Land Use Plan Update-1986

1986
LAND USE PLAN UPDATE
PREPARED FOR:
THE TOWN OF SWANSBOR09 N.C:
BY:
PLANNERS a LANDSCAPE ARCHRECTS
Adopted March 6, 1986
Certified by the Coastal Resources Commission
May 30, 1986
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

1 9 8 6 L A N D U S E P L A N U P D A T E
Swansboro, North Carolina
Prepared by:
WOL U pumrgN
m
PLANNERS O LANDSCAPE ARCHITECTS
P.Q BOX 1110, ST. MARYS, GEORGIA 315M
Mary Ellen Johnson
Consultant
Adopted March 6, 1986
Certified by the Coastal Resources Commission
May 30, 1986
The preparation of this report was financed in part through a
grant provided by the North Carolina Coastal Management Program,
through funds provided by the Coastal Zone Managment Act of 1972,
as amended, which is administered by the Office of Oceanic and
Coastal Resource Management, N. O. A. A.

INTRODUCTION
The Coastal Area Management Act of 1974 establishes a coop-
erative program of coastal area management between local govern-
ments and the State. Land use planning is intended to be central
to the local government's involvement, because it gives local
leaders an opportunity to establish and implement policies to
guide the development of their community.
The Swansboro Land Use Plan is an expression of long range
planning goals in which the local government has set forth its
major policies concerning desirable future development over the
next ten years.
The land use plan is an important policy document at local,
regional, state and federal levels. The users, in addition to the
Town of Swansboro, are regional councils of government, state and
federal permitting agencies, and public and private funding and
development groups.
Local Government Uses
The plan provides policy guidance for decisions related to
overall community development, and provides the basis for land
development regulations and capital facilities programming. Plan-
ning for the provision of capital intensive services, such as
central sewer and water, is aided by the land use plan's identi-
fication of likely growth trends and by plan policies which will
effect growth.
Local Land Development Uses
Developers and investors (including prospective residents)
can use the land use plan as a primary source of information
about the community. The plan provides data and analysis on
present development patterns, capacity of community facilities,
population and growth patterns, and physical limitations, all of
which are useful in market analyses and other feasibility stu-
dies. The plan also provides the investor with information about
the community's preferences for development types, densities, and
locations.
Regional Uses
The Swansboro Land Use Plan will be used by the Neuse River
Council of Governments for regional planning purposes and in
their function as regional clearinghouse (A-95) for state and
federal funding programs. The local plan indicates to this agency
what types of development the community feels are likely and
where the development should take place.
ii

State and Federal Uses
Local land use plans are used in the granting or denial of
permits for various developments within the coastal area. State
and Federal agencies must ensure their decisions consider the
policies and land classification system established by this plan.
The Coastal Area Management Act stipulates that no development
permit may be issued if the proposed development is inconsistent
with the local land use plan. Similarly, decisions related to
the use of federal or state funds within the community and pro-
jects being undertaken by state and federal agencies themselves
must also be consistent with the local plan.
iii

TABLE OF CONTENTS
Introduction
Table of Contents
OVERVIEW OF THE LAND USE PLAN
Data Collection and Analysis
EXISTING CONDITIONS
Existing Land Use
Current Plans, Policies and Regulations
Community Facilities
Transportation
Economic Conditions
Physical and Environmental Constraints
Community Design Structure
GROWTH TRENDS
Population and Impacts on Community
Facilities
POLICIES:
RESOURCE PROTECTION
The Estuarine System
Natural and Cultural Resource Areas
Stormwater Runoff
Marina and Floating Home Development
Development of Sound and Estuarine Islands
RESOURCE PRODUCTION AND MANAGEMENT
Productive Agricultural Lands
Commercial and Recreational Fisheries
PHYSICAL CONSTRAINTS TO DEVELOPMENT
Soils and Septic Tank Suitability
Package Treatment Plants
PROVISION OF SERVICES TO DEVELOPMENT
Public Water Supply
Public Sewage System
Solid Waste Disposal
Transportation
Fire Protection and Rescue Squad
Police
page
ii
iv
1
1
1
1
8
9
13
15
16
22
25
25
ON
27
28
29
30
30
30
31
31
32
32
32
32
32
32
33
33
35
35
iv

Recreation
35
ECONOMIC AND COMMUNITY DEVELOPMENT 35
General Land Use Policy 35
Residential Development 36
Commercial Development 36
Industrial Development 37
Tourism 37
Historic District 37
Commitment to State and Federal
Programs 37
Intergovernmental Cooperation 38
STORM HAZARD MITIGATION AND POST DISASTER
PLANNING 38
CONTINUING PUBLIC PARTICIPATION
LAND CLASSIFICATION
APPENDIX
39
40
VA

LIST OF MAPS
page
Map 1 - Existing Land Use 3
Map 2 - Community Facilities 10
Map 3 - Environmental Determinants 17
Map 4 - Community Design Structure 24
Map 5 - Land Classification 41
LIST OF TABLES
Table
1
- Existing Land
Use Within Town Limits 4
Table
2
- Residential Land Use - 1985 and 1980 5
Table
3
- Existing Land
Use in Extraterritorial
Area
5
Table
4
- Existing Land
Use - Total Swansboro
Planning
Area 6
vi

OVERVIEW OF THE LAND USE PLAN
The Swansboro Land Use Plan Update can be divided into three
sections and an Appendix. The first of these, the Existing
Conditions section, is intended as an overview of current condi-
tions relevant to land use planning in Swansboro and its extra-
territorial planning area. The second section, Growth Trends,
projects population trends and briefly forecasts expected devel-
opment trends and their expected impacts on the Swansboro commun-
ity. The third section, Policies, establishes the Towns posi-
tions on issues of local and statewide importance. The Town"s
Post Disaster Reconstruction Plan is contained in the Appendix in
its entirety.
Data Collection and Analysis
Data found in the Swansboro Land Use Plan comes from many
sources. Sources of land use data include the 1980 Swansboro
and 1981'Onslow County Land Use Plans, tax map information avail-
able from the Onslow County Tax Department, and a field survey
conducted in January, 1985-, by Satilla Planning, Inc. Informa-
tion on land use controls and community facilities was gathered
from Town of Swansboro and Onslow County officials. Transporta-
tion statistics were made available through the N.C. Department
of Natural Resources and Community Development (NRCD) from N.C.
Department of Transportation sources. NRCD was also the source
for FEMA flood insurance rate maps used in the development of the
Environmental Determinants Map. Soils survey information was made
available by the Onslow County Soils Office. Environmental in-
formation on Areas of Environmental Concern was taken from Divi-
sion of Coastal Management Guidelines, and the Division of Marine
Fisheries provided information on shellfish beds. The N. C.
Division of Archives and History provided information on historic
resources in Swansboro. The N. C. Department of Administration
provided base population statistics. Sources are generally cited
in the course of the text and major conclusions follow as part of
plan analysis.
EXISTING CONDITIONS
The existing conditions section of this land use plan pre-
sents brief descriptions of the conditions pertinent to land use
in Swansboro. General section headings include: Existing Land
Use, Land Use Controls, Economic Conditions, Community Facili-
ties, Transportation, Physical and Environmental Constraints, and
Community Design Structure.
Existing Land Use
Swansboro is known for its historic, small town character
and lovely views of the White Oak River. Largely a residential
community, Swansboro is surrounded by a rural, agricultural area

which is beginning to witness residential development, particu-
larly near waterfront areas.
Existing land use is shown on Map 1. Acreage counts for the
corporate limits of Swansboro, its extraterritorial jurisdiction,
and the total planning area are found in Tables 1 through 4. A
descriptive summary for each land use category follows.
Residential
Residential land use in Swansboro includes single family
dwellings and duplexes, -mobile homes, and multi -family dwellings.
Single Family and Duplex
Almost every dwelling unit within the Swansboro town limits,
with the exception of a recently annexed multi -family project,
falls into this category. Of the 458 dwellings counted in the
1985 survey, 379, or 83 %, were single family units. Two dup-
lexes, one triplex and two (2) mobile homes were found within the
town limits. The average residential density in Swansboro for
single family and duplex units is.3.6 units per acre.
Within the extraterritorial area, there are 174 single fami-
ly dwellings on 126.6 acres, a net density of 1.4 units per acre.
Mobile Homes
Only two mobile homes were accounted for within the town
limits. Some 185 mobile homes, many of them located in mobile
home parks, can be found in the extraterritorial area. This land
use accounts for 53.8 acres. The average density per mobile home
unit is more than twice that of single family units (1.4 units
per acre) in the extraterritorial jurisdiction, at 3.4 dwellings
per acre. Within mobile home parks (98 units on a total of 16.7
acres) this figure again nearly doubles, to 5.87 units per acre).
Multi -family
In 1980 there were no multi -family residences in Swansboro.
This year, the first phase of Port West Apartments (16 units) was
built on 1.2 acres within the town limits. A 54 unit apartment
complex on 6.2 acres is located in Swansboro Hills. The average
density of these two multi -family projects is about 9.5 units per
acre. There are no multi -family units in the extraterritorial
area at present.
Planned Residential
Over 275 dwelling units are planned and/or under construc-
tion in the Swansboro vicinity. These developments include:
o Swansboro Heights Subdivision Extension (48 lots on 11
acres in an existing subdivision off Hammocks Road)
2

The preparation of this map was financed in part through a grant pro-
vided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as
amended, which is administered by the Office of Ocean and Coastal
Resource Management, N.O.A.A.
w
�tl
U 04
/ � � s RI �FR ��.. • .
<,
MARSH
Extent of Town's Jurisdiction
in White Oak River
LEGEND:
SINGLE FAMILY
® MOBILE HOME
MULTI -FAMILY
COMMERCIAL
INDUSTRIAL
PUBLIC & INSTITUTIONAL
RECREATION & OPEN SPACE
C� AGRICULTURE OR VACANT
PiCKETT 6AY �}
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Q��40
i
SWANSBOR09 N.C.
EXISTING LAND USE
200 Oe P, St—
soo owom. su..t
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MAP 1

TABLE 1. EXISTING LAND USE WITHIN TOWN LIMITSI
1985 1980
Net
Land Use Acres % Units Acres % Chanae ($)
Single Family,
Duplex
106.2
(28.8)
386
Mobile Home
.4
( .1)
2
Multi -family
7.4
( 2.0)
70
Total
Residential
114.0
(30.9)
458
Commercial
18.9
( 5.1)
Industrial
1.8
( .5)
Public
and Institu-
tional
33.5
( 9.1)
Parks and Open
Space
19.2
( 5.2)
Utilities
1.2
( .3)
Streets and
Roads
30..9
( 8.4)
Vacant,
Forested,
Agricultural
149.1
(40.5)
Totals
368.6
(100.0)
458
104.2 (32.5) + 1.3
0 - -
104.2
(32.5)
+ 9.0
17.1
( 5.3)
+10.5
1.8
( .5)
none
17.0
( 5.3)
+ 5.0
18.2
( 5.7)
+ .3
1.2
( .4)
none
29.2
( 9.1)
+ 5.8
131.7 (41.1)
320.4 (100.0)
+ 5.2
+ 9.3
11985 Land Use Data derived from field surveys and Onslow County
tax maps, January - February 1985. 1980 Land Use Plan data: 1980
Swansboro Land Use Plan.
4

