corporate limits of Swansboro,
approximately 44% of which are developed with urban/built-up uses. The
majority of urban/built-up land lies south of Wise's Branch and has been
divided into lots; about 16.6 acres of these lots are presently undevelop-
ed. The area north of Wise's Branch consists mainly of large, undivided
tracts of agricultural and forested land, with the exception of a housing
subdivision and a corridor of commercial development. There have been no
annexations since the original Land Use Plan was adopted in 1976.
Swansboro is a relatively small, quiet town, and as a rule, the var-
ious land uses are well separated. With the possible exception of a stretch
4 of "strip development" along the N.C. Highway 24, commercial and residential
districts exist in harmony. Business is concentrated in the Central Busi-
ness District and in two outlying commercial areas, while residential areas
occupy a majority of the urban -built-up land. There are a few commercial
activities interspersed through residential areas, and the only industry in
Town, Swansboro Garment, is somewhat isolated.
The occurrence of hasty strip development along N.C. 24 appears to be
the most significant land -use problem area at this time. Largely as a re-
sult -of the lack of construction space elsewhere in Town, most new develop-
ment is locating along this main traffic artery.
The 1976 Plan stated: "The Highway N.C. 24 is now in the process of
being expanded from two to four lanes in order to accomodate increased
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summer traffic. If indiscriminate development is allowed to line the
sides of the road, its primary function as a carrier of traffic could
be seriously impaired." This project has been completed. The only
section of N.C. 24 in the Town limits which has not been widened is the
causeway portion. A more conpact pattern of development usually de-
creases the likelihood of conflicting land use, simply by reducing the
number of possible interfaces. Strip development often results in urban
sprawl, which is normally accompanied by more expensive public services
and overall inefficiency of the urban system. The more businesses which
locate along the highway, for exanple, the greater the likelihood that
traffic congestion will occur. A problem of this nature could be reduced
by controlling access points.
Since 1976 changes in land use in Swansboro and the outlying area
have been moderate. Two major land use conversions have occurred. In
February 1977, the Town of Swansboro purchased a 17.5 acre undeveloped
tract for development as a municipal recreation facility. The Swansboro •
Recreation Park has been partially developed. The site has been partially
cleared and graded, and tennis courts, volleyball courts, basketball faci-
lities, and a multi -purpose field have been constructed. An unsurfaced
parking lot has also been constructed, however, the park has not been
fully landscaped and there are no restroom facilities. The park fronts
Secondary Road #1447 which is in rather poor condition with a dirt sur-
face. In recent years the Town has not had funds available for further
improvements at the park. The other major land conversion has been the
construction of the new municipal Wastewater Treatment Plant. This plant
has been constructed on a 12.62 acre tract outside of the Town limits
on Foster's Creek. This site should be protected by zoning, however, at
the present time, the Town does not have an extra -territorial zoning
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program. As of this writing, there is a proposed development, which if
constructed, must be classified as a major land conversion. John T.
Egan & Associates of Winston-Salem, N.C. has proposed to build an apart-
ment complex with 54 dwelling units just over the Town limits line in
the Swansboro Heights area. The developer has requested municipal water
and sever service, and the project is not feasible without central waste-
water system service. If constructed, the development would be partially
subsidized for lower ins families, and would be financed by the Farmer's
Home Administration Rural Rental Housing Program (515). The developer has
publicly stated that if provided municipal water and wastewater service, he
would not protest annexation. A considerable number of citizens, especially
those from the'Swansboro Heights area have objected to the construction of
this residential development, however, it appears that the Town is legally
required to extend water and sewer service to this site by virtue of accept-
ance of a $337,000 loan to the Town of Swansboro for a portion of the funds
which were used to construct the municipal Wastewater Treatment Plant. In
1976 when the original Land Use Plan was prepared, a developer was proposing
to build a small shoppingcenter on N.C. Highway 24 adjacent to Swansboro
Heights. Due to very strong objections by Swansboro Heights residents, the
owner cancelled his plans. Many residents of the fringe area have called
on the Town to limit development to single-family residential construction,
however, when the Town has considered establishment of an extra -territorial
planning program, strong objections have been raised by residents of the
fringe area. Some of the citizens asking the Town to prevent certain types
of development have also objected to the use of extra -territorial zoning,
resulting in a paradoxical situation.
Several small scale developments have occurred since 1976. These in-
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clude the construction of Licko's.Laundry Mat, Craft Stoves, an addition
to Onslow Motor Parts, a large addition to Seashore Realty, and the con-
struction of a mini-conuercial conplex, Port of Swannsborough. Approxi-
mately three single-family houses have resulted in minor land use conver-
sions. New residences constructed by Mr. W. T. Casper and the Edgerton
family have converted o acre each from the undeveloped category to the
residential category. The Toler residence converted approximately 4 acre
from comrercial to residential.
Land Use Compatibility
The Town of Swansboro presently is experiencing very few problems
due to land use incompatibility. Compatibility problems associated
with agriculture are virtually non-existent, and due to the lack of manu-
facturing facilities in the area, problems associated with industry are
absent.
One residential property owner in the Central Business District has
con L-;d ned of noise, however, the noise level in the District appears to
be normal. Residential.land uses in the Coarercial Business District should
not place unreasonable demands on the businesses located there. Residents
living near the Swansboro Volunteer Fire Departmant building have also
complained about noise from the.departumt sireen, and the low storage
water level alarm used by the Town. This is a typical situation, and
the extent of the nuisance is tolerable. Finally, residents on Lisk Drive
have repeatedly corrplained of sedimentation washing down onto private
property and Lisk Drive from an unpaved service alley located behind a
row of businesses located near the intersection of N.C. 24 and Lisk Drive.
Town maintenance workers are attempting to keep Lisk Drive clear of sedi-
mentation, however, this appears to be a problem between neighboring private
property owners. Paving of the service alley probably would correct the
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problem.
Problems Due to Unplanned Development
Problems of this sort are few and rather limited in the Swansboro
area. The primary problem due to unplanned development is the narrow
street right-of-ways located in the original section of Town (Water and
Front Streets). This portion of Town was settled during the Colonial
period and therefore, the streets were layed out primarily to accomodate
horse-drawn carts. Virtually all residents are aware of this problem,
and therefore, exercise extra caution. The number of automobile acci-
dents is low and therefore, further corrective action is not called for.
Residential development in the Colonial portion of Town is also
extremely close, presenting special fire hazards, however, the Town en-
forces a burning ordinance and should continue to limit residential add-
ons in these areas through effective.enforcement of the municipal Zoning
Ordinance.
Areas Experiencing Changes in Land Use
A portion of Town which is experiencing the fastest change in land
use is the N.C. 24 corridor from Hall's Branch to Wise's Branch. Exist-
ing land uses here are mixed with residential and commercial structures
alternating with undeveloped parcels. The widening of N.C. 24 and the
seasonally heavy traffic volumes will stimulate new commercial growth
in the next five to ten years. This may cause land use compatibility
or nuisance problems if adequate yard requirements, buffer zones, or
other controls are not implemented. Traffic circulation problems may
also occur if the N.C. Department of Transportation does not carefully
control the driveway connection process.
The following list briefly outlines characteristics of existing land
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use in Swansboro:
Residential
The predominant use of land in Swansboro is for residences, the
majority of which are single-family houses. A total of approximately
104.2 or 32.5% acres are currently used for residential purposes. Pro-
portionately, this accounts for about one-third of the total of all land `
in Town. The 1970 U. S. Census counted 410 housing units in Swansboro;
if this figure is accurate, the average lotsize equals approximately one
quarter of an acre per housing unit. Since 1975 there have been 2 con-
versions from undeveloped to residential with houses built on two lots
of approximately a acre each and one house built on a a acre which was
formerly shown commercial on the 1975 Existing Land Use Map.
Coax ercial
Retail trade and services presently comprise a total of approximately
17.06 acres or 5.3%. Most of this land occurs in the Central Business
District and along N.C. 24, and also includes the causeway in the White.
Oak River, which consists almost entirely of commercial development.
This category lost 4 acre to the residential category.
Industrial
The Swansboro Garment Conpany, which represents all industrial develop-
ment in the Town, is situated on a lot which covers 1.83 acres, or less
than 1% of the total land area.
Government -Institutional
Government and institutional land in Swansboro consists primarily of
churches, municipal land and buildings, the U. S. Post Office, an elementary
school and the Swansboro Cemetery. Roughly seventeen acres (5.3%) are
accounted for under this classification.
-18-

Transportation, Communication, Utilities
The major components of this category are roads and water -sewer
racilit Lvi;. Ttu)rc are 30.40 acres devotcxI to thi.ti uc3e (9.5% of total)
29.22 acres of which are included in the road and street network. Road
rights -of -way were utilized to compute this figure. The Wastewater
Treatment Plant site is 12.4 acres, but is located out of the planning
area.
Cultural, Entertainment and Recreation
Swansboro Recreation Park is the largest site in this category at
17.49 acres. Ward's.Shore is the other area. The total land area in
this category is 18.17 or 5.7%.
Agricultural, Forestland, Water
Agricultural land totals 39.48 acres.(12.3%) and forested land 67.82
acres (21.2%) within the Town's limits. This represents a combined total
of 33.5% which will probably begin to dwindle as new urban built-up land
begins to use this land for development.
An accurate count of water area is difficult because the corporate
limits extend indefinitely into the White Oak River. Until a reliable
means of calculating this area can be found, this figure will be omitted.
Wetland
Approximately 8.30 acres of marshland exist to the east of Town,
situated directly behind the Swansboro Elementary School. This area con-
sists primarily of low tidal marsh grass and has been designated as an
Area of Environmental Concern by the Coastal Resources Commission. This,
of course, means that certain stringent development controls have been plac-
ed on its use, and the marshland will probably undergo limited changes in.
-19-

the near future.
Existing
Land Use Acreages
Urban and Built -Up
Acreage
Percent of Total
Residential
104.21
.32.5
Comrercial
17.06
5.3
Industrial
1.83
0.6
Transportation, Corm., Util.
30.40
9.5
Goverment and Institutional
16.99
5.3
Cultural, Entert., Rec.
18.17
5.7
Undeveloped Land
16.11
5.0
Agriculture
39.48
12.3
Forestland
67.82
21.2
Water
NA
NA
Wetland
8.30
2.6 "
Barren
0.00
0.0
320.38
acres 100.0%
-20-

EXISTING LAND USE
RESIDENTIAL 2
COM4ERCIAL SWANSBORO
INDUSTRIAL
® TRANSPORTATION. COMMNICATION & UTILITIES NORTH CAROLINA
® GOVERNMENT & INSTITUTIONAL
CULTURAL. ENTERTAINMENT & RECREATION
UNDEVELOPED LAND SCALE
WATER eoo ero o e
® WETLANDS
i

D. Current Plans, Policies, and Regulations
Swansboro Municipal Zoning Ordinance
This ordinance was adopted in 1968 and is a typical municipal Zoning
Ordinance. This Ordinance is in effect within the Town limits only, and is
enforced by the Building Inspector. A local Zoning Board of Adjustment
rules on requests for variances. Within the next year or two the Zoning
Ordinance should be analyzed consistent with the revised Land Use Plan, and
a determination of its adequacy should be made.
N. C. State Building Code
The Town of Swansboro has adopted for local enforcement all volumes of
the N. C. State Building Code. Enforcement of the electrical volume is by
an inspector shared with the Town of Emerald Isle. All of the remaining
volumes are enforced by the municipal Building Inspector who also enforces
the Zoning Ordinance.
Flood Insurance Program
Swansboro is enrolled in the emergency stage of the National Flood
Insurance Program, and currently complys with the regulatory requirements.
Swansboro Area 201 (Wastewater) Facilities Plan.
This is a long range plan which outlines the wastewater collection
treatment and disposal needs of Swansboro and the unincorporated adjacent
area in Onslow County. This plan designates the Town of Swansboro as the
lead agency responsible for solving wastewater and septic tank failure pro-
blems in the area from Swansboro Town limits lines to the general vicinity
of N. C. Highway 172.
Communities Facilities Element
This document was adopted in 1980 and contained a description of each
-21-

of the Town's major conuunity facilities. The element also describes the
deficiencies and suggests methods of correcting these deficiencies.
Water and Sewer Extensions Regulations
These regulations establish a system for reviewing requests for
water and/or sewer extensions in the unincorporated area. The regula-
tions also sunuiarize the state agency approvals and engineering require- .
meets which must be met. This system provides a method of financing
extra -territorial extensions.
-22-

III. CONSTRAINTS
Until recently, the impacts of poorly planned growth upon the
fragile environments of the coastal area have been largely ignored.
Wetlands, for example, which are immensely conplex biological areas
have been dredged and filled indiscriminately. As a result of this
alteration, many natural processes have been temporarily halted or
destroyed forever. In fact, the entire marine food chain has been
threatened by the loss of these critical areas. --Clearly, if the
quality of life which'have attracted residents to the coastal area
is to be maintained, a serious reappraisal of past trends In land
development must be undertaken. Well -reasoned land use plans and
controls prepared on the local level should aid in making sensible
use of fragile environments.
y
A. Land Suitability
The suitability of undeveloped land within Swansboro to support
development is analyzed in this section with regard to, 1) physical
limitations, 2) fragile areas, and 3) areas with resource potential.
1. Physical Limitations
a. Flood Hazards
Estuarine erosive areas: According to a report issued by the
United States Department of Agriculture, Soil Conservation Service
dated August, 1975, the Swansboro area is experiencing no estuarine
erosion at this time. Based on data accumulated over the past twenty-
one years, Swansboro has lost no land to estuarine erosion, and in fact,
portions of the Town's shoreline have been accreting.
Flood hazard areas (coastal flood plain): Areas subject to flood-
-23-

��~ �''��
• N
A
1

ing in Swansboro are described in Flood Prone Area Maps compiled by the
United States Geological Survey under the direction of the Federal In-
surance Administration. The boundaries of this area were determined by,
a) stage frequency analysis and records of flooding, as well as, b) lo-
cal wind -tide relationships. The boundary generally coincides with the
ten foot contour interval, and reaches its farthest point inland near
' the intersection of Church and Elm Streets. A large portion of this area
is now developed. In the future, precautionary measures should be taken
to ensure that new development occurring here is consistent with the regu-
lations of the National Flood Insurance Program. Swansboro is currently
enrolled in the emergency phase of this program, which requires the Town
to review all building permits and subdivision proposals in order to safe-
guard new development against damage by flooding. At a later date, a de-
tailed mapping of the flood plain along with a ratemaking study will take
place as a prerequisite for enrollment into the regular phase of the pro-
gram
b. Soil Limitations
The two most recent sources of soils information for Swansboro are
found in the general soils maps of Onslow County prepared by the U.S.D.A.
Soil Conservation Service of 1972, along with a description of soil asso-
ciations in the Coastal Area Management region (no maps of this date)
authored by Phillips, Broome, Aull, et al in 1975. The former delineates
nine soil associations, one of which, the Onslow-Lumbee association, covers
the entire Town. The association is generally described as "nearly level
to gently sloping, moderately -well to poorly drained soils with an inter-
mittent subsurface layer of thin hardpan and friable sandy -clay loan sub-
soils." According to the Onslow County A.S.C.S. office, the majority of
-25-

GENERAL SOIL
MAP
�•so
..
16
29
•.•
4 �Q v
•
�I '� O 1 tt tl •
�
4:• APPROXIMATE SCALE MI MILES
i
0
LEGEND
ONSLOW - LUMBEE ASSOCIATION: Nearly level to 1198111 alePiq
drainedmoderately oi tth as Intermittent eso
Well to Poorly
elay Iss ee►oNto.
Myer ihls hard► dfriahle oaaya
LEON - LYNNHAVEN ASSOCIATION: Nearly level somewhat poorly
Efl
to very poorly drained sells with need ov►fsoe layers and dark
reddish brown toady hordpoo sabeil.
LAND - BAYMEADE - DRAGSTON ASSOCIATION: Eaeasivsk
®LAKE
drained sandy Dails to somewhat Poorly drained $sill with sandy
logo agbolls.
MARSH -COASTAL BEACH ASSOCIATION: NemV level
©TIDAL
+
lend overflowed by high fldowelor *ad @sad demo.
POWER - PAMLICO ASSOCIATION: Very Poorly drained erSede
UN-
Bolls it to 50 ioohes of soak eve. Goody to loser tarirsd ii116.
JOHNSTON - BIBS ASSOCIATION: Nearly level very Polly is P*My
®
drained •oils on flood Plolas IN drains"Way&
PORTSMOUTH-TORHUNTA ASSOCIATION: Nearly Wall very Poorly
loss to
®
drained sells with ►look surfs" layers and Srsy frlakta need'
Doody star .1000 sekeeils.
SOURCEt U.S. DEPARTMENT OF AGRICULTURE
SOIL CONSERVATION SERVICE
RALEIGNr N.•C.
v
—26—

Soil Interpretations
General Soil Hap
Onslov County, N. C.
June, 1970
LIMITATIONS FOR
SUITABILITY FOR
Dwellings with
Recreation
Sewerage
Septic Tank
Intensive
Light l/
Roads 6
General
Soil Association
Systems
Filter Fields
Camp Sites
Picnic Areas
Play Areas
Industries
Streets 2/
Agriculture Woods
% in
Soils
Assoc.
SWANSBORO:
Onslow-Lumbee Onslow
35
Slt
d Wt)_ _ _
Slt _ _ _ _
Slt_
Sit
Mod(Cor)_ _
Slt _ —Good
_ _ _ Good
_
be
15% of County Lume
_ _ _
30
_ _
Sev(Wt)
_ SNoev( t)
Sev(Wt,Traf)
Sev(Traf,Wt)
Sev(Wt,Traf) Sev(Wt,Cor)
Sev(Wt)
Fair Good
to
Good
v
Slopes LOx
Slopes 10%
Slopes 67.
Slopes 10%
Slopes 6%
Slopes 10%
Slopes 25%
impose lim-
impose lim-
impose lim-
impose lim-
impose lim-
impose sev.
impose sev.
stations;
itations;
stations;
itations;
stations;
limita-
limita-
10-25X-Nod.
10-15%-Mod.
6-10%-Nod.
10-25%-Hod.
6-10%-Hod.
tions
tions
25X+-Sev.
15%+-Sev,
10%+-Sev.
25% +-Sev.
10%+-Sev.
Abbreviations for Limiting Factors
Perc - Percolation rate
Sh-Sw - Shrink -swell potential, R - Rock
ER - Erosion, Fl - Flood hazard, Prod - Productivity
Wt - Water Table, Traf - Trafficability
Cor - Corrosion potential, AWC - Available water Abbreviations for degree of limitations:
capacity, Lfa - Low filtering action Slt. - Slight Mod. - Moderate Sev. - Severe
TSC - Traffic supporting capacity
1/ Structures whose footings are in subsoil
2/ Refers to roads and streets that have subsoil for base