TABLE 2. RESIDENTIAL LAND USE - 1985 AND 19801
1980 1985 Change (�)
Dwelling Units 410 458 + 12.0
Acres 104.2 114.0 + 9.0
Density per acre 3.9 4.0 + 2.5
TABLE 3. EXISTING LAND USE IN EXTRATERRITORIAL AREA2
Land Use
Acres
Percent
Units
Density
of total
Single Family
126.6
(6.2)
174
(1.4)
Mobile Homes
53.8
(2.6
185
(3.4)
Total Residential
180.4
(8.7)
359
(2.0)
Commercial
24.3
(1.2)
Public
and Institutional
.39.8
(1.9)
Utilities
12.4
( .6)
Parks and Open Space
2.8
( .2)
Streets and Roads
48.3
(2.3)
Vacant, Agricultural
and Forested
1754.4
(85.1)
Totals
2062.4
(100.0)
11985 Land Use Data derived from field surveys and Onslow County
tax maps, January - February 1985. 1980 Land Use Plan data: 1980
Swansboro Land Use Plan.
21985 Land Use Data derived from field surveys and Onslow County
tax maps, January - February 1985.
5

TABLE 4. EXISTING LAND USE - TOTAL SWANSBORO PLANNING AREAL
Land Use Acres Percent' Units Density
of total (units/acres)
Single Family,
Duplex
232.8
(9.6)
560
(2.44)
Mobile Homes
54.2
(2.2)
187
(3.48)
Multiple Family
7.4
( .3)
70
(9.46)
Total Residential
294.4
(12.1)
817
(2.81)
Commercial
43.2.
(1.8)
Industrial
1.8
( .1)
Public and
Institutional
73.3
(3.0)
Parks/Open Space
22.0
( .9)
Utilities
13.6
( .6)
Streets and Roads
79.2
(3.2)
Agriculture, Forested,
Vacant
1903.5
(78.3)
Totals
2431.0
(100.0)
11985 Land: Use Data derived from field surveys and Onslow County
tax maps, January - February 1985. 1980 Land Use Plan data: 1980
Swansboro Land Use Plan.
11

o Oyster Bay Subdivision (40 lots on about 25 acres o•n Mt.
Pleasant Road)
o River Reach Subdivision (151 units planned for 104 acres
just outside the Town"s extraterritorial jurisdiction).
o A 40 unit multi -family complex to be built on N.C. 24 on 8
acres just inside the town limits.
All of these developments will be served by the Town"s
wastewater treatment system; River Reach Subdivision is paying
for the installation of sewer lines along Mt. Pleasant Road and
will eventually turn them over to the Town upon completion.
Residential: Summary
There are 817 dwelling units within Swansboro"s planning
jurisdiction, a slight majority of them (458 to 359) located
within the town limits. Sixty-eight (68) percent of these units
are single family or duplex units. Twenty-three (23) percent are
mobile homes. Almost all mobile homes are located in the extra-
territorial jurisdiction.
Only two multi -family projects have been built in the Swans-
boro area,.making this the smallest category of housing units at
nine ( 9 ) percent.
Planned residential developments could cause a rapid in-
crease in the number of residential units in the Swansboro vicin-
ity in the next few years. At least 279 lots and units are
planned for development; if all are developed, the residential
dwelling count would increase by 34 percent.
Commercial
There are 18.9 acres of commercial land use in Swansboro, a
slight increase over 1980 acreage. Commercial uses include sev-
eral restaurants and small retail businesses in the downtown
area, a grocery store, drugstore, tire company, several eating
places and other retail uses on N. C. 24 near Hammocks Road.
Additionally, an ABC store and marine commercial uses are found
on the causeway crossing the White Oak River toward Carteret
County. Newly constructed commercial uses on N. C. 24 include a
Hardees restaurant and a savings and loan institution.
An additional 24.3 acres of commercially used land is found
in the extraterritorial area. Most of this acreage is found
along N.C. 24 north of the town limits. Uses include a furniture
store, automobile and mobile home sales, a roller rink, and
retail sales uses.
Industrial
The only acreage in this category is the 1.8 acre site of
the Swansboro Garment Company.
V7

Public and Institutional
Uses accounted for, within the town limits under the public
and institutional heading include churches and church -owned
lands, municipal land and buildings, the U. S. Post Office,
Swansboro Middle School, an additional school site, and the
Swansboro Cemetery. The increase in acreage in this category
since 1980 (from 17 acres to 33.5 acres) is due to the annexation
of Swansboro Middle School.
There are 39,.8 acres in this category in the extraterritor-
ial area. Uses include Swansboro High School and Swansboro
Junior High, Sanders Park, a cemetery and churches.
Utilities
Town -owned facilities, such as the well site and lift sta-
tions, make up the 1.2 acres in this category within the Town
limits. The wastewater treatment system accounts for the 12.4
acres within the extraterritorial area.
Streets and Roads
There are 30.9 acres of paved and unpaved roads within the
city limits and 48.3 acres within the extraterritorial jurisdic-
tion.
Vacant, Agricultural and Forested
This category accounts for more than forty percent of the
land area within the town "s corporate limits (149.1 acres), and
over 85 percent (1754.4 acres) of the land in the extraterrito-
rial area. This acreage does not include undevelopable islands
in the White Oak River. Most of the land in this category is
developable, although soil conditions (see Soils, p. ) the lack
of central sewer and water and the lack of direct road access for
acreage in the extraterritorial area and some parcels within the
town limits are constraints to development.
Current Plans, Policies and Regulations
Swansboro enforces zoning and subdivision regulations and
several chapters of the North Carolina Building Code.
Swansboro 1980 Land Use Plan Update
This document, authorized under the Coastal Area Management
Act, contains basic land use information and policy statements on
issues of state and local concern. The Coastal Area Management
Act requires that participating communities update their land use
plans every five years. The 1985 Land Use Plan Update supercedes
the 1980 Plan on adoption.
0

Swansboro Municipal Zoning Ordinancee
The Town"s previous ordinance was adopted in 1968 and was a
typical municipal ordinance offering a limited number of zoning
categories. For this last reason, it became necessary to sub-
stantially revise the code in order to accommodate the differing
land use make-up of the extraterritorial area. The new ordinance
was adopted in 1985.
The new ordinance will expand the present six district code
to include at least seven new residential districts, a new busi-
ness district and a light industrial district. The ordinance
closely follows that of Onslow County in an effort for consisten-
cy.
Subdivision Regulations
Swansboro enforces a subdivision code which includes site
design provisions for new residential development including
planned unit developments.
Flood Insurance Program
Swansboro is enrolled in the regular National Flood Insur-
ance Program and complies with all regulatory requirements. For
more information on flood hazards in Swansboro, see Hurricane
Hazard Areas, p. 18.
Impact Fee Ordinance
This ordinance was passed in 1985 and is designed to allo-
cate the cost of providing sewage treatment services to new users
on an equitable, user -oriented basis.
Sewer Ordinance
Passed November 7, 1985, this ordinance requires that
property owners outside the town limits who wish to be served by
the Town"s sewage treatment system must formally request service
and finance the cost of extension of services.
Community Facilities
Water
The Town of Swansboro supplies water and sewer services to
all developed areas in the Town and several areas within the
extraterritorial area. Swansboro"s water supply comes from Onslow
County"s central system, which has a capacity of 3 million gpd
and is distributed through the Town"s system. Onslow County is
progre-ssively extending its water lines to new areas in the
Swansboro vicinity. It is expected, on completion of water
distribution lines to the Deer Island Road area in early 1986,
E

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REAS SERVED BY SEWER LINES
AREAS SERVED BY TOWN OR COUNTY W
30RO HIGH & JUNIOR HIGH 9 FIRE
BORO MIDDLE SCHOOL 10 TOY
BORO TOWN PARK 11 ONS
Z PARK 12 U.S.
ATER HEIGHTS PARK 13 WAF
BORO RESCUE SQUAD 14 BICE
DAftA CI C\iC\ITA QV 4 G QCW
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that all residents of Swansboro and all but a handful of resi-
dents within its extraterritorial planning area will be served by
central water from the County system.
Town water system facilities include its distribution system
and a combined elevated and ground level storage capacity of
350,000 gpd. Areas served with water are identified. on Map 2,
Community Facilities. The Town"s main back-up well, which is
infrequently used, has a pumping capacity of 350 gpm.
Sewer
Swansboro"s sewage treatment system, which was built in the
late 1970"s to replace a plant with an outfall on the White Oak
River, has a capacity of 300,000 gallons per day. Peak average
daily flows are in the vicinity of 150,000 gpd, about fifty (50)
percent of capacity. Service areas, which include all developed
areas within the town limits, are shown on Map 2. A force main
has been extended to serve Swansboro High School and Swansboro
Junior High at the northern edge of the Town"s extraterritorial
area. A collection system has not been built for the area be-
tween the town limits and the two schools, and sewer service is
not available as yet on this portion of N. C. 24. Septic tanks
are used in areas not served with sewer lines. As of January
1986, only several users within the town limits will be without
sewer.
Areas within the extraterritorial jurisdiction which are, or
will be, served with sewer lines include:
o River Reach Subdivision at the terminus of Mount Pleas-
ant Road (S.R. 1448). Sewer lines are currently under
construction along Mt. Pleasant Road, and property
owners along this route will be able to tie into the
system. The developers of River Reach Subdivision are
installing lines and will eventually turn the improve-
ments over to the Town in accordance with a legal
agreement.
o Oyster Bay Subdivision. This planned development will
be developed on property between Mt. Pleasant Road and
S.R. 1444. Sewer lines are also under construction
here.
A recently annexed area which is served with sewer is Port
West Apartments, which is located next to Swansboro Middle School
on S.R. 1514.
Portions of the Town"s water and sewer distribution systems
are at least forty (40) years old. During periods of moderate to
heavy rain, the system maybe hydraulically overloaded. The sewage
treatment plant contains an oxidation ditch which is used at such
times to prevent the overflow of suspended solids. Treated
water, primarily rainwater, overflows from the oxidation ditch
11

and runs off. The nearest body of water is three -fourths of a
mile from the plant. Depending on the quantity and speed of the
runoff, this overflow can cause the temporary closure of nearby
shellfish beds due to freshwater flooding.
The Town of Swansboro has applied for a Community Develop-
ment Block Grant of $ 9,450 (dated April, 1985) to prepare
engineering feasibility surveys and a development plan with cost
estimates necessary to revitalize the water and sewer distribu-
tion system. This is the first step toward correcting deficien-
cies in the water and sewer systems, and, if funded, the Town
intends to pursue a capital improvements program to implement the
proposed modifications.
Fire, Rescue Squad and Police
The Swansboro Fire Department has an all -volunteer staff of
43 with facilities located Sabiston Avenue at the water plant.
The Department owns three 750 gpm pumpers, all over 10 years of
age. The Department provides mutual aid to Carteret and Onslow
Counties. With financial aid from Onslow County, the department
has established and operates a hazardous materials unit (HAZMAT)
which is on call to handle spills of hazardous materials.
The Swansboro Rescue Squad building is located on N.C. 24
adjacent to Wise"s Branch.
The Fire Department is financially supported in part by the
Town of Swansboro and Onslow County. The rescue squad is a
function of Onslow County and is not funded by the Town of
Swansboro. Service areas for both groups extend beyond the
Swansboro town limits, and in some cases beyond the Town"s plan-
ning jurisdiction.
The Town maintains a four -man police department which is
responsible for police protection within the town limits. The
Town"s police department maintains a mutual aid agreement with
Onslow County.
Solid Waste Disposal
Solid waste disposal for residents of the Town of Swansboro
is arranged by contract by the Town with a private contractor.
Terms vary according to the specific annual contract. Currently,
pickup occurs three times a week. Solid waste is trucked to the
County landfill, which was established two year ago in a rural
area of northwest Onslow County. Waste disposal in the
extraterritorial area is available on an individual basis through
private•contractors.
12