the land in Swansboro lies within the Onslow soil, with smaller pockets
of the Lumbee soil scattered throughout Town. The Lumbee is usually
found adjacent to water bodies (e.g. flood plains) while the Onslow
generally occurs at higher elevations. (See Appendix)
The 1975 study places Swansboro in the Onslow - Rains - Norfolk
association. Onslow and Norfolk are the more frequent of the three,
as there are very few occurrences of the Rains series. Natural drain-
age is good in both soils, although internal drainage is somewhat retarded
in the Onslow series due to the presence of the hardpan layer about six
inches below the surface,
c. Water Supply
Located in the White Oak River Basin, Swansboro derives its water
supply from groundwater resources. Not in proximity to Class A2 surface
waters, Swansboro is not in a designated public water supply watershed.
The hydrogeology of Swansboro is not well known. The Post -Miocene
Aquifer exists between land surface and an estimated 80 feet below land
surface; groundwater is stored under water table and semi -artesian
conditions is unconsolidated sand. Below the Post -Miocene Aquifer is
the Tertiary System Aquifer from 80 feet below land surface to an esti-
mated 220 feet below land surface. The Tertiary System Aquifer is thought
to consist mostly of limestone, and is artesian. Next is the Cretaceous
System Aquifer, from 200 feet to an unknown depth, where groundwater is
stored under artesian and flowing artesian conditions is unconsolidated
sands.
Potable groundwater in significant quantities is available both in -
the Post -Miocene and Tertiary System Aquifers. Potable groundwater in
-28-

.
usable quantities is available in the tipper Cretaceous Aquifer. Brack-
ish groundwater occurs in the Middle and Lower Cretaceous System Aquifers.
The Post -Miocene Aquifer receives recharge by direct,infiltration of
rainfall. under favorable circumstances, it is probable the Post -Miocene
Aquifer contributes recharge to the Tertiary System Aquifer.
The Town of Swansboro derives its supply of water from two wells
exposed in the Upper Cretaceous System Aquifer. These wells provide 350,000
GPD capacity. The Town is not now experiencing water problems and should
not in the future with reasonable use of available supplies.
d. Fragile Areas
Coastal Wetlands
A small parcel of marshland less than ten acres in total area,exists
just inside the Town limits adjacent to the Elementary School. The marsh
consists primarily of Spartina alterniflora, which grades into higher marsh
grasses as one approaches the peripheries. This, of course, is part of an
Y extremely fragile area which plays a critical role in the marine environ-
ment. This marsh has been declared an Area of Environmental Concern by
the Coastal Resources Commission, and is provided special protection. The
conpletion of the new Wastewater Treatment Works and the shutting down of
the old plant which emptied into the White Oak River near the Elementary
School should substantially improve water quality.
Estuarine Waters
The Town of Swansboro is focused upon, and derives much of its live-
lihood from the White Oak River. The White Oak originates approximately
twenty-five miles inland from Swansboro along the Jones County-Onslow
County border and flows to the Atlantic Ocean. According to an agreement
adopted by the Wildlife Resources Co mission and the North Carolina Depart-
-29-

ment of Conservation and Development in 1965, waters of the White Oak
River seaward of Stella, N.C. are considered commercial fishing waters
and are regulated by the Division of Marine Fisheries. These same commer-
cial waters are also considered estuarine waters under North Carolina G.S.
113 (n) (2). Swansboro occupies approximately 1.5 miles of shoreline along
the White Oak estuary.
Public Trust Waters
In the case of Swansboro, public trust waters are for all practi-
cal purposes identical to estuarine waters. Public trust areas are the
areas from the mean high water mark seaward or the tidal zone.
Areas That Sustain Remnant Species
The Preliminary List of the following threatened species in the
White Oak - Onslow area:
Species
Hyla andersoni
(Pine barren treefrog)
Preferred Habitat Status
Shrub bogs, procosions Undetermined
Alligator mississipiensis Coastal rivers, lakes, Peripheral -en -
(American alligator) estuarines dangered in N X.
Crotalus adamanteus Sandy pine flatwoods, Peripheral -rare
(Eastern diamond thick bogs in N.C.
rattlesnake)
Archaeologic and Historic Sites
The North Carolina Department of Cultural Resources has compiled
a listing of significant cultural and historical places in the Coastal
Area Management region. Three sites, extracted from the Onslow County
list, are located within the Swansboro Town limits. One of these,
the Ringware House, has been approved by the state to be included in
the National Register of Historic Places.
0
u
-30-

Site Location Ownership
Brick Store N. Corner of Main/Front St. Private
Ringware House S. Corner of Main/Elm St. Private
It should also be noted that the entire downtown area of Swansboro
possesses a unique cultural and historical atmosphere. This could.
possibly be construed as a constraint for new development in the
inmediate downtown area.
Areas with Resource Potential
Productive and Unique Agricultural Lands
Most of the undeveloped land north of.Wise's Branch is used for
either farming or woodland. A good deal of the agricultural land is
Planted in crops, such as corn. The value of these lands is very
difficult to assess in terms of dollars and cents, since agricultural
output figures. are not available for municipalities. The very exist-
ence of this type of land use in what is essentially an urban setting,
however, should raise some important questions concerning its potential
as a resource. Should cities foster agricultural land use within their
boundaries? Deed holders will probably be coaxed by economic circunr
stances to develop their land within the near future.
B. CcmTmity Facilities
1. Water. System
The Swansboro supply is from two groundwater wells. "However,
due to their close proximity to each other, only one well may be operat-
ed at a time.".(Preliminary Engineering Report -Water Supply Improve-
meats, Henry von Oesen & Associates, Inc., 1968)
Well #1 is the old semi -abandoned well which will be referred
-31-

to as the stand-by well. This is a.6" %ell and is equipped with an
emergency gasoline generator. Pumping for this well is provided by a
Fairbanks -Morse turbine pump with a horsepower rating of 15. The %ell
house is of Dick construction and is in fair condition. .
Well #2 is the Primary source, has a diameter of 10" and.a depth
of approximately 200 feet. This is a screened well and was constructed "
by J. R. Connelly of Varnville, South Carolina in 1953. Pumping is
provided by a Fairbanks-Mrse pump with a purping capacity of 350 gallons
per minute. The horsepower rating is 15. The well house is of brick
and is in good condition.
Water Treatment: .
Treatment is by the Cold -Lime Softening Process and is primarily
for the purpose of iron removal. According to the Town's Engineer
there is also an indirect removal of odor. The Town has also consist-
ently chlorinated the water supply ,to protect the supply from coliform
bacteria. Daily treatment capacity is approximately 500,000 and the
design engineer of the Treatment System recently stated that the System
is in a good state of repair and capable of serving considerable growth
in the Town.
Water Storage Facilities:
These facilities consist of one elevated water storage tank with
a storage of 100,000 gallons and a ground level storage reservoir of
250,000 gallons for a combined total of 350,000 gallons. The elevated
tank is of the riveted steel variety, while the ground reservoir is of
composite steel shotcrete, wire wound prestressed construction. Of
course, both of these facilities are located on a comon site on Sabiston
-32-

Drive. The elevated tank was built by Whitmire Tank Company and has
an overflow height of approximately 130 feet.
Water Distribution System:.
Water Distribution System refers to water supply mains, fire hy-
drants, meters, valves and related appurtenances. Swansboro's municipal
water distribution system is generally in good to very good condition,
however, there are some weak spots. Most of the Town -is served by 6"
water mains. Also, at the request of property owners and developers,
the Town has extended water mains over the Town limits to serve certain
limited extra -territorial areas. Part of the wastewater works improve-
ments project (201) does include additional high quality Water lines.
These water lines are primarily located on the causeway, Which up until
the present time, has not been served with water and to the new waste-
water treatment plant site on Foster's Creek. According to the 1978
North Carolina Municipal Report of Fire Conditions for SWansboro, the
Town is served only by 6" mains and 3000 feet of 8" mains. The Public
Works Department has determined that there are 49 fire hydrants in the
Town limits. The Public Works Department has, within the legal restrict --
ions, attempted to make the water metering system consistent. The Town
attempts to buy the same style of water meter and has had good success
in improving the reading of meters, stocking replacement parts, and has
the ability to make repairs quickly. The Town has relatively few dead -
ends, however,
in some areas
this is inevitable due to houses
located
at the end of
a right-of-way
located on the White Oak River.
The static
water pressure throughout the system is good.
2. Sanitary Sewer System
The Swansboro Area 201 Facilities Plan describes this treatment system
-33-

as a ".3 MGD oxidation -multi -media filter facility". The collection
system is in generally good condition. The entire pumping system of
lift stations has been reconstructed and overhauled. According to the
engineer, the facility can accomodate the growth over the next 20 years
and the plant site is capable of considerable expansion.
Water and Sewer Service Areas
At the present time the entire developed area within the Town limits
is served with treated water and sanitary sewer service. The Town is 2
presently designing a sanitary sewer service forcemain which will extend
to Swansboro High School which is located approximately 1.3 miles north-
west of Swansboro on N.C. 24. No other sanitary sewer extensions have
been made into the unincorporated areas.
Water distribution lines have been extended into unincorporated
areas at several locations. 'A 6" municipal main serves Swansboro Middle
School located just over the Town limits northwest of the line on N.C.
24. Water mains have also been extended to Swansboro Hills Mobile Hcme
Subdivision, Oyster Bay Subdivision, and Barbour's Point Subdivision
(see table).
-34-