Recreation
Recreation facilities in the Swansboro community include a
17 acre park located on SR 1447, Sanders Park, located in the
extraterritorial jurisdiction, Edgewater Heights Park at the
intersection of Broad and Shore Drives, and at least eight water
access points, many of them undeveloped. Recreation facilities
are not overutililized at the present time.
The 17 acre park offers two regulation tennis courts, an
outdoor basketball court, an outdoor volleyball court, and a
multi -purpose playing field which is used for soccer, football,
baseball, softball and other sports.
The water access points are largely undeveloped. Bicenten-
nial Park, an open space area at the foot of the White Oak River
Bridge, offers an attractive vantage on the river, as does Wards
Shore, located at the west end of Water Street. In early 1985,
the N. C. Department of Transportation Bicycling Program
established. the Swansboro Bicentennial Bicycle Trail, a twenty
mile loop through Onslow and Carteret Counties which begins and
ends in Swansboro.
Transportation
Roadways
Road access is one of the key determinants of land use. The
availability of good road capacity and traffic volumes makes
adjoining land attractive for certain types of development, such
as commercial uses that depend on high visibility and accessibil-
ity for economic success. On the other hand, the overloading of
roads with ill -designed land uses, such as strip commercial
development along a highway, can lead to problems of traffic
safety, capacity and poor visual appearance.
Key roadways in and around Swansboro have been identified
and analyzed. The four road classifications used are: principal
arterial, minor arterial, major collector, and minor collector.
Principal Arterials
These roads are intended to serve a through traffic function
and interconnect with the Minor Arterial and major highway sys-
tems. They collect from other arterials to provide inter -communi-
ty and county continuity. They should not penetrate identifiable
neighborhoods. Land use along principal arterials should be
primarily higher intensity commercial and industrial, or medium
and high.density residential uses, with no direct highway access.
Through movement should always take precedence over access to
private property.
N.C. 24 is the principal arterial serving Swansboro.
13

Minor Arterials
These roads are intended to serve a through -traffic function
and interconnect with and augment the Principal Arterial System.
They link two arterials or one major collector and one arterial,
and distribute traffic to geographic areas smaller than those
identified with the higher system. Land use along minor arte-
rials may include low, medium and high density residential uses,
provide durable and effective screening techniques are employed;
and medium and high intensity commercial and industrial areas.
Access should not interfere with through traffic movement. Gen-
erally, individual residences should not have direct access to
minor arterials.
Roads classified as minor arterials in the Swansboro area
include Hammocks Road (SR 1512) and SR 1551.
Major Collectors
These roads should have relatively long trip lengths and
connect arterials and/or other collectors. They should have
relatively few access points to individual residences. Access to
land uses should not interfere with traffic movement. Land uses
along major collectors may include high intensity or large com-
mercial and _industrial areas, and low, medium or high density
residential uses.
SR 1444, Norris Road and SR 1447 have been placed in this
classification.
Minor Collectors
These roads generally provide for short and medium intra-
area trips. They generally move traffic between neighborhoods
and other collectors and arterials. Land uses should generally
be of lower intensity, including medium and small industrial and
commercial areas. Moderate access to residential areas is gener-
ally provided. However, such access should not interfere with
normal through traffic.
Roads in this category include: Mt. Pleasant Road, Sabiston
Drive, SR 1513, SR 1559, and SR 1572.
Traffic Conditions
Swansboro and Nearby Activity Centers
Swansboro is on the pass through route between points west
and south leading to Bogue Banks. The nearest city, Jacksonville,
is fifteen miles away by N.C. 24, a four lane highway. N.C. 24
is linked to Camp Lejeune and U.S. 17 via N. C. 172 about 7 miles
north of the town limits.
Average Daily Traffic (ADT) counts for 1983 along N. C. 24
ranged from 9,500 ADT to 11,100 ADT. Counts at peak times, such
14

as during the summer tourist season or during periods of heavy
military traffic between Camp Lejeune and Morehead City, may be
substantially higher than these annualized averages.
Counts on Hammock's Road, the only minor arterial for which
DOT traffic counts were given, were 1,900 ADT in 1983. Neither
Hammock's Road nor SR 1551 (the more direct link between N.C. 24
and Hammock's Beach State Park) have witnessed significant land
development of any kind,
Counts on other major and minor collectors were quite low,
ranging from 300 ADT on SR 1513 to 800 ADT on Mt. Pleasant Road.
Within the older part of Swansboro, particularly in the
downtown business district, traffic is hampered by narrow roads
laid out before the advent of the automobile and by the present
need for streetside parking on those narrow streets. Traffic
problems are intensified during the summer tourist months.
Potential Development
Swansboro has the long range potential for development which
is widespread throughout its planning area, and perhaps beyond.
The road system serving the community provides a basic access
network to large land areas. As was mentioned in the discussion
of vacant land use (p. 8), much of this land area is presently
undeveloped. As a result, present traffic counts are quite low
relative to design capacity, even on busy N. C. 24.
Over the ten year planning period, future development will
most likely take place along or adjacent to existing roads and
thoroughfares in areas were water and sewer services are availa-
ble. Care should be taken to ensure that subsequent development
does not necessarily hinder the movement of traffic, particularly
on roads which serve collecter and arterial functions.
Parking
Parking is a problem in the downtown area due to its histor-
ically narrow streets and the absense of adequate offstreet
parking to accommodate seasonal' influxes of tourists. Because of
the compactness of the downtown area, it is generally possible to
park within a block or two of the district. Parking is required
for new uses in the downtown area only to the extent that actual
provision of parking is feasible.
Economic Conditions
Swansboro is located in northeastern Onslow County, 15
miles east of the county seat and principal commercial center,
Jacksonville. Onslow County is home to Camp Lejeune, a U. S.
Marine Corps installation with over 40,000 military personnel.
Swansboro lies within a ten minute drive of both Camp Lejeune
(via N. C. 24 and N. C. 172 ) and the Bogue Banks beach community
of Emerald Isle.
15

There are two distinct business districts in Swansboro: a
downtown waterfront business district, and a highway oriented
commercial strip. Some local services are still provided in the
central business district, and tourists are attracted to its
unique scale and historic character, and to the waterfront (which
still contains water related businesses). Antique, craft and
gift stores and restaurants have also located in the area in the
past several years. A highway commercial district, characterized
by higher volume retail concerns and accounting for much of the
commercial acreage in the town, is emerging along N. C. 24.
Shops and services in this area provide for both basic retail and
service needs (groceries, hardware, furniture) and convenience
shopping and services (fast food restaurants, convenience
stores).
Camp Lejeune is the major employer in the Swansboro area.
Other employers include retail and service businesses and a small
garment manufacturing plant.
Swansboro is easily accessible to Jacksonville, and is lo-
cated between a growing resort area and an extensive military
installation. At present, the Town has few development limita-
tions in terms of its sewage treatment capacity and road system.
These factors, plus the unusually lovely natural setting of the
area, makes continued residential growth and economic development
likely in the Swansboro vicinity.
Physical and Environmental Constraints
Included on the following page is an Environmental Determin-
ants Map which identifies several environmental and physical
constraints to development in Swansboro. Specific components of
the map, including an analysis of soil types, hurricane hazard
areas, and Swansboro•s Historic District, are described below.
Other fragile areas, including Areas of Environmental Concern
(AEC's) are also introduced in this section.
Soil Suitability
The soils analysis for Onslow County, completed in 1984, was
used as a component of the Environmental Determinants Map for the
Swansboro area. Soils were analyzed for their suitability for
five development related activities:
o septic tanks
o shallow excavations
o residential dwellings
o commercial structures
o' local roads and streets
Based on these five indicators, soils were classified in one
of four categories:
16

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LEGEND:
SOIL SUITABILITY
Slight Limitations
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TELY SUITABLE -
MODERN Required
Some
SUITABLE_
MARGINe
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p
UNSUITABLE
HAZARD AREAS
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HAZARD AREA 3
I-IISTORIC DISTRICT
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ENVIRONM ANTS
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o suitable
o moderately suitable; some drainage needed
o marginally suitable if drained
o highly unsuitable, flooding common
Most soils in developed areas within Swansboro fall into
either the suitable or moderately suitable category. Two soil
types fell into the suitable category. These soils, Baymeade-
Urban Land Complex and Baymeade Fine Sand, have slight limita-
tions for all types of construction except for shallow excava-
tions and septic tanks. The only occurrence of these soils is in
areas served by a central sewage treatment system. All of the
soils in the Swansboro area have severe limitations for shallow
excavations, not an uncommon tendency in low-lying coastal areas.
Soils in the moderate category show moderate limitations for
construction of buildings and roads which can in most cases be
overcome by adequate drainage. Limitations for septic tanks are
moderate to severe for this category, with soils with severe
limitations requiring either central wastewater treatment or
substantial site improvements.
Soils in the moderately suitable category:
Goldsboro Fine Sandy Loam
Marvyn Loamy Fine Sand
Onslow Loamy Fine Sand
Norfolk Loamy Fine Sand, 0 to 2 percent slope
Soils in the marginally suitable category generally show
severe limitations in all categories, but are not subject to
regular flooding. Substantial site modifications and/or provi-
sion of central sewer would be necessary to develop sites with
this soil base. Soils in the marginally suitable category:
Leon Fine Sand
Lynchburg Fine Sandy Loam
Norfolk Loamy Fine Sand 2 to 6 percent slopes
Pactolus
Rains Fine Sandy Loam
Bohicket type soils fall into the last classification, high-
ly unsuitable. This soil has severe limitations in all five
categories and is subject to flooding.
Hurricane Hazard Areas
In 1983, the North Carolina Coastal Resources Commission
adopted rules for hurricane hazard planning for all coastal
communities. One of the first requirements in planning for storm
hazards is the identification of hazard areas and those struc-
tures at risk within them. As part of the hurricane guidelines,
classifications for hazard areas were defined as follows:
W