Road
Size
N.C. 24
1
61
S.R. 1512
6"
S.R. 1447
211
S.R. 1448
6"
Seashore Estates
6"
(S.R.1512 Southwest)
Material
Cast Iron
PVC
Gal. Steel
PVC
PVC

3. Streets and Street Lighting System
All of the developed areas in Swansboro are served by the municipal
lighting system. This system is operated and maintained under a contract
with Carolina Power &Light services. CP&L has provided excellent service
and responds to citizen complaints very promptly.
Rights -of -Way:
Due to its colonial developTent patterns, the older portions of
Swansboro are characterized by extremely narrow rights -of -way. This is
a condition which cannot and should not be corrected. The Town has done
an excellent job of weed control, mowing, and erosion in the rights -of -
way.
Surfaces:
The Town is served by an excellent street system. All of the streets
are paved with the exception of a state system street near the municipal
park. There are very few potholes, but there are a small number of minor
base failings, notably on Elm Street. According to the most recent State
Street Aid "Certified Statement", Swansboro has a total of 5.2 miles of
local streets. There are no municipal bridges.
a. Traffic Control Devices
The Town is presently conducting a Sign Standardization Program which
is part of the Governor's Highway Safety Program. When this is ccapleted,
possibly within the year, the Town's entire network of street signs and
traffic signs will be completely overhauled.
b. Curb and Gutter
Only a limited portion of the Tenn is served by curb and gutter,
which is. basically restricted to the state system along N.C. 24, and
-36-

the Central Business District.
4. Firefighting Facilities
The Swansboro Fire Department is located on Sabiston Drive on a
site that is shared with the Water Plant. The Department is housed
in a block building that contains approximately 2400 square feet. This
is a three -bay building which is in good condition. The Fire Department
is fairly well equipped and owns three Snipers; a 1966 model rated at
750 GPM with a booster tank with 650 gallons, a.1972 pumper rated at
750 GPM with a 750 gallon booster tank, and a 1974 pumper also rated
at 750 GPM with a booster capacity of 750 gallons. The Department also
owns two electric generators, one three-phase diesel generator 10-KW,
and one gasoline generator.
5. Recreation Facilities
The Town of Swansboro has for the last several years been invest-
ing a -significant amount of funds on outdoor recreational facilities.
The Town has acquired and developed a park on Secondary Road 1447. This
park is approximately 17.4 acres, and includes two regulation tennis
courts (unlighted) with high quality sealing and fencing, outdoor
basketball court, an outdoor volleyball court, and a large cleared
area which is used for soccer, football, little league baseball, soft-
ball, etc. The park is somewhat deficient in landscaping and does not
contain public restrooms. In addition to this facility, the Town owns
a right-of-way on the White Oak River, near Licko's Launderette. Appar-
ently, there is a DOT right-of-way on the opposite side of N.C. 24. This
area is presently undeveloped, however, it is used as a natural area where
people can crab or enjoy pedestrian access to the river. There is also
-37-

an old right-of-way at the former site of the Town dock at the foot
of Main Street on the White Oak River. There are approximately 9
municipal streets which dead-end at the White Oak River or Hawkins's
Creek. There are several locations which are conspicuous green areas,
same of which have active recreational potential, while others should
have little or no development. Swansboro Elementary School is located
in the Town limits and there is a considerable area available for. re-
creational uses.
6. Schools
The Town of Swansboro is served by the Onslow County School System
which is under the supervision of the Onslow County Board of Education.
Since the basic planning responsibility for the Onslow County School
System comes under the jurisdiction of the North Carolina Department
of Public Instruction and the Onslow County Board of Education, to a
limited degree the Onslow County Planning Department has some respon-
siblities for school system planning. Therefore, the information con-
tained here is for information purposes only.
The Town of Swansboro and the surrounding area is served by Swans-
boro Elementary School, Swansboro Middle School, Swansboro Junior High
School, and Swansboro Senior High School. The current enrollment figures
are as follows: Swansboro Elementary-432, Swansboro Middle School-350,
Swansboro Junior High School-249, and Swansboro Senior High School-654.
All of these enrollment figures are either at or -below their design
enrollment. The design enrollment figures are 350 at Swansboro Elementary,
350 at Swansboro Middle School, 250-at Swansboro Junior High, and 650 at
Swansboro Senior High.
In. recent years there has been a significant decline in enrollment
MUG

at the Swansboro public schools._ Although all of the schools can
accommodate additional growth in student populations from a physical
standpoint, the campuses are limited and only Swansboro High School
can accomodate a building expansion.
In recent months the North Carolina Division of Environmental
" Management has instructed the Onslow County School System to upgrade
n
its wastewater treatment facility. At the present time the Town of
Swansboro is cooperating with the Onslow County School System and it
appears that the wastewater treatment problem will be comrected by
abandoning the High School's present treatment system, providing for.
wastewater treatment of the High School's waste by the new municipal
wastewater treatment works. The design work is virtually complete on
this project, and the construction project which basically consists of
construction of a lift station at the Swansboro High School carpus
should be oompleted within nine to eighteen months. There are only
three mobile units at the four schools with two at Swansboro Elementary
School, and one at Swansboro Junior High School. According to the
Superintendent of Schools, there are no serious physical problems,
although, Swansboro Senior High School is in need of rennovations,
especially improvements to science laboratories, writing systems, and
ceilings.
-39-

IV. ESTIMATED DEMAND
A. Population
The regulations of the North Carolina -Coastal Resources Commission
at 14 NCAC 7B Section .0202 (e)(1) require all land use plans to make
a population projection and to attempt to forecast future economic con-
.ditions. Of course, basic conTmnity planning principles that require
land use plans emphasize this sort of forecasting. Describing past and
existing conditions is not sufficient to enable planning efforts to be .
meaningful. The regulations referred to above state: "A population
estimate for the upcoming 10 years shall be made and used as the basis
for determining land and facilities demand and for classifying land
areas".
However, while recognizing the importance of population and economic.
forecasting, we must also remain aware of the difficulties associated with
such a process. This sort of forecasting is difficult for all local
governmental units, but it is even more difficult and subject to inaccura-
cies in the smaller conrunities. Ironically, the larger units in North
Carolina can call on the North Carolina Department of Administration for
technical assistance, but communities of less than 2500 are not furnished
this service. The regulations cited above continue: "Ten year population
projections will be provided for counties and those cities and towns hav-
ing a population greater than 2500. Population projections are extremely
difficult in small towns due to extremely small base numbers.
Further, 2500 population is a major cut-off point in the availability
of census data. Certain valuable types of information such as unemploy-
ment rates are available only for municipalities of greater than 2500
-40

population. In spite of these problems, we proceed with certain under-
standings.
No seasonal variations in the Swansboro population have been identified,
however, nearby communities such as Emerald Isle and Cape Carteret do exper-
ience peak summer populations, which do affect Swansboro to a limited de-
gree, generally moderate flows of day visitors. Seasonal outmigration and
immigration is negligible.
Ten year population projections for Swansboro have been developed
employing three different methods. The arithmetic method, which asserts
that numerical. changes in population in the past are likely to recur in
the future, yields a low 1990 population of 1613 persons. The geometric
method based on percentage changes, gives a high total of 2242 persons.
The least -squares method, based on a regression analysis, y2el.ds the mid-
range population of 1676 persons in the year 1990.
The least -squares method appears to best represent the ten year
growth of Swansboro. Raw land limitations will probably act to place
a ceiling on the total population which the Town (within its present
boundaries) can comfortably acccmodate. Annexation', of course, might
cause the population to swell considerably higher. The projection of
the 1676 persons attempts to balance the effects of both raw land
limitations and possible annexation over the coming decade.
The present (1975) population of-Swansboro is estimated to be
approximately 1250.
Arithmetic Gecmetric LeastjEares
" 1990-1613 1990-2242 1990-1676
These projections are based on the present geographic boundaries of
the Town. They are also based on certain economic assurrptions. Attract-
ion of industry, lay-offs by local employers, or annexation are illustra-
-41-

tions of actions that can upset a population projection. When 1980 Census
information is available this portion of this document should be reviewed
for accuracy and revised if necessary.
B. Economy .
At the present time, the Swansboro economy is extremely homogenious.
Although precise figures are not available, it is readily apparent that a '
substantial portion of the working population of Swansboro commutes to
Camp LeJeune and Cherry Point Marine Corps Air Station. Swansboro Garment
Company is the only manufacturer located in the Town limits. Small scale
commercial and service industry establishments are. collectively and im-
portant employers. The Uniflite boat manufacturing facility is located
approximately 10 minutes from Swansboro, however, this firm has recently.
experienced a business decline and its future as a major employer is un-
certain.
over the planning horizon the problems associated with the cost and
supply of gasoline may produce serious problems locally in Town. Problems
associated with gasoline, on the other hand, may make it easier for local
merchants to recapturebusiness which is presently going to Jacksonville
and Morehead City. Commercial growth then could ease potential future
problems. Potential commercial growth would provide additional local
employment, reduce the need for expensive shopping trips to Jacksonville
or Morehead City, tap a relatively untapped tourist market, and provide
moderate increases to the ccumunities tax base. A special effort should
be made to capture waterborne retail business associated with the intra-
coastal waterway.
The Town should also attempt, within its financial resources, to
-42-