Severity Rank 1: Ocean Erodible AEC's, Inlet Hazard AEC's, and
Estuarine Shoreline AEC's
Severity Rank 2: FEMA V-zones and Coastal Wetlands AEC's
Severity Rank 3: FEMA A -zones
Severity Rank 4: Rest of community
Hazard Areas in Swansboro are shown on Map 3, Environmental
Determinants, p. 18, and described below.
Hazard Area 1: Within the planning jurisdiction of Swans-
boro, the only areas in the most severe category are Estuarine
Shoreline AEC's. These areas are potentially subject to erosion
and scour, wave action and battering, flooding and high winds in
hurricane or tropical storm conditions. The following uses were
found in Estuarine Shoreline AEC"s in Swansboro:
Retail Commercial: 4
Marine Commercial: 3
Residential: 8
The retail commercial uses included two waterfront restau-
rants, a business with a shallow lot facing immediately on Front
Street, and a commercial building within 75 feet of a bulkhead on
Church Street. Among the marine commercial uses was Caspar"s
Marina. Of the eight residential uses, two are built on shallow
lots immediately facing Front Street with no setback; the other
six are on bulkheaded lots.
Hazard Area 2: There are no uses in Swansboro in this
category, which includes coastal wetlands and V-zones. (Swansboro
contains no V-zone designations on its flood maps).
Hazard Area 3: This category includes FEMA A -zones. Prop-
ertiesin such hazard areas are subject to flooding and high
winds in hurricane or tropical storm conditions. The following
uses were found in Hazard Area 3:
Retail Commercial: 10
Marine Commercial: 0
Residential: 20
All commercial uses in the downtown Front Street district
not accounted for under Hazard Area 1 fall into this category.
The 20 residences were generally located in the same area as the
downtown commercial district. It should be pointed out that this
area of.Swansboro has been laid out and a functioning part of the
community for more than 200 years.
Generally, the built environment in Swansboro is as well
protected from unneccessary risk from tropical storms and hurri-
canes as can be expected.
19

Historic District
Swansboro"s locally designated historic district
(established in 1985) is shown on the Environmental Determinants
Map (p. 18). The district includes the original 48 lots laid out
by Theophilus Weeks at the Town"s inception about 1770, and
streets containing the dwellings built by Swansboro Land and
Lumber Company through 1910. The district extends 300 feet into
the White Oak River, although no known archaeological resources
are located in this area.
No formal architectural or archaeological survey, such as
would be required for a nomination to the National Register of
Historic Places, has been conducted for the district as a whole.
The N.C. Division of Archives and History has some funds availa-
ble in the form of matching grants for such survey work. A cer-
tain percentage of the money available to the Division for
grants, presently ten percent, is earmarked for communities which
have met the requirements of the Division's Certified Local
Governments program. Any North Carolina municipality or county
with a local historic district commission can participate in the
Certified Local Governments program.
Structures of some historic significance found in the local
historic district include the following:
The Ringware House (c. 1787, lot number 23).
The Underseth House (c. 1747, lot number 40).
Old Brick Store (c. 1838 - 1839, lot number 6).
The Cyrus B. Glover House (moved to present location c.
1900).
St. Thomas A.M.E. Zion Church (school, c. 1869, N. C. 24)
The John F. Mattocks House (Elm Street).
Other Fragile Areas
Areas of Environmental Concern
Areas of Environmental Concern (AEC's) are sensitive envi-
ronmental and cultural areas protected by the Coastal Area Man-
agement Act (CAMA). General categories of these areas are identi-
fied through state guidelines according to the Administrative
Procedures Act, as administered by the Division of Coastal Man-
agement. Special areas of local or regional environmental or
cultural significance can be nominated as AEC"s by individuals,
groups or governing bodies.
AEC"s lying within Swansboro"s jurisdiction include Coastal
Wetlands, Estuarine Waters, Public Trust Waters and Estuarine
Shorelines. Development or other land and water uses within
AEC"s generally require CAMA permits. The State has established
extensive guidelines regarding activities within AEC's, but gen-
erally does not preclude any land use by right. As part of an
effort to share implementation of the Coastal Area Management Act
with local governments, the State"s land use planning guidelines
20

require that local governments identify acceptable land uses
within AEC"s within their planning jurisdiction.. Descriptions of
AEC's within Swansboro"s jurisdiction are given below.
Coastal Wetlands. Coastal wetlands are defined generally as
any marshland subject to regular or occasional flooding by tides.
These wetlands are the breeding and nursery grounds for fish and
shellfish species which make up over ninety (90) percent of North
Carolina's commercial catch.
The State"s management objective for land uses within these
wetlands is to give highest priority to their protection as a
productive natural resource. Uses which are generally
unacceptable to the State include most types of commercial
businesses and residential uses, and any use involving impervious
surfaces, such as paved roads. Uses which may be permitted
according to State guidelines include utility easements, fishing
piers, docks, and agricultural uses. Swansboro may not permit
any uses which the State deems unacceptable, but it may go beyond
the State guidelines in limiting or placing special conditions on
uses which are not discouraged outright by the guidelines.
Management guidelines and rules for uses in Coastal Wetlands
are described in the most recently amended version of Section 15:
7H of the North Carolina Administrative Code. These rules are
available through Division of Coastal Management offices in both
Raleigh and Morehead City.
Estuarine Waters. Estuarine Waters are defined as all waters
of the Atlantic Ocean within the state boundaries and all waters
of the bays, sounds, rivers and tributaries seaward to the divid-
ing line between coastal fishing waters and inland fishing wa-
ters, as defined by North Carolina law. Their productive signi-
ficance is similar to that of coastal wetlands. Additional
benefits include the stimulation of the coastal economy through
operations required to serve coastal ly-oriented commercial and
sporting industries.
The State"s key management objective for estuarine waters is
to conserve and utilize them to maximize their benefits to man
and the estuarine system. Highest priority of use is given to the
conservation of estuarine waters. Second priority is given to
water -related uses which cannot function elsewhere.
Management guidelines and rules for uses in Coastal Wetlands
are described in the most recently amended version of Section 15:
7H of the North Carolina Administrative Code. These rules are
available through Division of Coastal Management offices in both
Raleigh and Morehead City.
Estuarine Shorelines. These shorelines are non -ocean shore-
lines which are especially vulnerable to erosion and flooding.
They extend landward a distance of 75 feet from the mean water
level along all estuarine waters.
21

The significance of estuarine shorelines lies in their prox-
imity to sensitive coastal systems. Estuarine shorelines are
also -subject in many areas to intense development activities
which may have a potentially detrimental impact on those sensi-
tive systems.
The State"s use standards are designed to minimize the
impacts of erosion and stormwater runoff generated in the course
of development. However, these rules do not preclude any types
of development outright. It is expected that the present rules
will be extensively revised and amplified during the course of
the planning period in order. to address the issue of stormwater
runoff and its impacts in a more comprehensive fashion.
Public Trust Areas can be generally defined as all estuarine
water areas and all lands under such waters, and may also include
artificially created bodies of water (and the lands underneath)
to which the public has rights of access and/or navigation.
Closed Shellfish Areas
Although the waters surrounding Swansboro are classified SA
(the highest and least polluted designation), Swansboro and its
vicinity contains extensive areas which area closed to shellfish-
ing. Closure is initiated by recommendation of the Deptartment of
Health Services by proclamation of the Division of Marine Fisher-
ies. Waters closed to shellfishing in the Swansboro area include
Stevens Creek from its origin to its mouth, all waters south of
Stevens Creek adjacent to Swansboro to Fosters Creek. The w.aters
Caspar"s Marina are also closed to shellfishing. Causes of high
bacteria counts which may result in the closure of shellfish beds
include sewage treatment outfalls, septic tank seepage, and non -
point source urban runof.f.
Areas With Resource Potential
Areas with resource potential in Swansboro include agricul-
tural and forested areas, presently zoned for agricultural use,
located primarily within Swansboro"s large extraterritorial jur-
isdiction. Although the Swansboro area contains an excellent
road network, it is not anticipated that large amounts of agri-
cultural and forested acreage will be converted to urban uses
during the ten year planning period.
Community Design Structure
Some of the key characteristics which help to define the
Swansboro community are displayed on Map 4, Community Design
Structure. This map highlights significant community features,
recent changes, and development trends through the use of desig-
nations such as:
o Districts: these are sections of town with a two-dimen-
sional character, which an observer mentally enters "inside
of", and which are recognizable as having some common iden-
22

tifying character. Representative districts in Swansboro
include existing residential areas, areas planned for devel
opment or with waterfront development potential, the Town"s
developing commercial corridor, and the Historic District.
o Landmarks: these are usually simply defined physical ob-
jects that serve as reference points such as a building or a
sign. Bicentennial Park is a Swansboro landmark.
o Nodes: these are strategic points in the community which
can be entered, such as an_ intersection or central gathering
place. Hardees, at the intersection of Hammocks Road and
N.C. 24, has been designated as a central gathering place.
o Pathways: these are the main channels along which an obser-
ver moves. The road to Hammocks Beach, Mt. Pleasant Road
and N. C. 24 are key pathways in the Swansboro area.
o Edges: these are linear elements that can be seen but which
are not used or considered as paths. The shoreline along the
White Oak River, with its waterfront vistas, forms such an
edge .-
23

The preparation of this map was financed in part through a grant
provided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as
amended, which is administered by the Office of Ocean and Coastal
Resource Management, N.O.A.A.
EW MIDDLE SC
TO ADDITIONA 48
HAMMOCK BEACH
STATE PARK
WATERFRONT
DEVELOPMENT POTENTIAL
/S T
.` MARSH `.
�. Extent of Town's Jurisdiction TO BOGUE
in White Oak River BANKS BEACHES
LEGEND:
DISTRICT
LANDMARK
NODE
----
PATHWAY
111111111111119
EDGE
NEW JUNIOR/SENIOR HIGHS
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:OMMERCIAL
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NNED
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PiCKET� ��
BICENTENNIAL PARK
IT SUBDIVISION
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WATERF T
DEVEL ENT
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111
i
SWANSBORO, N.C.
COMMUNITY DESIGN
STRUCTURE
ft U>"tom
soo oEeeme west
OL"� , . ..
araa.saaa
MAP 4

GROWTH TRENDS
Population and Impacts on Community Facilities
The 1980 Census found Swansboro"s population to be 976
persons. This represented a decrease from the 1970 census count
of 1,207 of 19.1 percent and over 200 people. This decrease may
be due to shrinking household sizes as Swansboro is becoming more
of a retirement community.
The N. C. Office of State Budget and Management publis hed
an estimate of Swansboro"s July 1982 population in late 1983
which showed an upswing in Swansboro"s population. This figure,
1,056, represents an eight (8) percent increase over the 1980
census count, indicating that growth rates have increased to
about 4 percent per year since 1980.
It is difficult to project population in a meaningful way
for a community the size of Swansboro. Factors other than birth,
death and migration rates based on past trends can sometimes
provide more meaningful insight into potential population in-
creases. Factors affecting future population in Swansboro in-
clude:
o The availability of land suitable for residential dev-
elopment in Swansboro and its immediate area.
o The annexation of new areas into the town limits.
o Sewage treatment capacity and the Town"s ability to
deliver those services to potential development areas.
o The desirability of Swansboro and vicinity as a bed-
room community for the Jacksonville/Camp Lejeune area
and as a resort/retirement location.
o The continued economic viability of the area.
Assuming the residential development market, as well as the
economy in general, remains healthy, the Swansboro area should
see an increase in residential development over the next decade.
The amount of development - and thus the size of the future
population - depends on the availability of land and the availa-
bility of urban services.
Swansboro offers numerous possibilities for residential
development simply from the standpoint of the number of acres
which are served by adequate roads and which are within a reason-
able distance of being served with central water and sewer ser-
vices. Since the beginning of the decade, the installation of
Onslow County"s extensive central water system has made it possi-
ble to develop new residential areas in areas remote from most
other services on lots as small as 10,000 square feet. The
Swansboro area offers an additional advantage in that the Town
25

currently uses only about fifty (50) percent of its wastewater
treatment capacity.
There are two possible ways to project population for Swans-
boro. The first would be to calculate a compound growth rate
based on the State indicated increase for 1980 to 1982 (four
percent per year). This method results in the following projec-
tions:
1985 1990 1995
1,188 1,443 1,756
The second method would be to calculate the number of units
that could be developed based on the remaining sewage treatment
capacity (about 400 to 500 units, if units average 2.5 bedrooms
in size), then estimate a "build out" time frame. Because the
potential number of units is relatively small, if economic and
housing factors remain strong in the Swansboro area, this "build
out" could occur in ten to fifteen years. If the build out
figure (say 800 units total) is multiplied times the 1980 census
occupancy rate (2.6 persons per dwelling), this would result in a
population of 2090 persons. Additionally, since land and good
access roads are so available in the Swansboro area, under the
right combination of economic factors, the growth rate in the
Swansboro area could be substantially higher than projected here.
Conversely, the population rate may not increase as fast as
shown in. these projections if the economy takes a downturn, or
other factors, such as a reduction in force at Camp Lejeune, take
place. As growth occurs, the Town of Swansboro and other
effected government agencies will need to monitor the impacts of
residential and commercial growth on urban service delivery. In
addition to water and sewer needs, attention should be directed
to population impacts on solid waste disposal and the method by
which the Town handles this service, police, fire, and recreation
facilities and programs.
26

U(1T.TrTFC
RESOURCE PROTECTION
Areas of Environmental Concern
Areas of Environmental Concern (AEC's) found within Swansbo-
ro"s planning jurisdiction are listed below. Appropriate land
uses within each category of AEC are also described. This infor-
mation is drawn directly from the guidelines enforced by the
Division of Coastal Management through 15 NCAC 7H.
Swansboro will support and enforce through its CAMA permit-
ting capacity the State policies and permitted uses in the Areas
of Environmental Concern (AEC's) as stated below. The benefits
to the community should include protection of biological produc-
tivity and protection of recreational and aesthetic resources.
Protection of common law and statutory public rights in the lands
and waters of the coastal area, and mitigation of damage due to
storms and hurricanes, are other obvious benefits to the public.
The Estuarine System
In recognition of the enormous economic, social and biolog-
ical values the estuarine system has for North Carolina, Swans-
boro will promote conservation and management of the estuarine
system as a whole, which includes the individual AEC's: coastal
wetlands, estuarine waters, public trust areas, and estuarine
shorelines.
The management objective for the system shall be to give
highest priority to the protection and coordinated management of
all the elements as an interrelated group of AEC's, in order to
safeguard and perpetuate the above stated values, and to minimize
the likelihood of significant loss of private property and public
resources.
In general, permitted land uses in the coastal wetlands,
estuarine waters, and public trust areas shall be those which are
water dependent. Examples of such uses may include: utility
easements, docks, boat ramps, dredging, bridges and bridge ap-
proaches, revetments, bulkheads, culverts, groins, navigational
aids, mooring pilings, navigational channels, simple access chan-
nels, and drainage ditches.
Land uses that are not water dependent shall not be permit-
ted in coastal wetlands and public trust areas. Examples of uses
that are not water dependent may include: restaurants, residen-
ces, apartments, motels, hotels, trailer parks, private roads,
factories and parking lots.
Specific policies regarding acceptable and unacceptable uses
within the individual AEC's of the estuarine system are stated
27

below. In all cases the particular location, use, and design
characteristics shall be in accord with the general use standards
for coastal wetlands, estuarine waters, and public trust areas as
stated in NCAC Subchapter 7H.
o Coastal Wetlands: Acceptable land uses may include
utility easements, fishing piers, and docks. Unaccept-
able uses may include, but would not be limited to,
restaurants, businesses, residences, apartments, mo-
tels, hotels, floating homes, parking lots, private
roads, and highways.
o Estuarine Waters: Appropriate uses may include simple
access channels, structures which prevent erosion,
navigational channels, boat docks, marinas, piers, and
mooring pilings.
o Public Trust Areas: In the absence of overriding pub-
lic benefit, any use which significantly interferes
with the public right of navigation or other public
trust rights which apply in the area shall not be
allowed. Projects which would directly or indirectly
block or impair existing navigational channels, in-
crease shoreline erosion, deposit spoils below mean
high tide, cause adverse water circulation patterns,
violate water quality standards, or cause degradation
of shellfish waters shall, in general, not be allowed.
Uses that may be allowed in public trust areas
shall not be detrimental to the public trust rights and
the biological and physical functions of the estuary.
Examples of such uses include the development of navi-
gational channels or drainage ditches, the use of bulk-
heads to prevent erosion, the building of piers, docks
or marinas.
o Estuarine Shoreline: Suitable land uses within the
estuarine shoreline AEC are those compatible with both
the dynamic nature of estuarine shorelines and the
values of the estuarine system.
Residential, recreational, and commercial land
uses are all appropriate types of use along the estua-
rine shoreline provided that all standards of NCAC 15
Subchapter 7H relevant to estuarine shoreline AEC"s are
met and that development complies with zoning controls.
Natural and Cultural Resource Areas
These fragile coastal natural resource areas are generally
recognized.to be of educational, scientific or cultural value
because of the natural features of the particular site. Indivi-
dual AEC"s included in this general category are: coastal complex
natural areas, coastal areas that sustain remnant species, unique
coastal geologic formations, significant coastal architectural
m

resources, and significant coastal archaeological resources.
This AEC category is unique in that individual natural and cultu-
ral resource AEC"s are established through a special designation
process which involves a detailed nomination and review process
prior to formal recognition by the Coastal Resources Commission.
Uncontrolled or incompatible development may result in major
or irreversible damage to fragile coastal resource areas which
contain environmental, natural, or cultural resources of more
than local significance. In recognition of this, Swansboro will
seek to protect such natural systems or cultural resources;
scientific, educational or associated values, and aesthetic qua-
lities.
Swansboro supports the policies and guidelines stated in
Subchapter 7H of NCAC 15 regarding these irreplaceable resources.
Stormwater Runoff
Urban type development, often well outside designated AEC's,
can pose a serious threat to the health and productivity of the
estuarine system through the rapid discharge of pollutants washed
off impervious surfaces such as streets, roofs, and parking lots
by rain and stormwater.
Swansboro"s Subdivision Regulations require the establish-
ment of a storm drainage system "adequate for the proper drainage
of all surface water" for all new subdivisions, including planned
unit developments. The ordinance encourages developers to con-
nect to existing storm drainage systems, and requires only that a
system designed for a development "protect the proposed develop-
ment from water damage". Planned unit developments are required
to retain a minimum of twenty (20) percent of gross acreage in
open space. Essentially, -the ordinance does not require that
impacts on neighboring properties or receiving bodies of water be
considered as a condition of subdivision approval.
Much of the new development in the Swansboro area is loca-
ting along the numerous creeks and waterways found here. Because
of the close proximity of such development to the sensitive
estuarine system, Swansboro should consider taking steps to en-
sure that the environmental impact of stormwater runoff generated
by new development is minimized.
o The Town of Swansboro has considered revisions to its Subdi-
vision Regulations and Planned Unit Development Ordinance
and is pursuing the imposition of standards for stormwater
runoff designed to mitigate the impacts of runoff generated
by new developments on surrounding properties and receiving
bodies of water.
o The Town of Swansboro is in the process of establishing
generalized guidelines to encourage the use of best availa-
ble management practices to minimize the threat of pollution
from stormwater runoff. Examples of these practices include
29

using pervious or semi -pervious materials (those which allow
water flow or seepage) for driveways and walks, retaining
natural vegetation along marsh and waterfront areas to re-
tain its filtering properties, and allowing stormwater to
percolate into the ground rather than be discharged directly
into coastal waters.
o The Town will consider increasing the amount and utilization
of open space required in developments within its planning
jurisdiction.
Marina and Floating Home Development
Recognizing the extensive limitations placed on the altera-
tion of natural systems by State and Federal law, the key area of
jurisdiction for Swansboro on these issues lies within its local
regulatory and zoning authority.
There are a number of marinas and boat basins located within
Swansboro"s planning jurisdiction. Swansboro specifies permissi-
ble locations and standards for the development of marinas
through its zoning ordinance. Marinas are permitted as a use in
Highway Business and Light Industrial districts and are permitted
by special permit in all residential districts with the exception
of those zoned for single family dwellings only.
Because of Swansboro"s attraction to tourists, there is
potential for the expansion of existing marina facilities or the
creation of new ones in the Swansboro vicinity. There are no
likely sites for new marinas within the town limits, although
marinas inside the town limits may have expansion potential.
The Town of Swansboro feels that the development of marinas
is undesirable unless central water and sewer facilities are
available to serve the facility, due to the scale of associated
water and sewage generated by such facilities.
The Town feels that floating homes are undesirable and will
consider adopting an ordinance to regulate them.
Development of Sound and Estuarine Islands
Swansboro"s policy regarding any such areas, with the excep-
tion of the developed portions of the White Oak River bridge
causeway, is to place them in the Conservation land classifica-
tion. Any development on such islands must be consistent with
State and local policies regarding the Conservation land class.
RESOURCE PRODUCTION AND MANAGEMENT
Swansboro"s natural resources play a vital role in its
economy; much of its extraterritorial land is utilized for agri-
culture, and its water areas are important to fisheries and
30