accommodate new light industrial locations or expansions. Small scale
moderate industrial plants may also be feasible. In all instances
careful planning should ensure that any potential industrial facility
will comply with the Swansboro Sanitary Sewer Use Ordinance.
If economic development occurs at a substantial level in the fringe
area, the Swansboro Board of Commissioners should seriously consider
annexation. The level of development in the fringe area at the present
I time probably justifies an annexation study. Within the next two or
three years or possibly sooner, the Town should consider requesting an
annexation study to. be conducted by the N.C.'Division of Cc inanity
Assistance. Presently, the lack of industry in the Swansboro Town
limits is producing financial pressures on residential property owners.
Future economic growth could reduce pressures for increases in the ad
valorum tax rate.
The completion of the Swansboro Hills apartment complex should pro-
duce positive economic results. Residential developments of this size
(54 dwelling units) generally stimulate spin-off business activity, such
as, increased insurance sales, demand for maintenance, etc. The addition
of 54 water and sewer customers will aid the Town's water and sewer
system substantially. Substantial increases in ad valorum tax collections,
Powell Bill funds, local option sales tax refunds; and other revenue
sources will also be realized. The Town should implement its plan to
annex Swansboro Hills upon completion of.the project.
C. Community Facilities Demand
Based on a projected 1990 population of 1676, the community facilities
demands on the Town should be moderate. Careful planning, sound financial
management, and realistic annexation practices should enable the Town to
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meet its communities facilities demands without major problems.
According to the Superintendent of Schools for Onslow County,
schools in the Swansboro area have had a decline in student population
over the past few years. In a telephone interview with the Superinten-
dent in May, 1980, he stated that the Swansboro area schools could accomm-
odate substantial growth with their present facilities. The responses
to this telephone interview are contained in the section of Existing
Conditions. Therefore, it appears that school facilities will continue
to be adequate throughout the planning horizon.
In the area of Public Works, the recently completed Wastewater Treat-
ment Plant has a design capacity for twenty years and should accommodate
growth in the Swansboro area with little or no problem through the next
ten years. Of course, as land is developed additional sanitary collection
lines will be necessary. According to the Town's consulting engineer,
the water supply facilities for the Town may need expansion by the end
of the planning horizon. Within the next seven or eight years the Town
may also need to increase its elevated water storage capacity. At this
point or perhaps earlier, the Town should examine the possibility of pur-
chasing water from the Onslow County Water System which is presently under
construction. The present water supply for the Town is marginal from the
standpoint of quality. The Town utilizes a cold -lime softening process,
but still receives numerous complaints from water customers concerning
hardness. Therefore, the Town should continue its efforts in monitoring
the quality of the groundwater, and considering modifications to the
treatment process to keep the.groundwater quality at least at its present
level. Although the Town has received a significant number of complaints
about the quality of municipal streets, all municipal streets are paved
-44-

Y
and relatively free of potholes. The municipal Public Works Department
is presently improving its routine maintenance capabilities, and this
should result in improved street maintenance in the future. As new
tracts of land are developed the Town should encourage the addition of
new streets to the N. C. Department of Transportation Secondary Road
System. In some instances, 'this -will not be possible, but where it is
practical it should be attempted. Increases in Powell Bill allocations
` for the Town do not meet the future expenses of maintaining new streets
since only 25% of the allocation is based on street mileage. Finally,
the Town, within the financial resources available, should attempt to
complete the rennovation of the Swansboro Town Hall.
A review of the portion of the 1976 Land Use Plan dealing with
community facilities demands demonstrates clearly that substantial improve-
ments have been made. The 1976 document called for completion of the
municipal Wastewater Works, widening of N. C. Highway 24, completion of
the new Junior High School, and construction of a new recreation area.
All of these communities facilities goals have been met as of 1980.
Percentage of Utilization
.The new Swansboro Wastewater Treatment Plant Design capacity is
300,000 gallons per day. Problems with the recently installed flow
meter make actual precise measurements difficult at the present, how-
ever, the Public Works Director estimates that the Average Daily Flow
is approximately 75,000 to 90,000 gallons per day, and the peak daily
flow is 100,000 to 110,000 gallons per day. Hence, the percentage of
watertreatment capacity used is approximately 30% to 35%.
Accurate data is available for water supply facilities. Average
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daily use is approximately 195,000 gallons per day and the peak daily
amount is approximately 220,000 gallons. The Operation Reports to the
Division of Health Services shows average daily pumping figures of
196#200 in May of 1980, and 203#107 in August of 1979.. This report shows
peak daily figures of 210,000 in May 1980, and 218,150 in August of 1979.
Therefore, the Town.is presently using approximately 42% to.48% of the
system's capacity.
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V. F(TI'URE LAND NEEDS
Using an estimated average family size of 2.4 persons per household
and a projected 1990 population of 1676, Swansboro should experience an
increase of approximately 138 households. If all of these households were
housed in single-family detached houses of 1/3 acre tracts, 46 acres addi-
tional residential land would be needed by 1990. There is enough land in
the woodsland (Forestland) category alone to meet this need.
Predictions of precise needs of land area amounts for industrial,
commercial, and other specific land use needs are beyond the scope of
this report given the correct lack of clearly stated detailed local poli-
cies concerning annexation, and land use controls industrial recruitment,
etc. For future growth to occur land use conversions will be necessary,
but due to the low level of woodsland management and the development which
has occurred, continguous to cultivated areas (Swansboro Heights), this
does not appear to be a problem.
For this reason, except for AEC's, virtually all land in Town should
be classified as Developed or Transition with the possible exception of
fields under intense cultivation when the owner requests a Rural Classifi-
cation.
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VI., POLICY STATEMENTS AND
IMPLIIMENTATION METHODS
1. Resource Protection
Areas of Environmental Concern
The types of Areas of Environmental Concern present in.Swansboro are
Coastal Wetlands, that is marsh grass areas and other frequently flooded _
areas, Estuarine Waters, such as the White Oak,River Intracoastal Water-
way, creeks and bays, Public Trust Areas, which is the tidal zone. Final-
ly, a significant amount of land area in Swansboro is in the Estuarine
Shoreline category. There are presently no Ocean Hazard areas, public
Wellfield AEC's,.Fragile Coastal Natural and Cultural Resource Areas in
the Town of Swansboro. Problems such as erosion and identification of
the precise mean high water line and other similar problems prevent an
accurate measurement of the ADC land area, therefore, no attempt at such
a measurement has been made here.
Since there are no Ocean Hazard Areas in the planning area and the
Town is not anticipating any annexation which would include Ocean Hazard
Areas, these areas are not pertinent to the Swansboro Land Use Plan. The
Swansboro water system wellfield is located in an area surrounded by single-
family residential development. The only undeveloped land near the well -
field is owned by the Town, therefore, it does not appear that the public
wellfield type of area is pertinent to this discussion. Finally, it does
not appear that Swansboro contains significant Fragile Coastal Natural
and Cultural Resource Areas, therefore, this category has also been summari-
ly dismissed. Of course, Swansboro does possess numerous structures of
historic origin with a considerable amount of architectural significance,
however, there are other regulatory measures which are more appropriate
-48-

to protection of this type of property, such as, historic district
regulations. The Town of Swansboro should, within the next one to
two years, make a detailed examination of the need for and cost of a
local historic district regulations program. At the present time, it
appears that this would be a difficult program to administer since the
Town presently has the services of a part-time building inspector, and
such a program would require detailed design reviews.
Partially in response to public sentiment, the Town declares here
that the state Coastal Management Regulations at 15 NCAC 7H are at least
adequate to protect the Areas of Environmental Concern located in the
planning area. In same instances, these regulations may in fact be over
restrictive, however, the Coastal Resources U mission has removed nuch
of the local authority over questions such as these. It appears that
the only two pertinent questions are, should the Town of Swansboro attenpt
to strengthen the Coastal Management Regulations and should enforcement
be local or by.the state? The findings here are that the Coastal Manage-
ment Regulations are at least adequate and that enforcement should be by
the Town of Swansboro to prevent or minimize administrative delays and in-
convenience to the public. The Board of Commissioners should keep the
staffing for the local minor development permit system current, and ensure
that whoever is responsible for this task is certified by the N.C. Depart-
ment of Natural Resources and Community Development. The Board should also
attempt to guarantee that the local permit officer participate in the in-
service training sessions, which are offered by the office of Coastal
Management. In recent months, the Town has inproved its performance in
this area, clarifying the permit responsibilities and securing certification
-49-