recreation. Protection of these resources is a prime concern of
the Town of Swansboro.
Productive Agricultural and Forested Lands
Land which is presently in productive agricultural and
forestry uses will be encouraged to continue in that use. Devel-
opment other than low density residential will be encouraged to
locate in non -resource productive areas. Only if no other suita-
ble location exists for a particular development project because
of locational, resource, or transportation needs should it be
placed on productive agricultural or forest lands. Development
projects which require State or Federal permits, licenses or
funds must meet this policy criteria.
In general, growth and development will be discouraged in
productive agricultural lands when such growth is not in accord-
ance with other land development policies in this Plan. This
policy has been and will continue to be implemented through
zoning such lands in agricultural categories.
Commercial and Recreational Fisheries
Swansboro will encourage preservation and expansion of its
fisheries industry, both sports and commercial. Protection of
coastal and estuarine waters is a prime prerequisite of this
policy objective. Habitats for shellfish and finfish in all
portions of their life cycle must be preserved in order to main-
tain fishing as a viable economic and recreational activity.
Therefore, any development which will adversely affect coas-
tal and estuarine waters will be discouraged. Only those devel-
opments which are water dependent, such as docking facilities,
treatment plants, and marinas shall be allowed to be placed near
and to effect coastal and estuarine water habitats. In the
design, construction, and operation of water dependent develop-
ments, efforts must be made.to mitigate negative effects on water
quality and fish habitat. These efforts will be made at the
owner's or operator's own expense.
In order to expand Swansboro"s sport and commercial fisher-
ies industry, Swansboro will support private and public projects
which will positively affect those industries. Swansboro sup-
ports channel and inlet dredging and stabilization projects which
will increase the water access for fishing boats and improve
water circulation in shellfish habitats.
Some fish habitat damage may occur in the course of dredging
and stabilization operations. Only those projects which create
minimal or no damage to the fisheries industry will be supported.
All dredging and stabilization operations must be performed so as
to minimize any unavoidable damage to fish habitat.
Swansboro supports projects which increase the productivity
of coastal and estuarine waters. There -are a number of closed
31

shellfish areas adjacent to Swansboro. The Town supports pro-
jects that would contribute to the cleansing of these areas.
Swansboro recognizes the importance of boat building, ship
maintenance and repair, docking and harbor facilities, and sea-
food processing industries as supportive and necessary for the
fisheries industry. All developments which require State or Fed-
eral permits, licenses or funds must meet this requirement.
PHYSICAL CONSTRAINTS TO DEVELOPMENT
Soils and Septic Tank Suitability
In conformity with State health regulations, growth and
development will be discouraged in areas where septic tanks will
not function and where sewer services are not available. Most
areas within the city limits of Swansboro have sewer services.
Further development is encouraged where these services are al-
ready provided.
Package Treatment Plants
Most areas within the Town of Swansboro are served by
central sewage treatment facilities, and the Town has additional
capacity for additional users. The Town"s policy is to
encourage utilization of the central treatment facility and to
discourage the use of package treatment plants.
There are no known areas within Swansboro"s planning juris-
diction where it would be impractical or financially unfeasible
for developments to tie on to the existing central treatment
facility.
PROVISION OF SERVICES TO DEVELOPMENT
Public Water Supply
The Town of Swansboro, in cooperation with Onslow County, is
committed to ensuring that public water service is delivered
where needed because of health and safety considerations. In
many cases, the delivery of this service is a function of Onslow
County. The Town of Swansboro will continue its policy of coop-
erating with Onslow County in the provision of water delivery
services.
Public Sewage System
The Town of Swansboro is committed to the provision of
sewage treatment services to all residents within the Town li-
mits. Areas not within the town limits may be provided with
these services if capacity is available and if the cost of provi-
ding the service is borne by the user or developer.
32

The Town has applied for Community Development Block Grant
funds to study rehabilitation needs for its existing sewage
treatment system. This study is a necessity if suspected problem
areas are to be identified and needed corrections planned, in
order to ensure that the system is used as efficiently as possi-
ble and in a cost effective manner.
Solid Waste Disposal
Swansboro will continue to ensure that adequate solid waste
disposal service is provided to Town residents.
Transportation
Swansboro wishes to ensure that its transportation system is
adequate to support continued community development, and that the
impacts of such development do not lower the service capacity of
its transportation system unneccessarily.
Key areas of concern include:
o The "bottleneck" effect of the White Oak River Bridge
leading to Carteret County, as the road width decreases
from as much as five lanes to two lanes. A substantial
amount of through traffic uses this route, particularly
in the summertime.
o There are a number of intersections along N.C. 24 which
do not have stop lights. Speeds in most of the extra-
territorial area are at least 45 miles per hour.
o The continued development of commercial businesses
along N.C. 24 is increasing the number of curb cuts.
These curb cuts can be viewed as additional intersec-
tions. Their increasing presence adds to the visual
"busyness" of the highway and can collectively lower
the safety of the highway as a transportation corridor.
o The increasing number of signs, particularly those
which blink or flash, also contribute to visual "busy-
ness" and thus can lower the safety of the highway.
The Town of Swansboro will take the initiative to minimize
potential impacts from several of these areas of concern:
o Review ingress and egress plans for all new commercial
and major residential development located on major
corridors. Guidelines for review:
o Limit the number of access points for individual
lots. For 50' to 150' frontage lots, one access
point should be adequate if internal circulation
is properly designed.
33

o Encourage or require new subdivisions of both
commercial and residential land to limit the num-
ber of access points which intersect with the
highway by providing internal circulation and ac-
cess from internal streets and roads. If the
total number of intersections (including curb
cuts) is kept to a minimum, traffic hazards will
be curtailed and it may be possible to maintain
present speeds along the highway.
o Request the N. C. Dept. of Transportation to install
traffic signals at the intersection of N.C. 24 and S.R.
1509, adjacent to Swansboro High School.
o Revise the sign ordinance to include the extraterritor-
ial area to regulate the placement and size of outdoor
commercial signage along N. C. 24 and other major
corridors. The ordinance should eliminate or severely
control the use of signs which are visually distracting
along such highways throughout the Town"s planning
jurisdiction.
With regard to the White Oak River Bridge, the Town supports
the reconstruction and widening of the bridge to eliminate the
present "bottleneck" problem. This bridge serves heavy seasonal
traffic associated with travel to the Bogue Banks beaches, and
carries increasing numbers of military vehicles traveling between
Camp Lejeune and Morehead City. The Town of Swansboro feels that
the reconstruction and bridge work should be added to the State
Dept. of Transportation Ten -Year Work Plan.
Parking
The Town recognizes parking is a limited resource in its
downtown commercial district and will encourage the development
of innovative approaches to increase parking and/or increase
utilization of existing parking spaces in the downtown area, as
long as such efforts do not have a negative impact on the charac-
ter of the area or the community at large.
Methods for enhancing or increasing the availability of
parking in the downtown area. include:
o Encouraging the establishment of shared parking ar-
rangements between businesses or users which have dif-
ferent business or use hours (such as a church and a
bank, for instance).
o Investigating the feasibility of waterfront oriented
improvements which can be partially funded through the
Division of Coastal Management's Beach and Shoreline
Access Program which include parking.
o Encourage the location of small scale tourist accommo-
dations in close proximity to the downtown area so that
visitors staying in such accommodations will not need
34

to use cars to explore the downtown and historic dis-
trict.
Fire Protection and Rescue Squad
In cooperation with Onslow County, Swansboro supports the
provision of fire protection and rescue services to its residents
through use of volunteer departments.
Police
Swansboro is committed to providing police protection ser-
vices adequate for community safety and in keeping with its
population, and will continue its policy of cooperation with the
Onslow County Sheriff's Department in the extraterritorial plan-
ning area.
Recreation
Swansboro is committed to providing neighborhood recreation
areas and facilities adequate to serve its population.
The Town of Swansboro will continue to review and assess
means of improving Town recreation facilities, including explor-
ing the feasibility of beneficial cooperative arrangements with
Onslow County for additional improvements to town parks.
The Town is considering improving existing water access
points for the use of residents and visitors, particularly in the
downtown waterfront area. Based on the results of the citizens
survey, improvements to waterfront access areas should feature or
include parking areas, scenic walkways and picnic areas, boat
ramps, public restrooms, gathering areas, fishing docks and/or
the replacement of the Town Dock.
The availability of existing recreation and open space
facilities should be incorporated into any planned improvements.
Ideally, a generalized plan for improvements should be prepared
given desired goals and in keeping with Town resources. The
various phases of the overall plan can be put in place on an
incremental basis as funds allow.
The Town supports the idea of planning for waterfront im-
provements and would like to pursue a grant to fund a shoreline
access improvements study.
ECONOMIC AND COMMUNITY DEVELOPMENT
General Land Use Policy
It is the policy of the Town to encourage new residential,
recreational, commercial and industrial development within the
community, provided such developments are in keeping with the
character of the Swansboro community. Any development within the
35

Town"s jurisdiction must be consistent with other relevant land
use policies and all.local land use regulations.
Residential Development
Swansboro wishes to encourage the maintenance of existing
residential areas as desirable places to live for its residents,
and to ensure that new residential development is compatible with
existing residential scale and density. The location, density
and scale of new residential development will be controlled with
this directive in mind through the Town"s zoning and other land
regulatory ordinances.
Commercial Development
Central Business District/Waterfront Area
The downtown waterfront commercial area, part of Swansboro"s
historic district, is one of the most important components of
Swansboro"s community image. This area is attractive to visitors
and tourists, and for this reason, should continue to attract
commercial and business investment which can be an asset to the
community.
The Town will continue to seek the enhancement of the exist-
ing central business district by encouraging continued revitali-
zation of, and investment in, existing businesses and structures.
Swansboro encourages the location of new, compatible, small scale
commercial and business uses in the area. Innovative methods of
providing parking and increasing the availability of parking
should be encouraged on the part of businesses and other users
located in the area.
The Town should consider pursuing improvements to waterfront
areas in the central business district to better utilize water
access points, enhance the area's attractiveness for tourists and
residents alike, and provide additional parking areas to serve a
variety of users. Such improvements are eligible for 75 o fund-
ing through the Division of Coastal Management Beach and Shore-
line Access Program.
Highway 24 Business District
The Town of Swansboro recognizes that most new commercial
uses, particularly those emphasizing high volume, will locate in
this growing area. The Town"s policy regarding commercial devel-
opment is that such development should be in keeping with the
existing scale of the community (i.e., low building heights, no
massive structures), should be constructed and designed as to
minimize negative impacts on the highway as a transportation
system, and should not encroach on existing or planned residen-
tial areas.
36