for the local permit officer. Unfortunately, the permit officer has
been unable to schedule attendance at training sessions, but will attempt
to do so in the future.
Listed below are the various types of AEC's in the Swansboro area, a `
description of each type, and the appropriate type -of land use for each
type. This information is drawn directly from.the Coastal Management
Regulations located.at 15 NCAC.7H. Effective.enforcement.of these use
standards should result in a rational and coordinated management of
coastal resources. The benefits to the cc m mity should include pro-.
tection of biological productivity and protection of recreational and
aesthetic resources. Protection :of -common law and statutory public rights
in theJands and waters of the coastal area, and mitigation of damage due
to storms and hurricanes are other obvious benefits to the public.
Estuarine.Shoreline
Estuarine shorelines are those non -ocean shorelines which are espe-
cially vulnerable to erosion, flooding, or other adverse effects of wind
and water and are intimately connected to the estuary. This area extends
from the mean high water level or normal water level along the estuaries,
sounds, bays, and_ brackish waters, for a distance of 75 feet .landward. De-
velopment within estuarine shorelines influences the quality of estuarine
life and is subject to the damaging processes of shore front erosion and
flooding.
Shoreline development should be canpatible with both the dynamic nature -
of estuarine shorelines and the values of the estuarine system. In Swans-
boro, this area is generally described as the land from mean high water ex-
tending 75 feet landward along the shoreline of the White Oak River and .
Hawkins Creek.
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Use Standards
1) All development projects, proposals, and designs shall substantially
preserve and not weaken or eliminate natural barriers to erosion, includ-
ing, but not limited to, peat marshland, resistant clay shorelines, cypress -
gum protective fringe areas adjacent to vulnerable shorelines.
2) All development projects, proposals, and designs shall limit the con-
struction of impervious surfaces and areas not allowing natural drainage
to only so much as is necessary to adequately service the major purpose
or use for which the lot is to be developed. Impervious surfaces shall
not exceed 30 percent of the ADC area of the lot, unless the applicant
can show that such a limitation will allow no practical use to be made
of the lot.
3) All development projects, proposals, and designs shall comply with
the following mandatory standards of the North Carolina Sedimentation
Pollution Control Act of 1973.
(A) All development projects, proposals, and designs shall provide
for a buffer zone along the margin of the estuarine water which is
sufficient to confine visible siltation within 25 percent of the
buffer zone nearest the land disturbing development.
(B) No development project proposal or design shall permit an
angle for graded slopes or fill which is greater than an angle which
can be retained by vegetative cover or other adequate erosion -con-
trol devices or structures.
(C) All development projects, proposals and designs which involve
uncovering more than one acre of land shall plant a ground cover
sufficient to restrain erosion within 30 working days of completion
of the grading; provided that this shall not apply to clearing land
for the purpose of forming a reservoir later to be inundated.
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4) Development shall not have a significant adverse impact on estuarine
resources.
5) Development shall not significantly interfere with existing public
rights of access to, or use of, navigable waters or public resources.
6) No major public facility shall be permitted if such facility is
likely to require extraordinary public expenditures for maintenance `
and continued use, unless it can be shown that the public purpose
served by the facility outweighs the required public expenditures for
construction, maintenance, and continued use. For the purpose of this
standard, "public facility" shall mean a project which is paid for in
any part by public funds.
7) Development shall not cause major or irreversible damage to valuable,
documented historic architectural or archaeological resources.
Coastal Wetlands
Coastal Wetlands are defined as any salt marsh or other marsh sub-
ject to regular or occasional flooding by tides, including wind tides
(whether or not the tide waters reach the marshland areas throughnatural
or artificial watercourses), provided this shall not include hurricane
or tropical storm tides.
Coastal wetlands contain some, but not necessarily all, of the
following marsh plant species:
1) Cord Grass (Spartina alterniflora),
2) Black Needlerush (Juncus.roemerianus),
3) Glasswort (Salicornia spp.).
4•) Salt Grass (Distichlis spicata),
5) Sea Lavender (Limonuim'spp.).,
6) Bulrush (Scirpus spp.),
7) Saw Grass (Cladium jamaicense) ,
8) ' Cat -tail (Typha spp.) ,
9) Salt Meadow Grass (Spartina patens),
10) Salt Reed Grass (Spartina cynosuroides),
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The unique productivity of the estuarine system is supported by
detritus (decayed plant material) and nutrients that are exported from
the coastal marshlands. The amount of exportation and degree of inr
portance appears to be variable from marsh to marsh, depending primarily
upon its frequency of inundation and inherent characteristics of the
various plant species. Without the marsh, the high productivity levels
and complex food chains typically found in the estuaries could not be
maintained.
Man harvests various aspects of this productivity when he fishes,
hunts, and gathers shellfish from the estuary. Estuarine dependent
species of fish and shellfish such as menhaden, shrimp, flounder, oysters,
and crabs currently make up over 90 percent of the total value of North
Carolina's commercial catch. The marshlands, therefore; support an enor-
mous amount of commercial and recreational businesses along the seacoast.
The roots, rhizomes, stems, and seeds of coastal wetlands act as good
quality waterfowl and wildlife feeding and nesting materials. In addition,
coastal wetlands serve as the first line of defense in retarding shore-
line erosion. The plant stems and leaves tend to dissipate wave action,
while the vast network of roots and rhizomes resists soil erosion. In
this way, the coastal wetlands serve as barriers against flood damage and
control erosion between the estuary and the uplands.
Marshlands also act as nutrient and sediment traps by slowing the
water which flows over them and causing suspended organic and inorganic
particles to settle out. In this manner, the nutrient storehouse is main-
tained, and sediment harmful to marine organisms is removed. Also,
pollutants and excessive nutrients are absorbed by the marsh plants, thus
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providing an inexpensive water treatment service.
Use Standards. Suitable land uses shall be those consistent with
the management objective in this Rule. Highest priority of use shall be
allocated to the conservation of the existing coastal wetlands. Second
priority ,of coastal wetland use shall be given to those types of develop-
ment activities that require water access and cannot function elsewhere.
Unacceptable land uses may include, but would not be limited to, the
following examples: restaurants and businesses; residences, apartments,
motels, hotels, and trailer parks; parking lots and private roads and
highways; and factories. Exwplesof acceptable land uses may include utility
easements, fishing piers, docks, and agricultural uses, such as farming
and forestry drainage, as permitted under North Carolina's Dredge and Fill
Act and/or other applicable laws. Generally, this area is comprised of all
areas where marsh grass is growing. The largest site is between.Swansboro
Elementary School and the causeway bridge.
Estuarine Waters
Estuarine waters are all the waters 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.
Estuarine waters are the dominant component and bonding element of the
entire estuarine system, integrating aquatic influences from both the land
and the sea. Estuaries are among the most productive natural environments
of North Carolina. They support the valuable commercial and sports fisheries
of the coastal area which are comprised of estuarine.dependent species such
menhaden, flounder, shrimp, crabs, and oysters. These species must spend all
-54-

or some part of their life cycle within the estuarine waters to mature and
reproduce. Of the 10 leading species in the commercial catch, all but one
are dependent on the estuary.
This high productivity associated with the estuary results from its
unique circulation patterns caused'by tidal energy, fresh water flow, and
shallow depth; nutrient trapping mechanisms; and protection to the many
organisms. The circulation of estuarine waters transports nutrients, pro-
pels plankton, spreads seed stages of fish and shellfish, flushes waters
from animal and plant life, cleanses the system of pollutants, controls
salinity, shifts sediments, and mixes the water to create a multitude of
habitats. Some important features of the estuary include mid and sand
flats, clam and oyster beds, and important nursery areas.
Secondary benefits include the stimulation of the coastal economy
from the spin-off operations required to service commercial and sports fish-
eries, waterfowl hunting, marinas, boatyards,'repairs and supplies, processing
operations, and tourist related industries. In addition, there is consid-
erable nonmonetary value associated with aesthetics, recreation, and educa-
tion.
Use Standards. Suitable land/water uses shall be those consistent with
the management objectives'in this Rule. Highest priority of use shall be
allocated to the conservation of estuarine waters and its vital components.
Secondary priority of estuarine waters use shall be given to those types
of development activities that require water access and use which cannot
function elsewhere such as simple access channels; structures to prevent
erosion; navigation channels; boat docks, marinas, piers, wharfs, and
mooring pilings. In Swansboro, this ADC includes the White Oak River
-55-

excluding the tidal zone and shoreline and a very small portion of the
center of Hawkins Creek near its mouth.
Public Trust Areas
Public trust areas are all waters of the Atlantic Ocean and the lands
thereunder from the mean high water mark to the seaward limit of. state
jurisdiction; all natural bodies of water subject to measurable lunar
tides and lands thereunder to the mean high water mark; all navigable
natural bodies of. water and lands thereunder to the mean high water level
or mean water level as the case may be, except privately owned lakes to
which the public has no right of access; all water in artificially created
bodies of water containing significant public fishing resources or other
public -resources which are accessible to the public by navigation from
bodies of water in which the public has rights of navigation; and all waters
in artificially created bodies of water in which the public has acquired
rights by prescription, custom, usage, dedication, or any other means. In
determining whether the public has acquired rights in artificially created
bodies of water, the following factors shall be considered:
1) the use of the body of water by the public,
2) the length of time the public has used the area,
3) the value of public resources in the body of water,
4) whether the public resources in the body of water are
mobile to the extent that they can move into natural
bodies of water,
5) whether the creation of the artificial body of water
required permission from the state, and
6) the value of the body of water to the public for navi-
gation from one public area to another public area.
The public has rights in these areas, including navigation and recreat-
ion. In addition, these areas support valuable commercial and sports fish-
eries, have aesthetic value, and are important resources for economic develop-
-56-

ment.
Use Standards. Acceptable uses shall be those consistent with -the
management objectives of this Rule. In the absence of overriding public
benefit, any use which significantly interferes with the public right of
navigation or other public trust rights which the public may be found to
. have in all of these areas shall not be allowed. The development of
navigational channels or drainage ditches, the use of bulkheads to prevent
erosion, and the building of piers, wharfs or marinas are examples of uses
that may be acceptable within public trust areas, provided that such uses
will not be detrimental to the public trust rights and the biological and
physical functions of -the estuary. Projects which would directly or in-
directly block or impair existing navigation channels, increase shoreline
erosion, deposit spoils below mean high tide, cause adverse water circu-
lation patterns, violate water quality standards, or.cause degradation of
r shellfish'waters are generally considered incompatible with the management
policies'of public trust areas. .This area is conprised of the tidal zone
of the White Oak River and possibly a very small narrow area on Hawkins
creek.
2. Resource Protection Issues
Soils information at the present time is so general that it is diffi-
cult to address this issue. However, if the Board of Commissioners adopts
a pending Draft Subdivision Regulations Ordinance, a review of soil con-
ditions will be required when land is divided. There does not appear to
be any serious soils problems since the Town is severed. The Public Works
Department is attempting to eliminate the few septic tanks in use in Town.
There are approximately four septic systems currently in use. One was
-57-

eliminated in June of 1980.
Currently, the Town is participating in the Emergency Phase of
the National Flood Insurance Program. The Federal Emergency Manage-
ment Agency, through its consultant Tetra-rech, Inc., of Pasadena,
California, is conducting a rate -making study. The Town has not
been informed when the study will be completed, but when completed
steps should be taken to conply with the minimum regulatory require-
ments. Presently, enforcement is through the Building Inspection Pro-
gram and there appears to be no reason to modify this system.
Other hazards or fragile land area protection appears to be large-
ly irrelevant (see comments above). There is very little land area
where hazardous toxic or explosive material is stored. Casper's Marina
and Clyde Phillips Seafood own gasoline and diesel storage and pining
facilities, but these businesses have had good safety records. The
NPDES system, OSHA regulations and the Municipal Fire Prevention Code
contain adequate regulatory authority to protect the public should the
situation change. The ADC system of protection appears adequate for
other fragile areas.
Swansboro is periodically threatened by hurricanes but unlike
barrier island communities is not subject to the ocean surge and is
not heavily dependent on evacuation across bridges. There are seven
structures located on the causeway but none of these are residential.
Major responsibility for emergency preparedness rests with the Onslow
County Emergency Preparedness. Office in Jacksonville. Within the next
year all elected officials should re-examine emergency authority statutes.
The Town should also purchase weather radios and invite closer comnuni-
-58-

cation between the Town and the County Emergency Preparedness Office.
The official evacuation plan should be posted in; the Town Hall. tiese
steps should be taken within the next 12 to 18 months.
• 3. Resource' Production and Management
Within the Swansboro Town limits there are no known mining opera-
tions or potential deposits of valuable minerals. Theamountof land
demoted to agriculture and forestry is extremely limited with only one
identified farm in the Town limits. Commercial forest lands existing in
potential mineral production areas are so insignificant that they will
not be addressed in this report. Productive agricultural lands because
of the limited amount are only marginally relevant.
At the present time there appears to be no problem with incommPat-
ibility of land uses ,due to the Freshwater farm, therefore, a neutral
position is probably the best course to take. Under this type of policy
the Town would neither attempt to preserve agricultural land or encourage
land use conversion to more urban types. The Freshwater farm is classi-
fied Rural.
The most important resource production and management issue in
Swansboro is the one concerning cmr ercial and recreational fisheries.
There is a considerable amount of large and small scale commercial fish-
ing in Swansboro and the fringe area. There is one commercial fishing
boat marina in Swansboro which has dock space for approximately four
large shrimp boats. This facility, Phillips Seafood, is also a retail
outlet for shellfish and finfish. Further, many semi -retired individuals
derive all or a portion of their income through small scale fishing.
activities. There may be as many as 30 or 40 people who. derive a major
-59-

part of their income fraL the harvest of clams, crabs, shrimp, and
finfish. A recent report commpiled by the N. C. Office of Civil Works
states, "One can safely say that the Swansboro area has been a fishing
village during its entire life. Approximately 20 to 30_years ago
fishing became a major industry of the area...". The statistics con-
tained in this report are not limited to the Town proper but also in- °
clude the fringe area. However, the statistics do demonstrate that ,
seafood is a major industry in the Swansboro area. This report states
that the gross annual value of coommmercial fishing in the Swansboro area
is 1.2 million dollars. Further, the Swansboro area includes approximately
23 ccm ercial fishing vessels over 40 feet and 13 commercial fishing
vessels under 40 feet. The N. C. Marine Fisheries Division reports 51
full time commercial fishing licenses, 242 part-time conw-rcial fishing
licenses, and 58 pleasure fishing licenses. The Office of Civil Works
has also concluded that there are approximately 18 to 20 thousand sport
fishing launchings, and has set the value of. sports fishing trade at .
marinas, tackle shops, restaurants, etc. at 2 million dollars in gross
sales (1978) . The importance of both commimercial and recreational fish-
eries is major.
Basically, the Town may pursue any one of three fisheries policies.
The first option would be one aimed at elimination or de-eaphasis of the
fisheries industry. Since this industry has produced few, if any, pro-
blems for the community as a whole,, this option seems ill-advised. The
second option would be neutrality where the Town does not take measures
to discourage or encourage the fisheries industry. The final option »
would be one of stirmulating comercial and recreational fisheries. This
W

report concludes that counercial fisheries provide valuable and popular
food products and should be encouraged. Recreational fisheries which
generate local spending from outside the planning area and which are
extremely popular with many of Swansboro's citizens,should also be
encouraged. In recent months the Town has taken specific actions which
mist be considered stimulation of the fisheries industry. In June, 1980,
the Town of Swansboro sponsored an environmental mediation session with
the purpose of resolving disputes between environmental groups interested
in the White Oak River and Bogue Inlet. Also, in 1979 the Town unsuccess-
fully applied for a Harbor of Refuge grant from the state of North Carolina.
This Land Use Element re=mtiends that the Town continue to support efforts
to inprove the White Oak River and Bogue Inlet, and that the Town also will
attempt to increase recreational access to the White Oak River. The Town
will also actively support maintenance and improvement of Ham ocks Beach
State Park. The Town will also continue its ongoing effort to reduce
pollution of shellfish waters. The recent completion of the Swansboro
Wastewater Treatment Plant has greatly reduced the pollution of shellfish
waters in the White 0ak River. All of these efforts should be ongoing
and therefore,a specific deadline for these efforts is not practical. These
efforts will also be dependent on local, state, and federal financial re-
sources.
A pro -fisheries policy would appear to be consistent with citizen
opinions as expressed in the Land Use Citizen Opinion Survey responses.
A majority of those responding were in favor of improving access and
parking at or near the White 0ak River. The open-ended questions solicited
numerous favorable responses related to fishing and there were no negative
-61-