Industrial Development
Swansboro will encourage only those industrial developments
which are in keeping with existing community scale and community
character. Preferred development would include small or medium
scale "clean" industries which do not produce or handle any
toxic, hazardous or odorous materials or substances.
Tourism
Swansboro will continue to promote and encourage tourism
through methods which are in keeping with the existing character
of Swansboro.
Based on the results of the citizens survey, specific meth-
ods of encouraging tourism should primarily emphasize the devel-
opment of overnight lodging facilities for tourists and using
signs and information packets to guide visitors to historic sites
and shopping areas.
Swansboro may want to consider allowing the establishment of
bed and breakfast facilities in close proximity to the downtown
historic area. Bed and breakfasts typically provide a small
number of rooms for guests (usually less than five) and can be an
asset to a unique area such as the downtown waterfront area. The
scale of such facilities can be kept small and in keeping with
community character. Approval of such facilities should require
that an adequate management plan is in place and that offstreet
parking for guests is provided.
Historic District
The Town"s policy regarding the historic district is to
encourage the preservation of the appropriate historic scale,
mass, height and population density of Swansboro representative
of the era from 1770 to 1910 within the historic district.
Now that a historic district and commission has been esta-
blished, the Town should also consider ways to conduct archi-
tectural and archaeological surveys to. document structures and
historic and archaeological resources within the historic dis-
trict.
Swansboro should consider pursuing designation as a Certi-
fied Local Government for historic preservation funding purposes
through the N.C. Division of Archives and History. This designa-
tion could increase Swansboro"s chances for funding to do basic
historic and archaeologic survey work in the Historic District.
Commitment to State and Federal Programs
Swansboro supports those State and Federal programs and
policies affecting its jurisdiction consistent with locally adop-
ted plans, policies and ordinances.
37

Intergovernmental Cooperation
Swansboro maintains a close working relationship with Onslow
County and will continue to cooperate with the County to ensure
adequate delivery of services and consistency on policy and land
use issues.
STORM HAZARD MITIGATION AND POST DISASTER RECONSTRUCTION PLAN
Very little of the land area in Swansboro lies within the
hazard areas defined in Before the Storm (McElyea, Brower and
Godschalk, Center for Urban & Regional Studies, UNC-CH, 1982),
the Division of Coastal Management's guide to pre -hurricane and
post -disaster planning. Applicable hazard areas within Swansboro
included the Estuarine Shoreline AEC (Hazard Area 1, the most
severe category) and FEMA A -zone lands (Hazard Area 3).
In most cases, these lands are subject to local, state and
federal standards which will limit the placement or replacement
of structures within the hazard area.
In general terms, Swansboro"s existing policies meet the
requirements for hazard mitigation planning as outlined in Before
the Storm. These policies consist of a combination of accompa-
nying Land Use Plan policies and regulations established by the
Town"s land development ordinances. Specifically:
o Lands in the estuarine shoreline AEC are subject to
development limitations which are in the process of
being strengthened by the Coastal Resources Commission.
The expected effect will be to further limit the amount
and placement of development in these fragile areas.
This will indirectly provide a further limitation on
new construction which would be at risk from hurricanes
and tropical storms.
o Lands in FEMA A -zones are subject to elevation stan-
dards and insurance requirements which help ensure that
damage to any new development which occurs will be
minimized in the event of a severe tropical storm.
o The Town"s policies support and are consistent with
State policies and regulations for development in Areas
of Environmental Concern.
o All new development must conform with the provisions of
the North Carolina Building Code.
o The Town"s flood plain development policies conform
with all Federal and State requirements.
The Post Disaster Plan for Swansboro can be found in the
Appendix (following page 41).
m

CONTINUING PUBLIC PARTICIPATION
Swansboro realizes an important part of any planning pro-
gram is citizen involvement, and throughout the planning process
during the 1985 Update, has encouraged its citizens to become
involved in the, land use planning process. The press was
notified of meetings at which the plan was to be discussed
through press releases and the public was invited. The land use
plan was discussed at public meetings on the following dates (all
1985): February 7, March 27, April 9, April 30, May 16, and July
16. Many of these meetings were well attended by residents of
Swansboro and its extraterritorial jurisdiction.
A questionnaire was developed by the Town"s planning board
in conjunction with the consultant and was distributed to Town
residents and residents of the extraterritorial jurisdiction in
early June. A substantial percentage (over 25 %) of these surveys,
were returned. Results were tablulated and discussed at the July
16 meeting. The survey results were most helpful in confirming
the feelings of the community at large on such issues as the
siting of new development, service delivery (present and future), -
and planning for traffic safety on the Town"s main corridor, N.
C. 24.
Swansboro"s public involvement policy is as follows:
o All land use plans and updates, including the 1985 Update,
will be prepared with public participation.
o Citizen participation in the land use planning process will
be accomplished through:
o Education: the public will be kept informed of progress
on the land use plan through the use of a variety of
media. Methods which can be used include, but are not
limited to, news releases, news reports on meetings
dealing with the land use plan, public meetings and
presentations, television public service announcements
and flyers.
o Direct participation: citizens will have an opportunity
to attend public meetings dealing with the land use
plan, submit comments on an informal and formal basis,
and review the final draft at required public hearings.
Citizen's surveys can reach every household in the
town, providing a broad based opportunity for partici-
pation.
39

LAND CLASSIFICATION
The land classification system for Swansboro provides a
graphic representation of Swansboro's general land use policies.
Classifications are consistent with, and supportive of, its poli-
cies on resource protection, the development of sound and estua-
rine islands, provision of sewer treatment facilities, and gen-
eral land development, among others. Land classification is not
intended as a regulatory mechanism but is only a tool to help
implement policies.
The land classes used here are derived from the five broad
classifications described in NCAC 15, Subchapter 7B, the State
land use planning guidelines. The five classes are Developed,
Transition, Community, Rural and Conservation. Three of these
categories apply to Swansboro: Developed,' Transition, and Con-
servation.
Developed
This classification is intended to provide for continued
intensive development and redevelopment of existing areas that
are at or approaching the following densities:
0 500 dwelling units per square mile, or
o three dwelling units per acre, or
0 where a majority of lots are 15,000 square feet or less, and
which are currently served by public water, sewer, recreational
facilities, police, and fire protection.
Transition
The intent of the transition classification is to provide
for future intensive urban development at the densities specified
under the developed classification. These areas are or will be
served with the same urban services as those areas in the devel-
oped land classification.
Conservation
The purpose of the conservation class is to provide for the
effective long-term management and protection of significant,
limited, or irreplaceable areas. Management is needed due to the
natural, cultural, recreational, scenic or natural productive
values of both local and more than local concern.
This class is generally applicable to lands that contain:
major wetlands, undeveloped shorelines that are unique, fragile,
or hazardous for development, necessary wildlife habitat or areas
that have a high probability of providing necessary habitat
conditions; publicly owned water supply watersheds and aquifers;
and forest lands that are undeveloped and will remain undeveloped
for commercial purposes.
40

The preparation of this map was financed in pan through a grant pro-
vided by the North Carolina Coastal Management Program, through
funds provided by the Coastal Zone Management Act of 1972, as
amended, which is administered by the Office of Ocean and Coastal
Resource Management, N.O.A.A.
TRA
DE
SAN
U O4k* - �
v
MARSH
�. Extent of Town's Jurisd ict ion
in White Oak River
LEGEND:
DEV DEVELOPED
TRA TRANSITION
CON CONSERVATION
l
IDEV
I
*CON
TRA
f
CON
`'Q JQ,J
SWANSBORO, N.C.
LAND CLASSIFICATION .
aoo Oraaa. n...t
a<aClowsis,
MAP 5

APPENDIX
SWANSBORO POST -DISASTER RECONSTRUCTION PLAN
A. Introduction
A post -disaster plan provides a program to permit a local
government to deal with the aftermaths of a severe storm in an
organized and -efficient manner. The Plan provides the
mechanisms, procedures, and -policies that will enable a community
to learn form its storm experiences and to rebuild the community
in a wise an practical manner.
A post -disaster reconstruction plan encompasses three
distinct reconstruction periods:
o The emergency period is the reconstruction phase
immediately after a storm. The emphasis is on
restoring public health and safety, assessing the
nature and extent of storm damage, and qualifying for
and obtaining whatever federal and state assistance
might be available.
o The restoration period covers weeks and months
following a storm disaster. The emphasis during this
period is on restoring community facilities, utilities,
essential businesses, etc., so that the community can
once again.function in a normal manner.
o The replacement reconstruction period is the period
during which the community is rebuilt. The period
could last from months to years depending on the nature
and extent of damages incurred.
It is important that local officials clearly understand the
joint federal -state -local procedures for providing assistance to
rebuild after a storm so that local damage assessment and
reconstruction efforts are carried out in an efficient manner
that qualifies the community for the different types of
assistance that are available. The requirements are generally
delineated in the Disaster Relief Act of 1974 (P.L. 93-288) which
authorizes a wide range of financial and direct assistance to
both local communities and individuals. The sequence of
procedures to be followed after a major storm event is as
follows:
1. Local damage assessment teams survey storm damage
within the community and report this damage to the
Onslow County Emergency Management Coordinator.
2. Damage information is compiled and summarized by the
County, and the nature and extent of damage is reported
to the North Carolina Division of Emergency Management
(DEmM).

3. DEm M compiles local data and makes recommendations to
the Governor concerning state actions.
4. The Governor may request a Presidential declaration of
"emergency" or "major disaster". A Presidential
declaration makes a variety of federal resources
available to local communities and individuals.
5. Federal Relief assistance programs have various time
frames for application and completion; these must be
determined as soon -as possible after the emergency
occurs.
Federal disaster assistance programs previously provided aid
for communities to rebuild in the same way as existed before the
disaster occurred. This policy tended to foster recurring
mistakes. However, recent federal policy has started to change
the emphasis of disaster assistance programs. Specifically:
o Executive Order 1198 (Flood Plain Management) directs
all federal agencies to avoid either directly or
indirectly supporting future unwise development in
flood.plains (e.g. through sewer grants in locations
that foster flood plain development).
o Section 406 of the Disaster Relief Act can require
communities, as a prerequisite for federal disaster
assistance, to take specific actions to mitigate future
flood losses.
The remainder- of this chapter presents recommendations
regarding 1) procedures that Swansboro should follow in carrying
out its damage assessment program so as to meet all federal and
state requirements; and 2) reconstruction policies that the Town
should adopt to insure that future development that does occur in
local hazard areas is constructed in a manner consistent with
sound land use planning, public safety considerations, and
existing federal and state policy.
B. Organization of Local Damage Assessment Team
A local damage assessment team should include individuals
who are qualified to given reliable estimates of the original
value of structures, an estimated value of sustained damages and
a description of the repairs (and costs) that will be needed to
rebuild each structure. Following is a listing of Swansboro
personnel, including volunteers, available to assume these
responsibilities:
Administrative Police
Town Clerk Police Chief
Water Clerk 3 officers