remarks on this subject.
Since the Town of Swansboro does not include any ocean beach areas
or dunes, off road vehicles are not a relevant question.
4. Economic and Conymnity Development
As shown in other portions of this report, the economy of Swansboro
is characterized by small service establishments, fishing, and residential `
functions. The lack of manufacturing industries and medium sized commer-
cial establishments has had an extremely limiting effect on the municipal
tax base. The overall lack of growth has also resulted in Swansboro's
citizens being required to drive long distances to work and shop. In
spite of these problems a substantial segment of the community is against
population growth and conmercial-and industrial development, as well as
development of multi -family housing, according to the Citizen Opinion
Survey responses. However, we should remain aware that a majority of
the residences of Swansboro did not respond, to the survey. Approximately
35% of the questionnaires distributed were returned.. Approximately 46.8%
of the respondents stated that they would like to,see the. population of
Swansboro stay the same during the next five years. Only 40.1% called
for a slight increase in population and there were scattered responses,
calling for large population increases (7.7%), and population reduction
(5.1%). The survey responses did indicate strong support for a water-
front/commercial district :its program, new commercial development,
and new light industrial development.
The Town of Swansboro has four policy.choices in the area of general
economic and community development or in more sinple terms, growth policy. •
The Town could actually. attempt to discourage new ccmu nity and economic
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development. Such a policy could be achieved by declaring a moratorium
on new building permits, water and sewer taps. or other extreme measures.
The legality of such measures is somewhat questionable.. A less severe
policy would be to take a neutral position where the Town would neither
encourage or discourage growth. A third policy choice would be for the
Town to atten-pt to accommodate growthwhenpresented with specific develop-
ment proposals, but to refrain from active recruitment and encouragement
of new development. The final policychoice is one where the Town actively
encourages and attecTpts to recruit new economic and conmunity development.
Of course, this policy would not preclude ruling out certain types of -new
development which, due -to environmental considerations, are not in the best
interest of the canmuiity. The Town of.Swansboro hereby endorses the third
option where specific development proposals will be examined on a case by
case basis. This policy appears to be consistent with recent decisions by
the Board of Conmissioners. An illustration is the decision by the Board
of Conrd.ssioners not to apply for Economic Growth Center status. Such a
case by case approach would also appear to be consistent with opinions of
the citizenry.
It is not wise to provide specific information about potential indus-
trial sites in a document of this sort since this type of discussion can,
lead to artificial increases in the price of land. The Board should attempt
to direct new development to areas not included in the 100 year flood plain
or the Areas of Environmental Concern. The areas classified as transition
and rural on the 1977 Land Classification Map appear to be the best loca-
tions for new developmmt. Of course, where possible, new commercial develop-
ment should be directed toward the Central Business District. Although,.
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limited parking spaces in the Central Business District will make it
difficult to accommodate firms which are dependent on large parking areas.
The unincorporated fringe areas contain several good locations for new
development, and the Town should maintain an ongoing process of review-
ing potential locations for annexation.
The Town should attempt to accomodate new small and medium size
light industry and,in certain limited circumstances,small medium industry
developments.
Where specific development proposals are evaluated the cost of pro-
viding water, sewer, streets, and other public services should be carefully
considered. Water and sewer utility extensions should be, financed munici-.
pally only when other financing alternatives, such as grants from the Eco-
nomic Development Administration and the N.C. Clean Water Bond Fund are
not available. Even in this situation the Board of Commissioners should
consider the long-term cost of providing utilities and other public services,
and whether, the utility and development will be a net positive financial
development for the Tom when considering its effect on water, sewer and
sanitation fees, ad valonun tax receipts, revenues, and all other factors
which influence the financial condition of the municipal government.
Within the Town's limited resources redevelopment of the existing
Central Business District and waterfront area should be encouraged. The
waterfront ca q=ent of this policy statement includes local support for
maintenance and improvement of public access, inprovement of the White Oak
River and Bogue Inlet. The Town should also encourage the vitality of
Camp LeJeune Marine Corps Base and Cherry Point Marine Corps Air station. •
This policy statement is in recognition of the importance of these two
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military facilities to the local economy which is illustrated by the
large number of Swansboro residents which are employed at these two
bases.
The Town should not express a blanket policy on energy facility
siting and development, but should carefully examine any specific pro-'
u
posal presented to the Town keeping in mind the Tom's limited ability
to furnish cooling water and other services required for -such a sophisti-
cated process.
When reviewing development proposals the critical public service
questions appear to center on water and sewer facilities. The Town
should receive written evaluations from its consulting engineer when
furnished proposals from -potentially large water users, such as poultry
processors. Further, all potential industrial developments should be
evaluated in terms of cmpliance with the new Swansboro Sewer Use Ordi-
nance -which sets limits on acidity, temperature, etc.
A. Implementation Methods
Within the financial limitations the Torun should participate in
joint local governmental efforts to improve Bogue Inlet and the White
Oak River. A highly informal timetable for completion of this project
should be within the next 3 to 6 years. Such a project will be heavily
dependent on a massive infusion of federal dollars through the Corps
of Engineers. Within the 'next five years the Town should also begin
detailed planning for expansion of the Swansboro municipal water plant.
Within the next l to 2 years the Town should discuss with the Onslow
r County Water System the possibility of sharing water supplies. 'This
discussion should include an investigation of the feasibility of pur-
chasing water from the Onslow County System on a routine basis. In
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approximately 12 to 24 months the own should examine the adequacy of
the Municipal. Zoning Ordinance. This analysis should be done with the
benefit of the coapletely certified Land Use Plan and new 1980 Census
data. Within the next 3 to 5 years the Town should examine the need
for annexation.
All statements contained in this document are conditioned by the a
Town's financial ability to pay for the improvements. Many of these
financial considerations are primarily political issues and therefore,
land use plans cannot limit an elected governing body to a specific
course of action on any particular question. Finally, the Board of
Commissioners shall continue to exercise their right to weigh practical
considerations when making land use and land use related decisions.
5. Continuing Public Participation
The Town of Swansboro will attempt to achieve strict compliance
with all public participation legal requirements. Within financial
limitations, the Town Clerk will be provided in-service training to
enable her to keep abreast of evolving legal requirements.
Where feasible, the Town will attenpt to supplement legally
required public participation measures with extra public hearings,
press releases, handbills posted on the Tom Hall bulletin board, and
in the business district. In the next 3 to 5 years the Board of Com-
missioners will re-examine the need for a Planning Board staffed by
citizen members.
During the preparation of this Land Use Element several public
participation methods were used. Land use questions were discussed
in regular meetings of the Swansboro Board of Commissioners, a Citizen

Opinion band use survey was distributed to every building in Swansboro,
and two public hearings were conducted by the Board of Camussioners.
Of those surveyed 35% responded. Attendance was low at the public hear-
ings. A. copy of the questionnaire and the. tabulated responses is shown
in the appendix.
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VII. TOWN -COUNTY COORDINATION
There are several areas in which it will be mutually beneficial for
the Town of Swansboro and the County of Onslow to work cooperatively to-
ward a conTon end, and to eonmmicate effectively on a day to basis.
At the present time there is a good level of commnication between the
Town Administrator & Planner's Office and the Onslow County Planning De-
partment. Above staff level there is a need for hrprovement.
Specifically, the two governmental units should work closely on the
Proposed project to improve the White Oak River and Bogue Inlet, economic
development in general, land classification, and water and sewer utilities.
Attachment B to the funding agreement for this project specifically re-
quired an examination of the extension of the Onslow County Water System
into the Swansboro Area 201 Facilities.Service District. The extremely
large area covered.by this service boundary presents extremely difficult
problem.
Realistically, the Town of Swansboro cannot serve the entire 201
Facilities Area even over the next 20 years. Where feasible, effective
planning should prevent situations where property owners are served by
the Town of Swansboro for sanitary sewer service and by Onslow County
for water service. Such a service delivery system will result in poor .
management of utilities rights -of —way, confusion on the part of the pro-
perty owners in the area of maintenance, and inefficient use of equipment,
vehicles, and manpower in maintenance. In order to minimize these problems
the local governmental unit should exchange information in the initial
stages of requests for water and sewer utilities service within the Swans-
boro 201 service area. To illustrate this point, if a developer contacts
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the Onslow County Water System and requests water service, the Water
System should in turn in the initial stages of consideration of the
request, contact the Town of Swansboro to determine if Swansboro can
ti
serve the property owner. If the Town can serve the property owner,
the County should give the Town this opportunity. Onslow County should
' also consider participating financially in extensions by the Town of
Swansboro when these extensions are in the unincorporated portion of
the 201 service district. - This practice has been followed in several
areas of the state.
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Further, the Town of Swansboro should be provided information in
the initial planning stages when the Onslow County Water System is con-
sidering any construction or acquisition within three miles of the Town
of Swansboro. This coordination should occur before engineering work
is initiated. Special attention should be devoted to careful location
of well sites so that acquifers are not adversely effected due to
municipal and county wells being located too close to each other.
The policy recommended here recognizes that in some instances
it will not be feasible for the Town of Swansboro to provide service in
extra -territorial portions of the 201 service district, however, this
possibility should be considered and, where feasible, water and sewer
utilities should be provided by the Town rather than by the Onslow
County Water System.

STATE LICENSES AND PERMITS
Agency Licenses and Permits
Department of Natural Resources and Community - Permits.to discharge to surface
Development waters or operate wastewater
Division of Environmental Management treatment plants or oil discharge
permits; NPDES Permits, (G.S. 143-
215)
Department of Natural Resources and
Community Development
Office of Coastal Management
Department of Natural Resources and
Camunity Development
Division of Earth Resources
Permits for septic tanks with a
capacity over 3000 gallons/day
(G.S. 143-215.3).
Permits for withdrawal of surface
or ground waters in capacity use
areas (G.S. 143-215.15).
-Permits for air pollution abate-
ment facilities and sources
(G.S. 143-215.108).
-Permits for construction of com-
plex sources; e.g. Parking lots,
subdivisions.;..stadiums, etc.
(G.S. 143-215.109).
-Permits for construction of a well
over 100,000 gallons/day (G.S. 87-
88) .
-Permits to dredge and/or fill in
estuarine waters, tidelands, etc.
(G.S. 113-229).
Permits to undertake development
in Areas of Environmental Concern
(G.S: 113A-118).
NOTE: Minor development permits
are issued by the local
government.
-Pemits to alter or construct a
dam (G.S. 143-215.66).
-Permits to mine (G.S. 74-51).
-Permits to drill an exploratory
oil or gas well (G.S. 113-381).
-Permits to conduct geographical
exploration (G.S. 113-391).
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-Sedimentation erosion control
plans for any land disturbing
activity of over one contiguous
acre (G.S. 113A-54).
Department of Natural Resources and
-Permits to construct an oil
Comttunity Development
refinery..
Secretary of NRCD
Department of Administration
Easements to fill where lands are
proposed to be raised above the
normal high water mark of navi-
gable waters by filling (G.S.
146.6 (c)) .
Department of Human Resources
Approval to operate a soild waste
disposal site or facility (G.S.130-
166.16).
Approval for construction of any
public water supply facility that
furnishes water to ten or more
residents (G.S. 130-160.1).
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Agency Licenses and Permits
Army Corps of Engineers -Permits required under Sections 9
(Department of Defense) and 10 of the Rivers and Harbors
of 1899; permits to construct in
navigable waters.
Permits required:under Section 1.03
of the Marine Protection Research
and Sanctuaries Act of 1972.
Permits required under Section 404
of the Federal Water Pollution
Control Act of 1972; permits to
undertake dredging and/or -filling
activities.
Coast Guard -Permits for Midges, causeways,
(Department of Transportation) pipelines over navigable waters;
required under the General Bridge
Act of 1946 and the Rivers and
Harbors Act of 1899.
-Deep water port permits
Geological Survey -Permits required for off -shore
Bureau of Land Management drilling.
(Department of Interior) Approvals of OCS pipeline corridor
rights -of -way.
Federal Energy Regulatory Commission Permits for construction, operation
and maintenance of interstate pipe-
lines facilities required under the
Natural Gas Act of 1938.
-orders of interconnection of elec-
tric transmission facilities under
Section 202(b) of the Federal Power
Act.
Nuclear Regulatory Commission -Licenses for siting, construction
and operation of nuclear power
plants; required under the Atomic
Energy Act of 1954 and Title II of
the Energy Reorganization Act of
1974.
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-Permission required for abandon-
ment of natural gas pipeline and
associated facilities under Section
7C (b) of the Natural Gas Act of
1938.
-Licenses for non-federal hydro-
electric projects and associated
transmission lines under Sections
4 and 15 of the Federal Power Act.
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