Town Officials
1 Mayor
5 Commissioners
Fire Department
Fire Chief
Fire Department volunteers
Public Works
Public Works Superintendent
The Damage Assessment Team should be headed by an individual
with professional construction experience and who is familiar
with Town policies and procedures. Ideally, other members of
the team should include a local property appraiser (MAI or quali-
fied broker), a building contractor, and an architect. These
personnel may be drawn from the pool of existing paid or volun-
teer personnel or recruited from the community at large.
The Mayor should initiate a recruitment effort to secure the
necessary volunteers and to establish a training program to
familiarize the -members of the damage assessment team with re-
quired damage classification procedures and reporting require-
ments.
C. Damage Assessment Procedures and Requirements
Damage assessment is defined as a rapid means of determining
a realistic estimate of the amount of damage caused by a natural
or man-made disaster. For a storm disaster, it is expressed in
terms of: 1) number of structures damaged; 2) magnitude of damage
by structure type; 3) estimated total dollar loss; and 4)
estimated total dollar loss covered by insurance.
After a major storm event, members of the Damage Assessment
Team should report to the Emergency Operations Center prior to
deployment. There are over 400 individual dwelling units in
Swansboro in addition to dozens of non-residential buildings.
The extent of damage will depend on the magnitude of the storm
and where landfall occurs along the Atlantic coast.
Because of the limited personnel resources available to
conduct the assessments, and the limited time within which the
initial assessment must be made, the first phase of the assess-
ment should consist of only an external visual survey of damaged
structures. A more detailed second phase assessment can be made
after the initial damage reports are filed.
The initial damage assessment should make an estimate of the
extent of damage incurred by each structure and identify the
cause (wind, flooding, wave action, combination, etc.) of the
damage to each structure.
Damaged structures should be classified in accordance with
the suggested State guidelines as follows:

o Destroyed (repairs would cost more than 80 percent of
value).
o Major (repairs would cost more than 30 percent of the
value).
o Minor (repairs would cost less than 30 percent of the
value, but the structure is currently uninhabitable).
o Habitable (some minor damage, with repairs less than 15
percent of value).
The Damage Assessment Team will color code tax maps in
accordance with the above 4 damage classifications; for example,
destroyed: red; major: orange; minor: yellow; habitable: green.
It will be necessary to thoroughly document each assessment.
In many cases, mail boxes and other information typically used to
identify specific structures will not be found. Consequently,
the Damage Assessment Team must be provided with tax maps, other
maps and photographic equipment in order to record and document
its field observations. Enough information to complete the
Damage Assessment Worksheet (samples to be included in Appendix)
must be obtained on each damaged structure.
The second phase of the Damage Assessment Operation will be
to estimate the value of the damages sustained. This operation
should be carried out in the Emergency Operations Center under
the direction and supervision of the Mayor.
In order to estimate total damage values it will be
necessary to have the following.information available for use at
the Emergency Operations Center:
o A set of property tax maps identical to those used by
the damage assessment teams.
o Copies of all town tax records. This information
should indicate the estimated value of all commercial
and residential structures within the Town. Because
time will be of the essence, it is recommended that the
Town immediately commence a project listing the proper-
ty values of existing structures on the appropriate
lots of the property tax maps that will be kept at the
Emergency Operations Center. The information will
provide invaluable if a storm disaster does occur.
This set of tax maps should be updated annually prior
to the hurricane season.
Additionally, the Town should estimate the number of
structures carrying flood insurance. This information should be
kept available in the Emergency Operations Center for estimating
the value of sustained damages covered by hazard insurance.

In order to produce the damage value information required,
the following methodology is recommended:
1. The number of residential and non-residential struc-
tures that have been damaged within the Town should be
summarized by damage classification category.
2. The value of each damaged structure should be obtained
from the marked set of Town tax maps and multiplied by
the following percentages for the appropriate damage
classification category.
o Destroyed: 100 %
o Major Damage: 50 %
o Minor Damage: 25 %
o Habitable: 10 %
3. The total value of damages for the Town should then be
summarized and reported, as required, to the New
Hanover County Emergency Operations Center.
4. The estimated value loss covered by hazard insurance
should. then be determined by: 1) estimating full
coverage for all damaged structures for situations
where the average value of such coverage exceeds the
amount of damage to the structure; and 2) multiplying
the number of structures where damage exceeds the
average value of insurance coverage by the average
value of such coverage.
The Damage Assessment Plan is intended to be the mechanism
for estimating overall property damage in the event of a
disaster. The procedure recommended above represents an approach
for making a relatively quick, realistic "order of magnitude"
damage estimate after a disaster.
D. Organization of Recovery Operations
Damage assessment operations are oriented to take place
during the emergency period. After the emergency operations to
restore public health and safety and initial damage assessments
are completed, the State guidelines suggest that a Recovery Task
Force to guide restoration and reconstruction activities be
created. In Swansboro the Mayor and Commissioners should assume
the responsibilities of such a task force with the Town"s Police
Chief directing day-to-day operations based on policy guidance
from the Mayor and Commissioners.
The following tasks must be accomplished:
1. Establish an overall restoration schedule.
2. Set restoration priorities.

3. Determine requirements for outside assistance and
request such assistance when beyond local capabilities.
4. Keep appropriate County and State officials informed
using Situation and Damage Reports.
5. Keep the public informed.
6. Assemble and maintain records of actions taken and
expenditures and obligations incurred.
7. Proclaim a local "state of emergency" if warranted.
8. Commence clean-up, debris removal and utility
restoration activities.
9. Undertake repair and restoration of essential public
facilities and services in accordance with priorities
developed through the situation evaluations.
10. Assist private businesses and individual property
owners in obtaining information on the various types of
assistance that might be available to them from federal
and state agencies.
A sequence and schedule for undertaking local reconstruction
and restoration activities is presented below. The schedule was
deliberately left vague because specific reconstruction needs
will not be known until after actual storm conditions have passed
and the magnitude of the damage can be assessed. The following
sequence of activities and schedule is submitted as a guide
which should be reconsidered by the Mayor and Commissioners and
revised as necessary after damage assessment activities are
completed.
Activity Time Frame
1. Complete Second When required by Onslow
Phase Damage County Hurricane Evacuation
Assessment Plan as implemented by Emergency
Operations.Center
2. Prepare Summary Completed 48 hours after
of Reconstruction damage assessment is completed
Needs
3. Set Reconstruction
Priorities and
Prepare Master
Reconstruction Schedule
4. Begin Repairs to
Critical Utilities
and Facilities
Completed two weeks after
damage assessment is completed
As soon as possible after
disaster

5. Decision Regarding
Imposition of
Temporary Development
Moratorium
6. Permitting of
Reconstruction
Activities for all
Damaged Structures
(Major and Minor) not
included in Development
Moratorium Areas
7. Complete Re-evaluation
of Hazard Areas and
Mitigation Policies in
Areas subjected to
Development Moratorium
8. Revise Mitigation
Policies and
Development Standards
for Areas Subjected to
Development Moratorium
and Lift Development
Moratorium
Within one week after damage
assessment is completed
Within one week after
damage assessment is
completed
Can be initiated once
damages are assessed and input
is received from the State
Within two months of imposition
of Temporary Development
Moratorium (variable due to
circumstances encountered)
9. Permitnewdevelopment Upon suspension of any
temporary development
moratorium.
E. Recommended Reconstruction Policies
All of the following policies are designed to be: 1)
considered and adopted by the Swansboro Board of Commissioners
prior to a storm, and 2) implemented, as appropriate, after a
storm occurs.
PERMITTING
1. Building permits to restore structures located outside of
designated Areas of Environmental Concern (AEC"s) that were
previously built in conformance with local codes, standards
and the provisions of the North Carolina Building Code shall
be issued automatically.
2. All structures suffering major damages as defined in the
Town"s Damage Assessment Plan shall be repaired or rebuilt
to conform with the provisions of the North Carolina Build-
ing Code, the Swansboro Zoning Ordinance, and the Swansboro
Flood Plain Management Regulations. Depending on the extent
of overall storm damage, certain areas exhibiting a large
proportion of structures suffering major damage may be

placed under a Temporary Development Moratorium until ade-
quate review for conformance can begin to take place.
3. All structures suffering minor damage as defined'in the
Swansboro Damage Assessment Plan shall be permitted to be
rebuilt to their original before -the -storm condition.
4. For all structures in designated AEC's, a determination
shall be made for each AEC as to whether the provisions of
the N.C. Building Code, the state regulations for Areas of
Environmental Concern, and the Swansboro Flood Plain Manage-
ment Regulations appeared adequate in minimizing storm
damages.
For areas where the construction and use requirements appear
adequate, permits shall be issued in accordance with
permitting policies 1, 2, and 3. For AEC"s where the
construction and use requirements do not appear to have been
adequate in minimizing damages, a Temporary Development
Moratorium for all -structures located within that specific
AEC shall be imposed.
5. Permits shall not be issued in areas subject to a Temporary
Development Moratorium until such a moratorium is lifted by
the Swansboro Board of Commissioners.
UTILITY AND TOWN FACILITY RECONSTRUCTION
1. All damaged water and sewer systems components shall be
repaired so as to be elevated above the 100-year floodplain
or shall be floodproofed, with methods employed and
construction certified by a registered professional
engineer.
2. If N.C. 24 or Water Street is breached or covered with sand
and debris, making it impossible to travel, immediate action
should be taken to restore the road to usable condition. A
letter of agreement with the State Department of Transporta-
tion should be established to allow the Town to perform
these functions should the State be unable to respond in a
timely manner due to emergency repair operations in other
areas, and to provide a means of reimbursing the Town for
costs incurred while performing such emergency repairs.
TEMPORARY DEVELOPMENT MORATORIA
Under certain circumstances, interim development moratoria
can be used in order .to give a local government time to assess
damages, make sound decisions and to learn from its storm
experiences. Such a moratorium must be temporary and it must be
reasonably related to the public health, safety and welfare.

It is not possible to determine prior to a storm whether a
temporary development moratorium will be needed. Such a measure
should only be used if damage in a particular area is very
serious and if redevelopment of the area in the same manner as
previously existed would submit the residents of the area to
similar public health and safety problems. Since Swansboro is not
a beachfront community, the chances of needing such a moratorium
are slim. However, Swansboro"s most vulnerable areas are those
which are located in AEC's (along the estuarine shoreline and in
FEMA A -zones).
Swansboro"s policy regarding the proclamation of temporary
development moratoria shall be to:
1. To determine for each AEC (and other areas as necessary)
whether the provisions of the N.C. Building Code, the State
Guidelines for Areas of Environmental Concern, and the
Swansboro Flood Plain Management Regulations appeared ade-
quate in minimizing storm damages. For areas where the
construction and use requirements do not appear adequate, a
Temporary Development Moratorium for all structures located
within that specific area shall be imposed.
2. After imposing a Temporary Development Moratorium for an
AEC, the Town of Swansboro shall request that the Coastal
Resources Commission conduct a special analysis for the Town
and all other similar communities, in order to determine how
local regulations for those hazard areas, which are based on
State or Federal guidelines or requirements, should be
improved or modified. A response from the State within a
reasonable time period, as determined through negotiations,
should be requested.
3. The Temporary Building Moratorium in all AEC"s and other
areas shall be lifted after local ordinances and regulations
have been revised after receiving recommendations from the
State, or at the discretion of the Mayor and Council if a
response is not made within a reasonable period of time. In
the latter case, reconstruction shall be permitted in
accordance with existing regulations and requirements.